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plan canada | winter · Hiver 2016 vol. 56 no. 4

COLUMNS ARTICLES 41 FROM REACTIVE TO PROACTIVE IN FIRST NATIONS PLANNING: A 4 WORD FROM THE 16 PRIVILEGING INDIGENOUS KNOWLEDGE CASE STUDY OF THE METLAKATLA PRESIDENT | MESSAGE Q&A from the participants of EXPERIENCE IN BRITISH COLUMBIA DE LA PRÉSIDENTE RAIC’s Indigenous Task Force By Katerina Kwon MCIP, By Patrick Stewart, Luugigyoo (Nisga`a), Thomas Gunton MCIP, RPP, PLANNER UPDATE | 6 PhD, Architect AIBC, MRAIC, LEED®AP Murray Rutherford MCIP, RPP, and L’ACTUALITÉ DES and Eladia Smoke, KaaSheGaaBaaWeak Taylor Zeeg MCIP, RPP URBANISTES (Anishinaabe), OAA, MRAIC, LEED®AP 46 A ROADMAP TO INDEPENDENCE: 12 FROM THE EDITORIAL 18 (RE)IMAGINING OUR COMMUNITY: THE K’ÓMOKS FIRST NATION’S BOARD | MESSAGE DU CHANGING THE PLANNER AND PROACTIVE APPROACH TO COMITÉ DE RÉDACTION PLANNING WITH FIRST NATIONS YOUTH SUSTAINABLE LAND MANAGEMENT By Shelagh McCartney D.Des. OAA, MRAIC, By Alanna Mitchell, 70 FELLOWS’ CORNER | Elizabeth Atlookan, Louie Sugarhead, Pamela Shaw PhD, MCIP, RPP, FRCGS, DU CÔTES DES FELLOWS Jeffrey Herskovits, Kathryn Trnavsky and Devon Miller, MSc, LEED AP ND

73 PLANNER’S BOOKSHELF 22 TREATY PRINCIPLES ARE PLANNING 49 WAYS OF KNOWING: ENGAGING IN PRINCIPLES: LEARNING FROM THE PARTNERSHIP FOR INDIGENOUS 74 ADVERTISER.COM EXPERIENCES OF MANITOBAN PLANNING EDUCATION PLANNING PRACTITIONERS By Leonie Sandercock PhD, By Madeleine Koch MCP, MCIP Candidate Leona M. Sparrow BA, MA, LLB and and Janice Barry PhD, MCIP Candidate Jeff Cook MCIP, RPP 3 25 PLANNING IN PARTNERSHIP: THE 53 QUEBEC INDIGENOUS WAGMATCOOK FIRST NATION COMMUNITIES AND URBAN HOUSING PILOT PROJECT PLANNING: A WORLD APART? By Alexis Miller MCP, Nathan Roth MPlan, By Denise Piché MPs, MUrb, PhD and Frank Palermo FCIP LPP, FRAIC 61 COLLABORATING TO PRESERVE 33 BEYOND CONSULTATION: LESSONS INDIGENOUS HERITAGE IN FROM JOINT STEWARDSHIP LETHBRIDGE, ALBERTA By Sheri Longboat PhD By Perry Stein MA, BA, Scotty Many Guns, Andrew Malcolm RPP MCIP, BA, 37 NEW CENTURY, NEW APPROACH Neil Mirau, and Chelsea King TO MARINE PLANNING IN B.C. By Marine Plan Partnership for the 65 BRINGING DECISION-MAKING North Pacific Coast (MaPP): John Bones CLOSER TO HOME: A HEALTH AND BA, MSc, Charles Short BSc, MSc, and WELLNESS PLANNING ECOSYSTEM Steve Diggon BES, MSc By Leanne Martinson, Connie Jasper and Trish Osterberg 46 plan canada | WINTER · HIVER 2016 WORD FROM THE PRESIDENT | MESSAGE DE LA PRÉSIDENTE

ELEANOR MOHAMMED RPP, MCIP/UPC, MICU PRESIDENT, CANADIAN INSTITUTE OF PLANNERS PRÉSIDENTE, INSTITUT CANADIEN DES URBANISTES BRINGING PLANNING ISSUES INTO FOCUS

n light of the Truth and Reconciliation actions and planning practices have Commissions of Canada’s Call to a major role in providing support to Action, all levels of government indigenous peoples and communities, and professionals across Canada along with implementing the Truth are endeavouringI to build stronger and Reconciliation Commissions of relationships with local Indigenous Canada’s Call to Action, the New Urban peoples. Indigenous community Agenda and the UN Declaration on the planning and engagement are also Rights of Indigenous Peoples. a key component of the New Urban This special expanded edition of Agenda, which was adopted by the Plan Canada provides inspiring best United Nations at the October 2016 practices and lessons learned for Habitat III conference in Quito, Ecuador. Indigenous community planning and Given this current and changing social engagement. It also poses important and political context, CIP recognizes thought-provoking questions and the need to build capacity and support presents ideas that we as Planners need for planners in the field of Indigenous to contemplate as part of our practice. community planning and engagement. Thank you to the Indigenous CIP encourages our members to People’s Planning Sub-Committee learn about the Indigenous history members, Jeff Cook MCIP, RPP, Chair, of their area, including government Jonathan Frantz MCIP, RPP, Karin Our members have commitments made for respective Kronstal MCIP, RPP, P. Leigh Whyte the unique ability in treaty lands, and the negative impact MCIP, RPP, David Stinson MCIP, RPP, their planning practice of residential schools on the local A.Ag., and Gillian McKee, PIBC/MCIP to bring the citizens Indigenous peoples. In addition, our Candidate, for their hard work and of their communities members have a responsibility to effort in building this important edition. together. ensure that local Indigenous peoples CIP is proud to present this special and communities are included in issue of Plan Canada dedicated to planning processes and policy Indigenous peoples planning and documents in all levels of government. engagement. We are a profession 4 Nos membres ont Our members have the unique ability predicated on collaboration and l’occasion unique, in their planning practice to bring the understanding. Meeting the needs of dans le cadre de leur citizens of their communities together, Indigenous peoples and communities to recognize individual and collective requires continued learning on the part profession, de réunir needs, along with educating everyone of our members across Canada and CIP les citoyens de leurs involved in and touched by planning is here to support this. communautés. processes. As such, our members’ I hope that you enjoy this issue. ■

ABOUT THE COVER ART This cover of Plan Canada was designed AU SUJET DE LA PAGE COUVERTURE La présente page couverture de by Shaun Vincent, a Graphic Designer, with roots firmly in Winnipeg Plan Canada a été conçue par le graphiste Shaun Vincent, originaire de and the Métis community. The image is a mandala –an illustration that Winnipeg et membre de la collectivité métisse. Cette image est un mandala, incorporates multiple images and subjects to create a consistent and soit un dessin qui incorpore différentes images et de multiples sujets afin de patterned message. Each ring in the circular image is representative, créer un message uniforme et homogène. Chaque anneau du cercle a une and this mandala incorporates the following representation: Canada signification. Le présent mandala intègre les concepts suivants : Le Canada and country, connecting to... Nature and Indigenous culture, animals, et la campagne, reliés à... la nature, la culture autochtone et les animaux connecting to... Industrial and resource imagery, connecting to: reliés à... une thématique industrielle et de ressources, reliés à : des peuples

plan canada | WINTER · HIVER 2016 People and issues, connecting to... Healing and reconciliation. et des enjeux, reliés à... la guérison et à la réconciliation. METTRE L’ACCENT Plan Canada is the official publication of the Canadian Institute of Planners Plan Canada est la revue officielle de L’Institut canadien des urbanistes SUR DES ENJEUX EN 141 avenue Laurier Avenue West/ouest Suite/ Bureau 1112 Ottawa, ON K1P 5J3 Tel/Tél. : 800.207.2138 613.237.7526 Fax/Téléc. : 613.237.7045 MATIÈRE D’URBANISME www.cip-icu.ca | [email protected] Plan Canada is published quarterly: March, June, September, December. All rights reserved. evant l’appel à l’action de de nos membres jouent un très Reproduction in whole or in part without la Commission de vérité et grand rôle de soutien auprès des the expressed permission of CIP is strictly forbidden. Articles contained herein do not de réconciliation du Canada, collectivités autochtones, de même necessarily represent the views of the Canadian Institute of Planners. les gouvernements de tous que la mise en œuvre de l’appel à Plan Canada paraît quatre fois par année, les paliersD et des professionnels à l’action de la Commission de vérité et en mars, en juin, en septembre et en décembre. Tous droits réservés. La reproduction en tout ou l’échelle du Canada ont entrepris de réconciliation du Canada, du Nouvel en partie de cette publication sans le de nouer de meilleures relations agenda urbain et de la Déclaration consentement écrit de l’ICU est strictement interdite. Les articles publiés dans ce journal avec les collectivités autochtones des Nations Unies sur les droits des ne reflètent pas nécessairement le point de vue de l’Institut canadien des urbanistes. locales. L’aménagement des peuples peuples autochtones. Editorial Board/Comité de rédaction autochtones et la participation La présente édition spéciale de Barbara A. Myers MCP, MCIP, MPPI, RPP Chair/Présidente communautaire sont des éléments Plan Canada fait état de pratiques Sandeep Agrawal PhD, Aicp, RPP, mCIP clés du Nouvel agenda urbain, adopté exemplaires et de leçons apprises Richard Borbridge RPP, MCIP Jonathan Denis-Jacob RPP, MCIP lors de la conférence Habitat III en matière d’aménagement et de Dawn Seetaram RPP, MCIP Timothy Shah MA (Planning) des Nations Unies à Quito, en participation communautaire des

Équateur en octobre 2016. Dans peuples autochtones. Dans cette Editor/Rédactrice en chef le cadre de ce contexte social et édition, on retrouve également Michelle Brynkus politique en plein changement, des questions qui appellent à la For details on how to subscribe visit www.cip- l’ICU reconnait la nécessité de réflexion et des idées proposées icu.ca/Resources/Plan-Canada. Legal Deposit/ développer la capacité et d’améliorer que nous devons considérer en tant Dépôt légal National Library of Canada Bibliothèque nationale du Canada Bibliothèque le soutien de ses urbanistes dans les qu’urbanistes, dans le cadre de notre nationale du Québec domaines de l’aménagement et de pratique professionnelle. ISSN 0032-0544 la participation communautaire des Je tiens à remercier les membres Publications Mail/Registration #/no de publication/distribution postale : 40064978 peuples autochtones. du sous-comité d’aménagement des Published December 2016/CIP-Q0416/2562 l’ICU encourage ses membres peuples autochtones Jeff Cook MICU,

à s’éduquer à propos de l’histoire UPC, président, Jonathan Frantz Published by/Publié par: autochtone de leur région, notamment MICU, UPC, Karin Kronstal MICU, UPC, l’engagement du gouvernement en P. Leigh Whyte MICU, UPC, David matière de terres cédées en vertu Stinson MICU, UPC, A.Ag. et Gillian 1630 Ness Avenue, Suite 300 Winnipeg, MB R3J 3X1 d’un traité et les torts causés aux McKee, PIBC/MCIP candidate au Tel/Tél. : 800.665.2456 | Fax/Téléc. : 204.947.2047 www.naylor.com autochtones par les pensionnats. PIBC/à l’ICU pour leur travail acharné 5 Managing Editor/Directrice de la rédaction De plus, nos membres ont la et leur dévouement dans la création Andrea Németh responsabilité de s’assurer que les de cette édition de premier plan. Group Publisher/Éditrice de groupe Angela Caroyannis collectivités autochtones locales L’ICU est fier de présenter cette Project Manager/Directrice de projet sont impliquées dans les processus édition spéciale de Plan Canada, Kim Davies d’aménagement et l’élaboration consacrée à l’aménagement et à la Marketing Associate/Adjointe à la commercialisation des documents de politique à tous participation communautaire des Margaux Tomac les paliers de gouvernement. Nos peuples autochtones. Notre profession Publication Director/Directrice de la publication Candace Bremner membres ont l’occasion unique, dans est fondée sur la collaboration et la Sales Representative/Représentant de vente le cadre de leur profession, de réunir compréhension. Nos membres doivent Jason Currie les citoyens de leurs communautés, poursuivre leur apprentissage pour Layout & Design/Mise en page et conception graphique de reconnaître les besoins individuels répondre aux besoins des collectivités Emma Law et collectifs, et d’éduquer toutes les et des peuples autochtones, et l’ICU Cover Design Shaun Vincent parties impliquées dans les processus est là pour favoriser cela. ©2016 Naylor (Canada) Inc. All rights reserved. d’aménagement. De ce fait, les actions J’espère que vous apprécierez la The contents of this publication many not be et les processus d’aménagement présente édition. ■ reproduced in whole or in part without the consent of the publisher. plan canada | WINTER · HIVER 2016 PLANNER UPDATE L’ACTUALITÉ DES URBANISTES PLANNER UPDATE | L’ACTUALITÉ DES URBANISTES CIP NAMES 2016’s GREAT PLACES IN CANADA | L’ICU DÉSIGNE LES LAURÉATS DE L’ÉDITION 2016 DU CONCOURS « AU CANADA, C’EST MA PLACE! »

BY/PAR : MEAGHAN MURPHY, CIP'S COMMUNICATIONS COORDINATOR/ COORDONNATRICE DES COMMUNICATIONS, ICU

CANADIAN INSTITUTE OF PLANNERS INSTITUT U CANADIEN DES URBANISTES

he Great Places in Canada is a contest hosted annually by CIP since 2010. In 2016, Great Places once again aimed to recognize the u Canada, c’est ma place! » est un concours lasting impact that professional planners make organisé par l’ICU depuis 2010. En 2016, onT Canadian communities, big and small! This year, the le concours avait toujours pour objectif contest ran from August 17 to November 8, and received de reconnaître les contributions 36 eligible nominations from nine different provinces. durables des urbanistes professionnels auprès des These 36 nominees were displayed on our recently communautés canadiennes, de toutes tailles. Cette année, updated website (GreatPlacesinCanada.ca) where the le concours s’est déroulé du 17 août au 8 novembre. Il y public was then able to vote on their favourite Great a eu 36 candidatures en provenance de neuf provinces. Place. The contest received over 30,000 votes and Les 36 candidatures ont été affichées sur notre site Web earned news coverage from a number of media outlets, récemment mis à jour (http://greatplacesincanada.ca/fr/). including CBC and CityNews. CIP successfully garnered De là, le public pouvait voter pour son lieu remarquable 6 national attention for the contest while simultaneously favori. Plus de 30 000 votes ont été comptabilisés et promoting the valuable contributions that planners make le concours a fait l’objet de reportages d’actualités de across Canada. certains médias tels que CBC et CityNews. L’ICU a retenu After a rigorous review process and much l’attention nationale pour son concours, tout en faisant la deliberation, our jury of planners bestowed the title of promotion des précieuses contributions des urbanistes à Great Street on Historic Water Street, Great Public Space l’échelle du Canada. on St Patrick’s Island, and Great Neighbourhood on Après un examen rigoureux et de longues Woodfield. The winners were announced on November 8 délibérations, notre jury d’urbanistes a attribué le titre in conjunction with World Town Planning Day events. de Rue remarquable à l’historique Water Street, le Lieu Following are the Jury’s Statements on the Great public remarquable à l’île Saint-Patrick et le Quartier Places in Canada 2016 Winners. remarquable à Woodfield. Le nom des gagnants a été dévoilé le 8 novembre dans le cadre des événements liés à la Journée mondiale de l’urbanisme. Vous trouverez ci-dessous les déclarations du jury concernant les lauréats du concours « Au Canada c’est ma place! » 2016. plan canada | WINTER · HIVER 2016 Water Street is Great Places in Canada’s 2016 Great Street. Water Street is located in St. Andrews, New Brunswick and has been a focal point for its 1,800 residents and 80,000 annual visitors. | La rue Water Street est la récipiendaire du titre de Rue remarquable du concours « Au Canada c’est ma place! » 2016 : La rue Water Street est située à Saint-Andrews au Nouveau-Brunswick. Elle est un lieu essentiel pour près de 80 000 personnes qui la visitent chaque année et pour ses 1 800 habitants.

Historic Water Street ST. ANDREWS, NB: 2016 GREAT STREET

JURY STATEMENT: Historic Water Street is a L’historique Water Street part of the community of St. Andrews’ heart SAINT-ANDREWS (NOUVEAU-BRUNSWICK) : and identity. The pedestrian-oriented street RUE REMARQUABLE 2016 integrates contextual urban design with open 7 spaces and scenic views of the nearby sea. DÉCLARATION DU JURY : L’historique Water Street While the street’s design and architecture représente le cœur et l’identité de la communauté de references the community’s over 200 years Saint-Andrews. Cette rue destinée aux piétons marie un of history, the place itself has evolved to design urbain d’espaces ouverts à une vue pittoresque remain a daily part of resident’s lives for de la mer à proximité. Bien que le design et l’architecture both commercial and recreational purposes. de la rue témoignent des quelque 200 ans d’histoire de The street is also an attraction for the la communauté, l’emplacement, quant à lui, a évolué community’s over 80,000 visitors each year. pour demeurer au cœur des activités quotidiennes It houses well-frequented restaurants, shops, commerciales et récréatives des résidents. La rue constitue galleries, and other excursion opportunities. également une attraction pour les 80 000 touristes The street is also the backdrop for a weekly annuels. Elle abrite des restaurants, des magasins, et des Farmers Market and hosts community events galeries achalandés, en plus d’offrir diverses possibilités in all four seasons. d’excursions. De plus, on y retrouve un marché agricole hebdomadaire et des événements communautaires, tout au long de l’année. plan canada | WINTER · HIVER 2016 PLANNER UPDATE L’ACTUALITÉ DES URBANISTES

Awarded Great Public Space, St. Patrick’s Island is a recently revitalized area in Calgary, but has quickly become a magnet for Calgarians who are eager to explore the natural beauty and family-friendly atmosphere that this island has to offer. | Lauréat du prix Lieu public remarquable 2016, l’île Saint-Patrick, ayant récemment fait l’objet d’une revitalisation, est située dans la région de Calgary et constitue un pôle d’attraction pour tous les Calgariens désireux d’explorer la beauté naturelle et les installations adaptées aux besoins des familles de cette île.

St. Patrick’s Island CALGARY, AB: 2016 GREAT PUBLIC SPACE

JURY STATEMENT: St. Patrick’s Island is L’île Saint-Patrick one of Calgary’s oldest parks. Recently CALGARY (ALBERTA} : 8 revitalized, it is a giant backyard LIEU PUBLIC REMARQUABLE 2016 playground for residents of all ages from Calgary’s East Village and surrounding DÉCLARATION DU JURY : L’île Saint-Patrick est l’un communities. This public space integrates des parcs les plus anciens de Calgary. L’île, récemment enhanced natural spaces with public art, réaménagée, est rapidement devenue un immense terrain and urban amenities. The recent redesign de jeu pour les habitants de tous âges d’East Village et des focused on connecting people with communautés avoisinantes de Calgary. Cet espace public nature. The island is home to events and conjugue des espaces naturels enjolivés d’art civique et festivals including campfire chats and des installations urbaines. Le récent réaménagement avait outdoor theatre and movies. A new bridge pour objectif d’aider les gens à reprendre contact avec la spans the Bow River and provides an nature. L’île accueille des événements et des festivals tels elegant access to the island. que des causeries près du feu, des théâtres et des cinémas extérieurs. Un nouveau pont traverse la rivière Bow, offrant ainsi un accès élégant à l’île. plan canada | WINTER · HIVER 2016 Woodfield LONDON, ON: 2016 GREAT NEIGHBOURHOOD

JURY STATEMENT: Woodfield Woodfield is a vibrant historic Victorian LONDON (ONTARIO) : neighbourhood located in the QUARTIER REMARQUABLE 2016 heart of London. The picturesque neighbourhood showcases many DÉCLARATION DU JURY : Woodfield est un quartier homes and rustic Ontario cottages, de style victorien situé au cœur de London. Ce quartier many built in the 1840s. Woodfield pittoresque arbore plusieurs maisons et chalets rustiques, features walkable and well-frequented dont certains datent des années 1840. Woodfield est commercial and public spaces, dotée d’espaces publics et de magasins bien fréquentés, including Victoria Park, and is the propices à la marche, notamment le parc Victoria. Elle est location of many community events le théâtre de plusieurs événements communautaires, dont including a street fair, plant exchange un festival de rue, une donation de plantes et un festival and Harvestfest. The balance of de la récolte. L’équilibre entre la préservation historique historic preservation and community et le dynamisme de la communauté font de Woodfield un vibrancy made this a unique entry. récipiendaire unique.

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Woodfield is a Victorian neighbourhood located in the heart of London, Ontario and is also the 2016 Winner for Great Neighbourhood. Woodfield is one of the largest and finest examples of an intact Victorian streetscape in Canada. | Woodfield est un quartier de style victorien situé au cœur de London en Ontario. Il est le lauréat 2016 dans la catégorie du Quartier remarquable. Woodfield représente l’un des exemples les plus importants et les plus beaux des paysages de rues de style victorien au Canada. plan canada | WINTER · HIVER 2016 PLANNER UPDATE L’ACTUALITÉ DES URBANISTES

Historic Main Street/ Rothesay Common Downtown Antigonish/ L’historique Main Street Centre-ville d’Antigonish

In addition, the nominees with the highest number De plus, les candidats ayant reçu le plus grand of votes from each category were presented with a nombre de votes dans chaque catégorie ont reçu le People’s Choice award. prix Choix du public. The 2016 People’s Choice recipients are Les lauréats du prix Choix du public 2016 sont listed below: énumérés ci-dessous :

PEOPLE’S CHOICE RECIPIENTS: LAURÉATS DU PRIX CHOIX DU PUBLIC :

Historic Main Street L’historique Main Street NEWMARKET, ON: PEOPLE’S CHOICE STREET NEWMARKET, ONTARIO : CHOIX DU PUBLIC DANS LA CATÉGORIE RUE REMARQUABLE Rothesay Common ROTHESAY, NB: PEOPLE’S CHOICE Rothesay Common PUBLIC SPACE ROTHESAY, NOUVEAU-BRUNSWICK : CHOIX DU PUBLIC DANS LA CATÉGORIE LIEU PUBLIC Downtown Antigonish ANTIGONISH, NS: PEOPLE’S CHOICE Centre-ville d’Antigonish NEIGHBOURHOOD ANTIGONISH, NOUVELLE-ÉCOSSE : CHOIX DU PUBLIC DANS LA CATÉGORIE QUARTIER REMARQUABLE

The 2016 winning Great Places in Canada in each Les lauréats 2016 dans chaque catégorie du concours 10 category will be presented with a plaque that can be « Au Canada c’est ma place! » se verront remettre displayed onsite. This year, the contest was shortened une plaque qui pourra être placée sur le lieu même. from six months to two months. Initially, this condensed Cette année, la durée du concours est passée de six à timeline was viewed as an obstacle, however, the public deux mois. Initialement, la durée écourtée fut perçue proved otherwise. Despite the two month period, comme un obstacle. Cependant, le public a démontré Great Places in Canada was a huge success and we que ce n’était pas le cas. En dépit de la courte période are confident in its ability to grow more in the coming de deux mois, le concours « Au Canada c’est ma place! » years. CIP would like to thank all nominators and voters a remporté un franc succès et nous sommes persuadés for participating in the contest this year – without you, qu’il prendra davantage d’ampleur dans les prochaines the contest would not have been a success! années. L’ICU tient à remercier tous les auteurs de To learn more about Great Places in Canada please propositions de candidature, ainsi que les gens ayant visit our website: GreatPlacesInCanada.ca. voté au concours cette année – sans vous, le concours n’aurait pas remporté un tel succès! Pour en apprendre davantage au sujet du concours « Au Canada c’est ma place! », veuillez consulter le site Web de l’ICU : AuCanadaCestMaPlace.ca plan canada | WINTER · HIVER 2016 PLANNER UPDATE L’ACTUALITÉ DES URBANISTES

CIP welcomes the following new full members to the Institute: L’ICU souhaite la bienvenue au sein de l’Institut aux nouveaux membres à part entire suivants :

Andrew Malcolm RPP, MCIP APPI Jeffrey Thompson MCIP, RPP OPPI Ross Soward MCIP, RPP PIBC Matthew Gratton RPP, MCIP APPI David Veights MCIP, RPP OPPI Jacqueline Teed MCIP, RPP PIBC Anita O’Driscoll RPP, MCIP APPI Lindsay Wiginton MCIP, RPP OPPI Tyler Thomson MCIP, RPP PIBC Lyla Peter RPP, MCIP APPI Nicole Zambri MCIP, RPP OPPI Joshua Van Loon MCIP, RPP PIBC Carla Gorman RPP, MCIP APPI Tania Zimmerman MCIP, RPP OPPI Leifka Vissers MCIP, RPP PIBC Jeffery Chase RPP, MCIP APPI Banani Afsana MCIP, RPP OPPI Robyn Holme MCIP, RPP PIBC Nola Kilmartin RPP, MCIP APPI Matthew D. Alexander MCIP, RPP OPPI Lauren Morhart MCIP, RPP PIBC Meghan Norman RPP, MCIP APPI Ruchika Angrish MCIP, RPP OPPI Jan Thingsted MCIP, RPP PIBC Robert Rutherford RPP, MCIP APPI Jesse J. Auspitz MCIP, RPP OPPI Jihad Bitar MCIP, RPP PIBC Kent MacDougall RPP, MCIP APPI Dalia Bahy MCIP, RPP OPPI Leigh Campbell MCIP, RPP PIBC Meghan Wong RPP, MCIP APPI Eric A. Bays MCIP, RPP OPPI Christopher Correia MCIP, RPP PIBC Tatenda Kwedza RPP, MCIP APPI Joanna E.C. Bowes MCIP, RPP OPPI Kari Dow MCIP, RPP PIBC Troy Gonzalez RPP, MCIP APPI Allen E.O. Burgess MCIP, RPP OPPI Carl Isaak MCIP, RPP PIBC Aminu Bello RPP, MCIP APPI Phil B.D. Busby MCIP, RPP OPPI Stephanie Long MCIP, RPP PIBC Janel Smith-Duguid RPP, MCIP APPI Adam J. Curran MCIP, RPP OPPI Leita Martin MCIP, RPP PIBC Truper McBride RPP, MCIP APPI Laura M. Dainard MCIP, RPP OPPI Alanna McDonagh MCIP, RPP PIBC Dan Godin RPP, MCIP APPI Andrew C. Dales MCIP, RPP OPPI Jenyfer Neumann MCIP, RPP PIBC Milan Nguyen RPP, MCIP APPI Frances C. Dietrich-O’Connor David Pady MCIP, RPP PIBC Garrett Newman RPP, MCIP APPI MCIP, RPP OPPI Jennifer Reilly MCIP, RPP PIBC Laurie Johnson RPP, MCIP APPI Kathleen Fralic MCIP, RPP OPPI Sarah Ross MCIP, RPP PIBC Jacob Larsen RPP, MCIP APPI David J. Hannam MCIP, RPP OPPI Kylie Sandham MCIP, RPP PIBC Leith Deacon RPP, MCIP APPI Michael H. Hayek MCIP, RPP OPPI Ruby Sandher MCIP, RPP PIBC Reed Des Roches RPP, MCIP APPI Nathan D. Hercanuck MCIP, RPP OPPI Leslie Shieh MCIP, RPP PIBC Paul Wilson MCIP INTL Mark A. Iamarino MCIP, RPP OPPI Jesse Tarbotton MCIP, RPP PIBC Erin Huck MCIP MPPI Mark A. Johnson MCIP, RPP OPPI Philip Bradshaw MCIP, RPP PIBC Robert Zilke MCIP MPPI Alex Kolsteren MCIP, RPP OPPI Kyle Brandstaetter MCIP, RPP PIBC Danielle De Fields MCIP, RPP OPPI Jessica Lai Man Kwan MCIP, RPP OPPI Allan Campeau MCIP, RPP PIBC Lina Al-Dajani MCIP, RPP OPPI Lisa M. La Civita MCIP, RPP OPPI Joanna Clark MCIP, RPP PIBC Jonathan Benczkowski MCIP, RPP OPPI Eric E. Lalande MCIP, RPP OPPI Elicia Elliott MCIP, RPP PIBC Melissa Campbell MCIP, RPP OPPI Armando J. Lopes MCIP, RPP OPPI Jennifer Fix MCIP, RPP PIBC Joyce Chen MCIP, RPP OPPI Michael McConnell MCIP, RPP OPPI Misty Jorgensen MCIP, RPP PIBC Stephen Corr MCIP, RPP OPPI Geoffrey P. T. McGrath MCIP, RPP OPPI Titania Lam MCIP, RPP PIBC Alisha Cull MCIP, RPP OPPI Adam W. Miller MCIP, RPP OPPI Robin Mills MCIP, RPP PIBC Danielle De Fields MCIP, RPP OPPI Sarah R.L. Minnes MCIP, RPP OPPI Christopher Rempel MCIP, RPP PIBC Antonio De Franco MCIP, RPP OPPI Andrew Morgan MCIP, RPP OPPI Melinda Smyrl MCIP, RPP PIBC Matthew Dumont MCIP, RPP OPPI Lara V. Nelson MCIP, RPP OPPI Aleksandra Brzozowksi MCIP, RPP PIBC Matthew Edwards MCIP, RPP OPPI Julie C. Nolan MCIP, RPP OPPI Nancy Gothard MCIP, RPP PIBC Meagan Ferris MCIP, RPP OPPI Erica C. Ogden MCIP, RPP OPPI Lihua (Livia) Huang MCIP, RPP PIBC Heather Finlay MCIP, RPP OPPI Brynne E. O’Neill MCIP, RPP OPPI Tanya Soroka MCIP, RPP PIBC Andrea Friedman MCIP, RPP OPPI Brandon M. Orr MCIP, RPP OPPI Ivo van der Kamp MCIP, RPP PIBC Kate Goslett MCIP, RPP OPPI Evan J. Perlman MCIP, RPP OPPI Christine Batchelar MCIP, RPP PIBC Adam Grossi MCIP, RPP OPPI Caitlin M. Port MCIP, RPP OPPI David Bell MCIP, RPP PIBC Julie Hannah MCIP, RPP OPPI Kevin S. Rachman MCIP, RPP OPPI Graeme Brown MCIP, RPP PIBC 11 Tate Kelly MCIP, RPP OPPI Aaron J. Raymond MCIP, RPP OPPI John Calimente MCIP, RPP PIBC Kristy Kilbourne MCIP, RPP OPPI James B. Reed MCIP, RPP OPPI Janine De La Salle MCIP, RPP PIBC Caroline Kimble MCIP, RPP OPPI Melissa Ricci MCIP, RPP OPPI Jeff Ginalias MCIP, RPP PIBC Casey Kulchycki MCIP, RPP OPPI Scott M. Ritchie MCIP, RPP OPPI Adam Hyslop MCIP, RPP PIBC Samantha Lahey MCIP, RPP OPPI Shannon N. Van Dalen MCIP, RPP OPPI Michelle Kam MCIP, RPP PIBC Kelsey Lang MCIP, RPP OPPI Wall Emily MCIP, RPP OPPI Nadine Kawata MCIP, RPP PIBC Jennifer Maestre MCIP, RPP OPPI Kimberley Wilmot MCIP, RPP OPPI Vanessa Kay MCIP, RPP PIBC Tolek Makarewicz MCIP, RPP OPPI Cregan Caroline MCIP, RPP OPPI Christopher McBeath MCIP, RPP PIBC Yuri Mantsvetov MCIP, RPP OPPI Carolyn Armanini MCIP, RPP PIBC Glenn Morris MCIP, RPP PIBC Devon McCloskey MCIP, RPP OPPI Patrick Chan MCIP, RPP PIBC Tom Pearce MCIP, RPP PIBC Jeff Medeiros MCIP, RPP OPPI Lynda Fyfe MCIP, RPP PIBC Robert Publow MCIP, RPP PIBC Jaime Posen MCIP, RPP OPPI Kurt Inglis MCIP, RPP PIBC Laura Roddan MCIP, RPP PIBC Kayla Rell MCIP, RPP OPPI Alex Kondor MCIP, RPP PIBC Maria Sandberg MCIP, RPP PIBC Heather Sewell MCIP, RPP OPPI Gillian McKee MCIP, RPP PIBC Carla Schuk MCIP, RPP PIBC Sabrina Sgotto MCIP, RPP OPPI Jennifer Miles MCIP, RPP PIBC Heather Shedden MCIP, RPP PIBC Meng Xi (Stream) Shen MCIP, RPP OPPI Courtney Miller MCIP, RPP PIBC Neil Smith MCIP, RPP PIBC Simona Simion MCIP, RPP OPPI Colin Moore MCIP, RPP PIBC Ren Thomas MCIP, RPP PIBC Adrianna Spinosa MCIP, RPP OPPI Hillary Morgan MCIP, RPP PIBC Brian Zurek MCIP, RPP PIBC plan canada | WINTER · HIVER 2016 FROM THE EDITORIAL BOARD MESSAGE DU COMITÉ DU RÉDACTION

JEFF COOK MCIP, RPP/MICU, UPC CHAIR, CIP’S INDIGENOUS PEOPLES PLANNING SUB-COMMITTEE PRÉSIDENT, SOUS-COMITÉ D’AMÉNAGEMENT DES PEUPLES AUTOCHTONES, ICU RECONCILIATION IN PRACTICAL TERMS

ince Plan Canada’s last number of levels, representing various Indigenous Planning issue in scales and contexts of planning. December 2013, Indigenous Stewart and Smoke represent the communities have faced RAIC Indigenous Task Force (IPPS’s unprecedentedS changes. Three years counterpart in the Royal Architectural ago, we proposed several questions to Institute of Canada) and open this issue initiate dialogue, encourage reflection, by sharing teachings about Indigenous and inspire transformative change. identity, values, knowledge and These questions are still relevant, cultural practices. especially the most basic one: how Next, McCartney and colleagues do we, as planners, meaningfully inspire with a story of the Eabametoong collaborate with Indigenous Canada First Nation’s youth partnership and to restore relationships, based on how they were engaged in a planning recognition, trust, cultural respect process to guide the future. and dignity? In “Treaty Principles are Planning Answers to this question and others Principles”, Koch and Barry capture How do we, are increasingly complex. Pressure planners’ experience and personal as planners, is mounting, as are the expectations responsibility working in First meaningfully and desire by Indigenous peoples Nations-municipal collaboration, and collaborate with themselves to lead transformative how Indigenous principles can inform change under tremendously shifting these emerging relationships. Indigenous circumstances. At stake are the current Miller, Roth and Palermo document Canada to restore and future generations who will an innovative housing design process relationships, continue to transform the dark legacy set in Nova Scotia through an ongoing based on of colonization and long-standing partnership with the Wagmatcook First recognition, trust, assimilationist agenda, including Nation and the Cities and Environment cultural respect the effects of an imposed Western Unit at Dalhousie University. planning paradigm. Can we support this The next two articles shift to 12 and dignity? responsibility now? examples of inter-governmental The Indigenous People’s Planning relations. Longboat outlines a new Sub-Committee’s (IPPS) call for articles approach in land use planning through resulted in a fantastic submission of a Joint Stewardship Agreement, 28 articles from across the country, which helped the local municipal a testimony to the importance and and Indigenous governments move momentum of Indigenous governance, from conflict to collaboration and planning and development in Canada. shared benefits. Likewise, Bones and The IPPS would like to thank the colleagues provide an example of a Plan Canada Editorial Board, Andrea multi-collaborative planning process Németh, managing editor of Plan between the Province of British Canada at Naylor, and Michelle Columbia and 17 First Nations. Brynkus, Manager, Communications Kwon and colleagues challenge the and Marketing at CIP, for helping to current project-based environmental champion this issue. It is a rich collection assessment process and propose a that speaks to collaboration on a CONTINUED ON PAGE 14 plan canada | WINTER · HIVER 2016 LA RÉCONCILIATION EN TERMES CONCRETS

es communautés autochtones Canada. Le SCAPA tient à remercier le Les deux articles suivants ont connu des changements comité de rédaction de Plan Canada, dépeignent différents exemples de sans précédent depuis la Andrea Németh, rédactrice en chef relations intergouvernementales. parution de la dernière édition de Plan Canada et Michelle Brynkus, Longboat décrit une nouvelle de l’aménagementL des peuples gestionnaire de l’ICU, Communications approche en matière d’aménagement autochtones de Plan Canada en et marketing pour avoir aidé à du territoire grâce à un accord de décembre 2013. Il y a trois ans, nous défendre cet enjeu. C’est un bel gouvernance commune qui a permis avons proposé plusieurs questions afin éventail de gens qui s’expriment au aux municipalités locales et aux d’entamer un dialogue, d’encourager la sujet des relations, des partenariats et gouvernements autochtones de réflexion et d’inspirer des changements des collaborations à plusieurs niveaux, remplacer leurs relations conflictuelles transformateurs. Ces questions sont représentant différentes échelles et par une collaboration au profit des toujours pertinentes aujourd’hui, contextes en aménagement, ainsi que bienfaits collectifs. De la même surtout les questions les plus différents thèmes. façon, Bones et ses collègues élémentaires : en tant qu’urbanistes, Stewart et Smoke représentent offrent un exemple significatif de comment pouvons-nous collaborer le groupe de travail autochtone de processus d’aménagement à plusieurs de manière significative avec les l’IRAC (l’homologue du SCAPA au collaborateurs entre la province collectivités autochtones du Canada sein de l’Institut royal d’architecture de la Colombie-Britannique et afin de rétablir des relations fondées du Canada) et ouvrent le débat en 17 Premières Nations. sur la reconnaissance, la confiance, le partageant leur compréhension et leurs Kwon et ses collègues remettent respect culturel et la dignité. enseignements au sujet de l’identité, en question le processus actuel Les réponses à ces questions sont des valeurs, des connaissances et des d’évaluation environnementale infiniment complexes. La pression pratiques culturelles autochtones. fondé sur des projets et proposent s’accentue, de même que les attentes McCartney et ses collègues nous en remplacement un système de et la volonté des peuples et des inspirent ensuite en partageant planification des effets cumulatifs collectivités autochtones à apporter l’histoire du partenariat entre exhaustif, fondé sur un partenariat des changements transformateurs l’Eabametoong First Nation (Première entre la Metlakatla First Nation dans des circonstances changeantes. Nation d’Eabametoong) et les (Première Nation de Metlakatla) Les générations actuelles et futures des jeunes membres de leur collectivité, et la School of Resource and enfants et des jeunes sont en jeux. Ces et de leur implication dans le Environmental Management à derniers auront la tâche de perpétuer processus d’aménagement, destiné à l’Université Simon Fraser. les changements visant à se délester orienter l’avenir. Dans l’article « A Roadmap to du sombre héritage de la colonisation Dans « Treaty Principles are Independence », Mitchell, Shaw et de la politique d’assimilation qui Planning Principles », Koch et Barry et Miller présentent les projets a longtemps perduré, y compris les relatent l’expérience et la responsabilité de planification communautaire 13 effets d’un paradigme d’aménagement personnelle des urbanistes travaillant globale en matière d’aménagement imposé par l’occident. Sommes-nous au sein de la collaboration des urbain en préparation au processus en mesure de nous charger de cette Premières Nations et des municipalités des traités. La collaboration entre responsabilité à l’heure actuelle? et la manière dont les responsables Nations est également favorisée Les articles au sujet de autochtones peuvent contribuer à ces grâce à un programme de l’aménagement des peuples relations émergentes. mentorat en aménagement des autochtones commandés par le Miller, Roth et Palermo peuples autochtones. sous-comité d’aménagement des documentent un projet de logement Sandercock, Sparrow et Cook peuples autochtones (SCAPA) ont novateur en Nouvelle-Écosse, décrivent une collaboration unique généré une forte réponse. En effet, piloté par un partenariat entre la entre le « School of Community 28 articles en provenance de partout Wagmatcook First Nation (Première and Regional Planning (SCARP) » à au pays ont été soumis, témoignant Nation de Wagmatcook) et la Cities l’Université de la Colombie-Britannique ainsi de l’importance et de la force de & Environment Unit (l’Unité des villes et la Première Nation Musqueam. la gouvernance, de l’aménagement et de l’environnement) de l’Université Ce partenariat éducatif a fondé et du développement autochtone au de Dalhousie. SUITE À LA PAGE 15 plan canada | WINTER · HIVER 2016 FROM THE EDITORIAL BOARD MESSAGE DU COMITÉ DU RÉDACTION

CONTINUED FROM PAGE 12 who finds that there are ample the outcomes of planning offer opportunities through professional, enormous potential. comprehensive cumulative effects educational and research perspectives Honouring Indigenous planning system based on partnership to address planning challenges planning processes in this period with the Metlakatla First Nation while respecting the presence of of reconciliation represents an and the School of Resource and Indigenous Quebec. opportunity for transformational Environmental Management at Simon Compliance with the South change. We need support, processes, Fraser University. Saskatchewan Regional Plan and data mechanisms and tools to shift from In “A Roadmap to Independence,” collection on historical resources ignorance and conflict to shared Mitchell, Shaw and Miller highlight and use within Blackfoot traditional understanding and cooperation. a community’s Comprehensive territory was an opportunity for To respect Indigenous planning, Community Planning efforts in the City of Lethbridge to forge planners require an understanding preparation for the treaty process. new relationships with Indigenous of the political and social history of Nation to Nation collaboration peoples, respecting the Truth and Indigenous communities, as well as the is shared through participation Reconciliation Commission’s Calls legal and policy context that defines in an Indigenous planning to Action and objectives of United the degree of agency, autonomy and mentorship program. Nations Declaration of the Rights of control. Planners need to learn how to Sandercock, Sparrow and Cook Indigenous Peoples. The process is honour and integrate ways of knowing describe a unique collaboration described by Stein and colleagues. and being; to respect how Indigenous between the University of British Finally, Martinson and colleagues planning processes are structured, and Columbia’s School of Community describe how, by working through how knowledge and ways of knowing and Regional Planning (SCARP) and an ecosystem health and wellness are acknowledged and protected. the Musqueam Indian Band. This planning and partnership approach, Planners have a unique opportunity educational partnership formed an community-level health planning and a growing responsibility to Indigenous Community Planning (ICP) informs regional and provincial health build their capacity including specialization at SCARP, inspiring planning in an Indigenous context. expanding cultural/Indigenous graduate students who seek to work in These articles demonstrate what planning competency, diversifying Indigenous community planning. reconciliation looks like in practical methodologies and skills sets, and The scarcity and disconnect of terms and what opportunities leveraging mechanisms and tools Indigenous urban planning, including planners have in our evolving roles. relevant to enabling reconciliation. the lack of inter-governmental By acknowledging that planning We are experiencing the process of relationships at federal, provincial is not simply a technical act but reconciliation together, Indigenous and municipal levels in the Province also a social, political, ecological and non-Indigenous alike. For of Quebec is discussed by Piché, and cultural act, we recognize that Indigenous planning to be at the forefront of all planning and development initiatives requires a deep awareness, understanding and a sustained effort: it is not a single event or strategy, but rather a 14 EIDOS HAS MERGED WITH MCELHANNEY sustained call to action that involves risk and courage. This issue of Plan We are pleased to expand our landscape architecture Canada is a celebration of Indigenous planning practice, what is changing and urban design and planning services through the and how. ■ acquisition of EIDOS. Thank you to CIP’s IPPS members: Jon Frantz, Karin Kronstal, P. Leigh Whyte, David Stinson and Gillian McKee. Visit www.mcelhanney.com to learn more. JEFF COOK has been the National Chair of the IPPS since 2011. He is the Principal of Beringia Community Planning Inc. and a faculty member at UBC in the Indigenous Community Planning Master’s Program specialization. He lives in North Vancouver, B.C., with his family. He can be reached at [email protected] or [email protected]. plan canada | WINTER · HIVER 2016

837173_McElhanney.indd 1 15/10/16 1:54 AM SUITE DE LA PAGE 13 un programme spécialisé en l’importance et l’immense potentiel des peuples autochtones, diversifier leurs aménagement des peuples résultats d’aménagement. méthodes et leurs compétences et autochtones au SCARP, afin d’inspirer Nous honorons les processus tirer parti des outils et mécanismes les étudiants de cycle supérieur en et les systèmes d’aménagement propices à la réconciliation. Nous urbanisme désireux de travailler dans des peuples autochtones en cette vivons ce processus de réconciliation, le domaine de l’aménagement des période de réconciliation, qui offre ensemble, autochtones et non peuples autochtones. l’occasion d’apporter des changements autochtones. Une profonde conscience, La rareté de l’aménagement transformateurs et promeut une une bonne compréhension et un urbain des collectivités autochtones, meilleure compréhension. Du soutien, effort soutenu sont nécessaires pour notamment l’absence de relations des processus, des mécanismes et que l’aménagement des peuples intergouvernementales entre les des outils sont nécessaires afin de autochtones soit mis à l’avant-plan niveaux fédéral, provincial et municipal passer d’un climat d’ignorance et de des initiatives d’aménagement et dans la province de Québec est conflits à un climat de compréhension de développement; il ne s’agit pas examinée par Piché. Ce dernier et de coopération mutuelles. Pour d’un événement ou d’une stratégie croit qu’il y a des raisons et des respecter l’aménagement des peuples uniques, mais plutôt d’un appel aux occasions suffisantes du point de autochtones, les urbanistes doivent actions continues qui requiert du vue professionnel, éducatif et de la connaître l’histoire politique et sociale courage et comportent des risques. recherche pour faire face à ces défis des peuples autochtones, de même La présente édition de Plan Canada d’aménagement tout en respectant la que le contexte juridique qui régit le est une célébration des pratiques présence des Autochtones au Québec. niveau d’autonomie et de contrôle. d’aménagement des peuples Les besoins de conformité avec Les urbanistes doivent apprendre à autochtones, des changements et de la le Plan régional du bras sud de la respecter et à intégrer des façons d’être façon dont cela se fait. ■ rivière Saskatchewan et la collecte de et de savoir; pour respecter la façon Merci à tous les membres de SCAPA : données sur les ressources historiques dont les processus d’aménagement Jon Frantz, Karin Kronstal, P. Leigh Whyte, et leur utilisation sur le territoire des peuples autochtones sont articulés David Stinson and Gillian McKee. traditionnel du peuple des Pieds-Noirs, et pour reconnaître et comprendre JEFF COOK a été président national de ont donné l’occasion à la ville de la façon dont les connaissances sont SCAPA depuis 2011. Il est le principal de Lethbridge de forger de nouvelles mises en pratique et protégées. Beringia Community Planning Inc. et un relations avec les peuples autochtones Les urbanistes ont une chance membre de la faculté à l’Université de la tout en respectant les appels à unique et une responsabilité Colombie-Britannique dans la spécialisation l’action de la Commission de vérité et grandissante en terme de du Programme de maîtrise en planification réconciliation, ainsi que les objectifs développement de leurs capacités, communautaire autochtone. Il vit à North de l’UNDRP. Stein et ses collègues font y compris accroître leurs compétences Vancouver, avec sa famille. [email protected] état de ce processus fructueux. culturelles en aménagement des ou [email protected]. Enfin, Martinson et ses collègues mentionnent qu’en travaillant selon une approche en partenariat d’aménagement en matière de santé et de mieux-être des écosystèmes, l’aménagement en santé au 15 niveau de la collectivité informe l’aménagement en santé aux niveaux régional et provincial dans un contexte autochtone. Ces articles décrivent la réconciliation en termes concrets et font état des occasions qui se présentent aux urbanistes dans leurs rôles en constante évolution. En reconnaissant que l’aménagement n’est pas qu’un acte technique, mais qu’il y également un volet social, politique, écologique et culturel (à différents niveaux et selon des contextes différents), nous soulignons plan canada | WINTER · HIVER 2016

836112_Rick.indd 1 15/10/16 1:38 am Privileging INDIGENOUS Knowledge BY PATRICK STEWART, LUUGIGYOO (NISGA`A), PHD, ARCHITECT AIBC, MRAIC, LEED®AP AND ELADIA SMOKE, KAASHEGAABAAWEAK (ANISHINAABE), OAA, MRAIC, LEED®AP

he first meeting of the RAIC Indigenous Task Force took Nations in this country, with over 700 place on June 9 in Nanaimo, B.C., on Snuneymuxw territory, First Nations communities and over during the Royal Architectural Institute of Canada’s (RAIC) 50 different languages spoken. T In addition to First Nations 2016 Festival of Architecture, Connexions. It was the largest peoples, there are also Inuit and gathering ever in Canada: nine First Nations and Métis architects, Métis peoples. Canada defines all of 12 total people in attendance. Some of us were meeting each us in the Constitution as Aboriginal. other for the first time. Internationally, however, Indigenous is the term the United Nations uses to Patrick Stewart and Eladia were so many questions. We suddenly refer to “peoples who have a historical Smoke were two of several Métis realized that what is happening right continuity with pre-invasion and and Indigenous Festival presenters now is historic. Together, we have pre-colonial societies distinct from other who gathered to share our thoughts. an opportunity that no one has ever parts of the society now prevailing on Patrick Stewart is an Associate seen or imagined before. How will those territories. They form at present Professor at the McEwen School of Indigenous cultures continue to shape non-dominant sectors of society and Architecture of Laurentian University Canada? What will this look like, how are determined to preserve, develop and principal of Patrick R. Stewart will it grow? and transmit to future generations their Architect. He is also the chair of the After our formal presentations, ancestral territories, and their ethnic RAIC Indigenous Task Force. Eladia the audience wanted to keep talking. identity, as the basis of their continued Smoke is a Master Lecturer at the So we’ve collected the most burning existence as peoples, in accordance McEwen School of Architecture of questions, plus some questions we just with their own cultural patterns, social Laurentian University and principal really wanted to answer, in an interview institutions and legal system.” of Smoke Architecture, as well as a format. Please enjoy, and if you have ES: I’m Anishinaabe from member of the RAIC Indigenous Task thoughts, questions, or perspectives Obishikokaang (Lac Seul First Force. Patrick and Eladia’s contribution to share, the RAIC Indigenous Task Nation, with family in Alderville First was a presentation titled “Privileging Force wants to hear from you! We Nation, Winnipeg, and Toronto, Indigenous Knowledge”. need public pressure on all levels plus some other places). I am We were expecting to share some of government to fulfill obligations, Waabishki-Ma’iingan doodem, White of what we know and pick up a few address human rights issues, and close Wolf clan. My Anishinaabe-wiinzowin 16 pointers ourselves. We didn’t realize those critical gaps that continue to cost is KaaSheGaaBaaWeak, which how hungry people were for dialogue. lives in too many of our communities. means “she’s fast!” That is, she Understandably, we’re all curious moves or apprehends quickly. Chi about what’s next after the fantastic miigwetch to Elder Ralph Johnson IT’S INTERESTING THAT YOU HAD work by the Truth and Reconciliation | PaShawOneeBinace for finding A SESSION ON INDIGENOUS Commission of Canada. What will that beautiful name, even if my poor ARCHITECTURE. HOW DO WE implementation involve? How do husband waiting in the car for me feels REFER TO INDIGENOUS PEOPLES we start? it might tend toward the symbolic. IN THIS COUNTRY? A little over a week later, at the If in doubt, it’s okay to ask, what’s June 21 Aboriginal Day festivities PS: I am a citizen of the Nisga’a Nation, your home community? Which nation is hosted by the National Capital and my hereditary name is Luugigyoo, that? Avoid defaulting to a more general Commission in Ottawa, we presented which means “calm waters”. I am a term when a more specific one is once more about the importance member of the killer whale House available. Many people feel those more of Indigenous voices within and of Daaxan of the Nisga’a Village of general terms are a sign of colonialism, throughout Canadian architecture. Gingolx. I come from one First Nation, but the names we call ourselves work We barely made it off the stage. There and there are over 50 different well. Remember to share your story, too! plan canada | WINTER · HIVER 2016 protocol to acknowledge the are forms of knowledge that reflect TELL US ABOUT RAIC’S people and the land upon which the capabilities, priorities and value INDIGENOUS TASK FORCE. we are meeting. At the conference, systems of the Nisga’a. PS: Many government-built settlements being visitors upon the land of the ES: I’m acquainted mainly with for Canada’s Indigenous communities Snuneymuxw First Nation, it was right Anishinaabe teachings from Elders in have been compared to Third World that we acknowledged their territory. Northwestern Ontario and Manitoba. situations. They often lack adequate I also introduced myself in Nisga`a, Different nations, regions, and Elders housing and basic municipal services locating myself within my culture in have different teachings to offer. such as fire-fighting and clean resistance to continuing colonization. One way to organize our thoughts drinking water. These settlements are ES: It is important to recognize is the medicine wheel. “Medicine” is frequently affected by preventable our hosts and ourselves as visitors to translated from the Anishinabemowin natural disasters, such as seasonal the land. Respect is one of the seven word Mshkiki, which means “strength flooding. Spaces and structures that Mishomis (Grandfather) teachings. from the earth”. In the medicine wheel, support traditional cultural practices, One of the ways to show respect each direction is associated with and therefore Indigenous identity, are is to honour the names we have an element of life: East represents seldom provided. for our lands and ourselves. The elements of the child; South, youth; It is the position of the RAIC that relationship between the land and West, adult; and north, Elder. There the correction of these conditions its people is strong, and we honour are actually seven, including up is integral to the effort to achieve this connection. (sky, respect); down (Mother Earth, reconciliation between Indigenous generosity); and centre (oneself, love.) and non-Indigenous communities/ Even though these concepts might YOUR TALK WAS TITLED, peoples and that the Indigenous be organized separately, all elements “PRIVILEGING INDIGENOUS peoples themselves must lead are in constant interplay throughout KNOWLEDGE”. WHAT IS the discussion. The task force life. The medicine wheel is a shorthand INDIGENOUS KNOWLEDGE? investigates quality-of-life issues in for the relationships that exist between Indigenous communities, and supports PS: The best definition is perhaps the people, the earth, our place in the advocacy that privileges appropriate, one developed by the United Nations world, and within each one of us. sustainable, and culturally sensitive in Article 31.1 of the Declaration of design solutions. the Rights of Indigenous Peoples. It HOW WOULD YOU DEFINE ES: This task force’s mission is states that: INDIGENOUS ARCHITECTURE? to empower Indigenous voices in Indigenous peoples have the right architecture. We intend to bring the to maintain, control, protect and PS: Conceptually, as Indigenous art authority over architectural projects develop their cultural heritage, is recognized as works produced back into our communities, especially traditional knowledge and by Indigenous artists, similarly over essential infrastructure. We will traditional cultural expressions, as Indigenous architecture should be attract young Indigenous people well as the manifestations of their recognized as works produced by into architecture by establishing a sciences, technologies and cultures, Indigenous architects. network of peers and support, and by including human and genetic ES: Indigenous design is varied and celebrating successes so far. resources, seeds, medicines, is unique to each region. Our forms Canada is one of 90 countries of knowledge of the properties of grow out of kinship principles: us 190 worldwide that the United Nations fauna and flora, oral traditions, and our families and related nations, 17 recognizes have intact Indigenous literatures, designs, sports and us and the land. For instance: Cree, populations. When Indigenous forms traditional games and visual and Anishinaabe, and Haudenosaunee and world-views influence architecture, performing arts. They also have the are adjacent nations, but have very those relationships between place, right to maintain, control, protect different teachings and architectural climate, and people will create a truly and develop their intellectual forms. An Indigenous approach to new environment, one that’s never property over such cultural architectural design is like water been seen before. heritage, traditional knowledge, and flowing across the land: it cycles traditional cultural expressions. between the ocean, sky, land, rivers, As a Nisga’a person, the Ayuukhl and back, but the most interesting YOU EACH STARTED YOUR TALK Nisga’a is the law. The Ayuukhl deals part is what it creates on the way. BY ACKNOWLEDGING THE with codes of moral behaviour, nature Water forms and is formed by the TRADITIONAL TERRITORY. CAN of society, prohibitions, enforcement places it goes, it becomes one with YOU TELL US MORE? and regulation of behaviours, land, the life it encounters and allows PS: I was taught by my Elders in the and resources. They deal with the everything it touches to flourish: that’s Nisga`a Nation that it is respectful experiential reality of the world. They what we try to emulate. ■ plan canada | WINTER · HIVER 2016 (RE)IMAGINING OUR COMMUNITY Changing the Planner and Planning with First Nations Youth

BY SHELAGH MCCARTNEY D.DES. OAA, MRAIC, ELIZABETH ATLOOKAN, LOUIE SUGARHEAD, JEFFREY HERSKOVITS, KATHRYN TRNAVSKY

SUMMARY Many of Canada’s Indigenous RÉSUMÉ Bon nombre de collectivités des Premières Nations du communities are young and rapidly growing. The Canada sont jeunes et en pleine croissance. Les décisions à long long-term planning decisions being made in these terme en matière d’aménagement prises par ces collectivités communities will have the most significant impact auront un impact significatif sur cette jeune population. Le projet on this youthful population. (Re)Imagining Our (Re)Imagining Our Community (Réinventons notre collectivité) Community is a partnership based in est un partenariat établi au sein d’Eabametoong First Nation Eabametoong First Nation which centres these (Première Nation d’Eabametoong) dont l’objectif est d’impliquer young community members in the development les jeunes membres de la communauté dans le processus process. Working at the theoretical intersection d’élaboration. Une stratégie destinée à identifier les préférences, of Indigenous Planning and youth engagement, a les priorités et la vision des jeunes est élaborée à la croisée des strategy is developed to identify the preferences, chemins théorique entre l’aménagement des peuples priorities and visions of youth. Breaking down the autochtones et la mobilisation de la jeunesse. Rejetant la nature textual nature of existing processes, this model théorique des processus existants, ce modèle s’appuie davantage relies on storytelling, drawing, mapping and other sur la narration, le dessin, la cartographie et sur d’autres médias media to engage participants. pour encourager la participation des jeunes.

Community leadership in “inequitable and discriminatory INTRODUCTION Eabametoong recognized that provision of child welfare services.”4 Eabametoong First Nation, situated consequences of community Numerous inquests, court cases and 300km northeast of Thunder Bay, is development and resource extraction other policy documents recognize a community on the brink of change. will be felt predominantly in the the link between persistent housing The Ring of Fire Regional Framework long-term. Yet, community youth shortages, unsafe drinking water and Agreement and accompanying remained largely unaccounted for other infrastructure shortcomings and secretariat, the Growth Plan for in the formal planning processes. the dramatic health outcome gaps Northern Ontario and the Far North Building on former partnerships with that youth face.5 They are already 18 Act have ushered in a new era of Ryerson University, (Re)Imagining paying the price for ineffective provincial planning regimes to our Community centred youth in the government policy. accompany ongoing on-reserve planning process, building a platform federal jurisdiction. Eabametoong has through which they could share their THEORETICAL INTERSECTIONS become a site of many interwoven visions for the future. local and regional planning initiatives. Practicing at the intersection Policies are developed in recognition of Indigenous Planning and INDIGENOUS YOUTH of “long-standing socio-economic youth-focused planning theories, gaps”1, and a need for “culturally Like many Indigenous communities, this work is participatory, interactive sensitive, inclusive and meaningful Eabametoong’s population is and uses mixed media. Indigenous opportunities for the individual First young and growing rapidly. These Planning exposes the ways existing Nation communities to participate”2 youth receive disproportionately planning structures marginalize but exist within a climate of low funding and programming in Indigenous voices through a political expediency, focused on education and health3 while also reliance on textual mediation creating clarity in the resource disproportionately being made and technical superiority, which extraction process. wards of the state through the undermine alternative worldviews plan canada | WINTER · HIVER 2016 Youth recording of important community locations and travel patterns.

and perspectives. Asymmetrical relations, characteristic of the colonial state, are exploitative,6 requiring an ever-increasing consumption of land, pushing borders to grow empire.7 Indigenous Planning theory uncovers mechanisms for altering this dynamic, focusing on the emancipatory potential of planning8 and planning’s ability to be an instrument of hope.9 Such a transformation requires a recognition of the processes creating the existing marginalization of Indigenous people, those Hayden King describes as being, “clear that their design, structure and implementation are so steeped in Youth brainstorming future community technical language and procedure uses and programmes. and bureaucracy that Indigenous peoples have immense difficulty accessing or participating in them in earnest.”10 Breaking this system and replacing it with local control also relies on ongoing reflexivity on the part of the outside planner. A community-driven, 19 user-focused model becomes even more important when working with youth. Excluding youth from decision-making processes creates a disenfranchisement and marginality which stays with them through adulthood, a process “greatly magnified for children who are already distant from the mainstream due to poverty, race, or ethnicity.”11 Existing marginality in the Canadian planning process with Indigenous Peoples is exacerbated with children and youth as they witness their Youth identifying preferences in communities being controlled by development with facilitator. plan canada | WINTER · HIVER 2016 INDIGENOUS PLANNING EXPOSES THE WAYS EXISTING PLANNING STRUCTURES MARGINALIZE INDIGENOUS VOICES THROUGH A RELIANCE ON TEXTUAL MEDIATION AND TECHNICAL SUPERIORITY, WHICH UNDERMINE ALTERNATIVE WORLDVIEWS AND PERSPECTIVES.

external forces. (Re)Imagining learning and amplifying youth voices to be the agenda setters. Listening, Our Community re-inverts control, policy makers and other professionals. learning and sharing are useless if the rejecting manipulation and allowing issues being addressed are not those the process and its focus issues to be Rejecting Perpetual they are concerned about. Reactive determined by youth.12 Capacity Development planning – limiting input to specific Breaking the stakeholder dichotomy timely issues with which youth were and producing equity in the planner- not previously engaged – amounts PRACTICING DIFFERENTLY community member relationship, the only to tokenism, not meaningful Working together with Eabametoong planner relinquishes the position of consultation. Instead, we look to youth is an ongoing process. sole-expert within the partnership. In identify with each group the series of Below, we offer some principles doing so, capacity development as values that they hold, or core areas the partnership has developed, and an outcome is negated, and is instead of interest, which inform any project. outline some challenges and risks for understood as something mutually The two groups partnered with in this an outside planner. We understand occurring. The desire to “teach” project identified five inter-connected the role of external planners to be planning continues a colonial legacy, core values: facilitation and synthesis of community essentializing technical knowledge • Family stories and visions, to encourage and erasing local understandings of • Land discussions where they may not the land and community planning. • Belonging have previously existed, and to bring Teaching is replaced by listening, • Safety the community visioning process to shifting the burden towards the • Fun individuals, in this case youth, who it planner. Removing the technical Identified values act as an entry would not otherwise reach. and textual-barriers of the planning point into discussions about a specific process allows the planner to learn issue, creating a lexicon, determined Breaking the Stakeholder Dichotomy directly from the community member, by the youth, through which to Interactions between all stakeholders a process John Friedmann describes analyze community development. in this partnership follow the saying, “face-to-face interaction in real It also allows for creative solutions same cycle: listen, learn and share. time is the new model of planning”13; to emerge, targeting a specific Countering the linear nature no longer requiring knowledge be core value: listen, learn and sharing of dividing stakeholders into translated through an epistemological sessions can be held about how contributors and beneficiaries, system it does not belong to. particular places can be created to dichotomy is replaced with mutuality. Creating equity is equally about maximize, for example, a sense of We found Indigenous communities process and deliverables. Technical belonging. Youth then use planning are too frequently understood as and textual barriers not only limit how as the future-focused, hope-giving beneficiaries to whom services must Indigenous youth participate but also tool it is theorized as, while allowing 20 be provided. Instead, we formalize the serve to delegitimize their creations. creativity and design to be solutions concept that all participants can, and (Re)Imagining Our Community looks to to existing problems. must, learn from one another. Valuing place equal value on hand-drawn maps, Sessions were held focusing on the opportunity to listen and then stories, pictures and photographs the implementation of core values share our learning builds relationships as digital, scientific documentation. into two areas of need: a multi-use and networks that can last beyond the Validity should not be derived from community centre and housing. community meeting, design workshop the mode of presentation but rather Youth described a desire for or classroom session. the value to the community member. specifically designated spaces within Sharing grows the project’s Professionalization of community future developments: for example, influence beyond the limited bounds visioning serves only to disenfranchise designated youth-rooms within a of direct participants. Youth are those already most ignored. multi-use facility. Youth desired a encouraged to take their visions sense of belonging as they designed into their homes, friend groups and Value Based Community the facility, specified rooms and the broader community, while the Development specified programming and contents planner’s responsibility extends In discussing the future of their through visioning. The documented outside the community, sharing their community with youth, they must youth vision was then given to plan canada | WINTER · HIVER 2016 community leadership to embody ability to create change is very small. University. She can be reached at shelagh. these desires. Sharing – the third pillar our process [email protected]. Similarly, the role of bedrooms – seeks to mitigate this limitation by ELIZABETH ATLOOKAN has served as in providing safety and security creating an ongoing conversation Chief of Eabametoong First Nation since first demonstrates an area of control in amongst community members, elected to this role in 2013. housing currently utilized by youth service providers and government is a councilmember not being fully conceptualized actors, building momentum towards LOUIE SUGARHEAD for Eabametoong First Nation with a special in the housing discussion. Youth a decolonized process, where focus on the youth portfolio. demonstrated through drawings community-driven decisions and and stories the small-scale design designs can widely be recognized JEFFREY HERSKOVITS and KATHRYN decisions they were making as solutions. TRNAVSKY are graduates of Ryerson which provided this security and University’s school of Urban and Regional Planning. Both currently work as associates belonging, an example of small CONCLUSION at +city lab and can be reached at jeffrey@ scale interventions already being pluscitylab.com and [email protected]. undertaken by youth which can be Eabametoong First Nation is replicated in new spaces. progressively addressing the potential REFERENCES changes to its environment, land 1. Ontario. Ministry of Infrastructure & Ministry and community. Leadership has LIMITATIONS AND of Northern Development, Mines and involved youth in these important Forestry. (2011). An Introduction to the OPPORTUNITIES Growth Plan for Northern Ontario. decisions, and using the theoretical 2. Regional Framework Agreement. Accessed Defining Success: Local needs, tools of Indigenous planning and at: http://www.mndm.gov.on.ca/sites/ default/files/rof_regional_framework_ Time and Relationships youth-focused consultation, this agreement_2014.pdf. Essential to the process described partnership creates a model for this 3. Ontario. Office of the Chief Coroner. (2016). Jury Recommendations based on Thunder above, both in theory and type of engagement. The pattern of Bay Inquest. our partnership, is time. The listening, learning and sharing ensures 4. First Nations Child and Family Caring Society of Canada and Association of First Nations v. disenfranchisement experienced by that equity is created in planning Attorney General of Canada. CHRT, 2016. Indigenous youth is a direct result of with youth. Rejecting the planner T1340/7008. 5. See above two references as well: Canada. an ongoing colonial planning policy as sole-expert and instead building Standing Senate Committee on Aboriginal regime. Countering this system with their role as a mutual participant Peoples. 2015. On-Reserve Housing and Infrastructure: Recommendations for Change. a planning process focused on their empowers the planner, to share their 2d sess., 41st Parliament, 2015; Mushkegowuk knowledge and values requires a learning and the creative visions of Council. 2016. Nobody Wants to Die. They Want to Stop the Pain: The people’s inquiry period of deconstruction. Apathy youth as solutions to problems. (Re) into our suicide pandemic; Truth and towards the planning process does Imagining Our Community provided Reconciliation Commission of Canada. 2015. Truth and Reconciliation Commission of not disappear when an outside a base for an ongoing relationship Canada: Calls to Action; amongst others. planner arrives or new partnership with community youth, modelling how 6. Hibbard, Michael, Lane, Marcus B. & Rasmussen, Kathleen. 2008. “The Split begins in the community. As with their values can be injected into the Personality of Planning: Indigenous Peoples issue identification, success cannot be community development process. and Planning or Land and Resource Management.” Journal of Planning Literature. measured by targets set by an outside 23(2): 136-151. planner or agency. Success must be 7. Roy, Ananya. 2006. “Praxis In the Time of ACKNOWLEDGEMENTS Empire.” Planning Theory. 5(1): 7-29. defined within the community, and 8. Ugarte, Magdalena. 2014. Ethics, Discourse, defined by what the youth would like The authors would like to thank or Rights? A Discussion about a Decolonizing Project in Planning. Journal of Planning 21 to achieve. Planners must champion Eabametoong First Nation, John C. Literature. 29(4): 403-414. these measures, looking to facilitate Yesno Education Centre, Ryerson 9. Forester, John. 1982. “Planning in the face of Power.” Journal of the American Planning the listen-learn-share cycle to University Dean of the Faculty of Association. 48(1): 67-80. maximize benefits. Community Services and the J.W. 10. King, Hayden. 2010. “Give it Up: Land and resource management in the Canadian North: McConnell Family Foundation for their Illusions of Indigenous power and inclusion.” Recognizing Limitations belief in this project and partnership, In Canada’s North: What’s the plan? The 2010 CIBC Scholar-In-Residence Lecture. Ottawa, (Re)Imagining Our Community is a and the anonymous referees for Ontario: The Conference Board of Canada. small-scale intervention engaging their comments on an earlier draft of 11. Sutton, Sharon Egretta & Kemp, Susan P. 2002. “Children as Partners in Neighborhood youth in one Indigenous community this article. ■ Placemaking: Lessons from intergenerational currently going through a period design charrettes.” Journal of Environmental DR. SHELAGH MCCARTNEY received her Psychology. 22: 171-189. of change. The project’s resources Doctor of Design in Urban Planning and 12. Mullahey, R. K., Checkoway, B. & Susskind, Y. limited the discussion to only two Design from Harvard University Graduate (1999). Youth Participation and Community Planning. Chicago, Illinois: American main groups of youth over an School of Design. She currently lives in Planning Institute. eight-month period. Given the long Toronto where she is director of the +city 13. Friedmann, J. (1993). “Toward a Non- Euclidian Model of Planning.” Journal of the lab and an assistant professor at the School history and weight of planning’s American Planning Association. colonial legacy, this intervention’s of Urban and Regional Planning at Ryerson 59(4):482-484. plan canada | WINTER · HIVER 2016 TREATY PRINCIPLES ARE PLANNING PRINCIPLES Learning from the Experiences of Manitoban Planning Practitioners

BY MADELEINE KOCH MCP, MCIP CANDIDATE AND JANICE BARRY PHD, MCIP CANDIDATE

SUMMARY Drawing on the results of a recently RÉSUMÉ Cet article, s’inspirant des résultats d’un mémoire de completed Master’s thesis, this paper examines maîtrise récemment achevé, explore la façon dont les urbanistes how local government planners can support des gouvernements locaux peuvent soutenir la réconciliation des Indigenous reconciliation. It frames this work collectivités autochtones. La présente tâche est fondée selon according to four Indigenous principles contained quatre principes autochtones que l’on retrouve dans de in many of the original treaties, and reinterpreted in nombreux traités anciens et qui ont été réinterprétés dans des more contemporary publications by the Truth and publications plus récentes par la Commission de vérité et de Reconciliation Commission of Canada and the réconciliation du Canada et la Commission royale sur les peuples Royal Commission on Aboriginal Peoples. Mutual autochtones. Les principes clés adoptés pour entretenir des recognition, mutual respect, sharing, and mutual relations positives avec les Premières Nations sont : la responsibility are positioned as key principles for reconnaissance réciproque, le respect mutuel, le partage et la facilitating positive relationships with First Nations responsabilité commune. Ces mêmes principes s’appliquent aux and for planners to contribute to our ongoing and urbanistes afin qu’ils contribuent à nos responsabilités collectives collective responsibilities as “treaty people”. et continues en tant « qu’autochtones visés par un traité ».

OG UTU he relationship between Indigenous and non-Indigenous peoples EC NI M AL R T R L I O E S is at a turning point, so much so that the recent Truth and A N P U E T

Reconciliation Commission (TRC) has published several “calls to C

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action” for governments and agencies with a role to play in repairing

the relationship with Indigenous peoples of Canada. While much of the

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required reconciliation work will take place at the national and provincial

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levels, there are also implications for local government planners. They S

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are often at the forefront of the relationships that arise as First Nations

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acquire lands adjacent to or within established local government

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jurisdictions and add them to their existing reserve lands. These

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“urban reserves” open up planning coordination challenges as well as opportunities for collaboration, which is not always straightforward work. The two parties may have limited experience and practical guidance on how to navigate their relationship. This article explores how the Indigenous principles contained in many of the original treaties, and reinterpreted in more contemporary publications by the Truth and Reconciliation Commission of Canada and the Royal Commission on Aboriginal Peoples,2 can inform and enrich these relationships.

We draw on the results of a emerging planning relationships priorities, values, and the essence of recently completed Master’s thesis between municipalities and First the problems planning practitioners by co-author Koch3 that used Nations. As the prominent U.S. face.6 The six interviewees in semi-structured interviews, often of planning scholar John Forester Koch’s thesis7 included First Nation one hour or more in length, to collect explains, the goal of these interviews representatives, as well as planning “practice stories”4, 5 about Manitoban is not simply to relay facts; a “practice practitioners working at both the practitioners’ experiences with the story” is intended to reveal the provincial and local government plan canada | WINTER · HIVER 2016 scale. These two scales of analysis aspects of treaties received limited LAND USE PLANNING, LOCAL were necessary, as the Province of popular attention; however, Indigenous GOVERNMENTS AND FIRST Manitoba provides planning support legal scholarship suggests that such NATIONS: RENEWING to many of Manitoba’s small rural interpretations are just as legitimate as RELATIONSHIPS & ENACTING municipalities who lack an in-house the Eurocentric legal interpretations RESPONSIBILITIES? professional planner, but who may be that have dominated for so long.13,14 As in close proximity to a First Nation. A discussed below, more contemporary Given the emphasis on land in each private planning consultant was also documents about facilitating renewed of these four principles, land use interviewed as part of this research, relationships with First Nations largely planners – and the organizations they though he was reflecting on his correspond with the early treaty work for – can play a significant role in previous position as a planner for a principles based in Indigenous law. renewing relationships with Indigenous large municipality. The principles outlined in RCAP’s peoples. While none of the Manitoban In this article, we focus on a small 1996 document Looking Forward planners that took part in the study portion of the study results and use Looking Back and the “calls to action” made explicit reference to the RCAP the strategies and examples shared associated with the TRC’s 2015 Final principles, their responses suggest in these practice stories to illustrate Report each provide guidance for that ideas of mutual recognition, how these planning relationships can achieving the same goal: reconciliation mutual respect, sharing and mutual be understood as enactments of our between Indigenous peoples, responsibility provide useful guidance ongoing and collective responsibilities non-Indigenous communities, and for the emerging planning relationship as “treaty people”. In using this Canadian governments (including local between First Nations and local phrase, we acknowledge that not all governments). The RCAP document governments, particularly when there Indigenous peoples in Canada were sets forth four overarching principles have been poor histories of working signatories to a treaty, and that there is for a renewed relationship, and the together. Their responses suggest a long and ongoing history of broken TRC report echoes and endorses that this relationship begins with a treaty promises. Notwithstanding these. They are: Mutual Recognition, willingness to mutually recognize one these issues, the idea that “we are Mutual Respect, Sharing, and another as a long-term governance all treaty people”8 reminds us that Mutual Responsibility. The principle partner, not as another “stakeholder” these agreements to share land and of Mutual Recognition centres on that needs to be accommodated. These resources and to maintain respectful recognition of equality, coexistence, planners’ experiences also point to the governance relations extend well and self-government15 meaning the importance of subtle, yet powerful, beyond Indigenous peoples and two parties are to operate alongside shifts in how planners conceive and the Crown. one another in a spirit of coexistence enact their (treaty) responsibilities. while still retaining their own culture, Several of the planners included in governance, and use of lands for this study highlighted the importance TREATY PRINCIPLES AS specific purposes. Mutual Respect of spending time to develop positive RELATIONSHIP PRINCIPLES recognizes that people of all cultures relationships in advance of a specific Although the Canadian Government warrant respect “simply by virtue of project proposal. Small interventions, tends to regard treaties as one-time their humanity”16 and requires that like regular lunch meetings, were seen land surrenders, Indigenous peoples respect must extend not just to human to develop mutual understanding and often view these agreements as living beings, but to nature and land as well. respect, making subsequent projects “relationship documents”9 intended The principle of Sharing was a major run more smoothly. Others spoke to guide the two parties through an concept in treaties – it was intended about the importance of avoiding an 23 equal relationship based on principles that treaties were agreements for “expert attitude” and approaching this of coexistence, sharing, respect and lands to be shared between settlers work with humility, honesty, and an deep mutual responsibility. This latter and First Nations (an intention that interest in learning their partner First perspective is grounded in Indigenous was not properly fulfilled). RCAP Nation’s story (while also respecting law, which can be conceived as the emphasizes that sharing must start that it may not always be appropriate customs and conventions that guide from a basis of equality between for these stories to be shared). Early Indigenous peoples’ relationships to parties, meaning that First Nations on in the relationship, it is particularly one another and to the natural world. must regain access to a reasonable important for planners to use the Indigenous law was very much a part portion of their ancestral lands, and soft skills of community engagement, of the treaty-making process, in that that sharing should increase their adopting an open and iterative mode of the terms of the relationships were ability to form economic self-reliance. communication. However, it was noted formalized through ceremonies and The principle of Mutual Responsibility that some organizations undervalue intended to be revisited and reaffirmed requires parties to act in a spirit of these skills, which can impact planners’ through further ceremony on an intrinsic responsibly towards each ability to start new relationships on the ongoing basis.10,11,12 These relational other, and towards shared land. right foot. plan canada | WINTER · HIVER 2016 As some of the planners included and facilitated by planning theories, regional district in British Columbia. She may be reached at [email protected]. in the study found, mutual respect principles and practices that will and recognition may necessitate already be quite familiar to any JANICE BARRY is an Assistant Professor in the unexpected alterations to project planning practitioner – from general Department of City Planning at the University timelines to allow for culturally collaborative planning principles to the of Manitoba, where she teaches a community- important events and practices. Rather simple human act of regularly getting based studio involving several First Nations. She than considering this a disruption, one together for lunch meetings. However, also maintains an active research program on the recognition of Indigenous rights and title in planner considered their experience a productive and respectful engagement both urban and natural resource planning. She “refreshing” moment of cross-cultural in these more difficult and potentially may be reached at [email protected]. learning, in that some things in life contentious aspects of the emerging should be more important than work. planning relationship between First Building flexibility into mutually agreed Nations and municipalities may require REFERENCES upon work plans can accommodate additional guiding principles and ethical 1. Truth and Reconciliation Commission. (2015). unforeseen events, alleviate tension, perspectives. We are certainly not Truth and Reconciliation Commission: Calls to Action. Retrieved from http://www.usip.org/ and keep projects on track. One local alone in suggesting that more attention sites/default/files/file/resources/collections/ government hired an Indigenous person needs to be paid to these issues. commissions/Peru01-Report/Reru01-Report_ Vol1Ch1-4.pdf to work on certain cultural projects, Several organizations have published 2. Royal Commission on Aboriginal Peoples. an initiative that may help to facilitate guides to assist with the development (1996). Looking forward looking back: Building the foundation of a renewed relationship (Part further cross-cultural understanding and navigation of relationships 3). Retrieved from http://caid.ca/ and learning between parties. between local governments and First RepRoyCommAborigPple.html 3. Koch, M. (2016). Manitoba Relationship Stories: Although mutual respect and Nations.17,18, 19 But, as this research When First Nations and Local Governments recognition are foundational elements suggests, planners do not necessarily Plan Together. Unpublished Master’s Thesis, University of Manitoba. of Indigenous reconciliation and need new principles or guides to 4. Forester, J. (1993). Learning from practice positive intergovernmental planning support this work; they need to learn stories: The priority of practical judgment. In F. Fischer, & J. Forester (Eds.). The argumentative relationships, there must also be more about treaties and the relationship turn in policy analysis and planning (pp. 186– willingness to share power and exercise principles that are expressed in them, 209). Durham: Duke University Press. 5. Forester, J. (2012). Learning to improve mutual responsibilities. When applied and that are mirrored in more recent practice: Lessons from practice stories and to planning, these two remaining RCAP documents like RCAP and TRC. practitioners’ own discourse analyses (or why only the loons show up). Planning Theory & principles call for a shift in thinking. As evidenced by the work of Practice, 13(1), 11–26. Urban reserves need to be seen not as a Manitoban planning practitioners, 6. Forester, J. (1993). 7. Koch, M. (2016). potential loss to municipal tax revenue some of these principles are already 8. Treaty Relations Committee of Manitoba. or land use oversight (since new and being enacted in planning practice, (2016). Treaty Relations Committee of Manitoba – Welcome. Retrieved from www.trcm.ca. existing reserve lands are federal lands to the benefit of intergovernmental 9. Craft, A. (2013). Breathing life into the Stone that fall outside of a local government’s relationships. We, therefore, challenge Fort Treaty: An Anishinabe understanding of Treaty One. Saskatoon: Purich Publishing Ltd. jurisdiction), but as an opportunity to planning educators to explore ways 10. Miller, J. R. (2009). Compact, contract, pursue mutually beneficial development to incorporate Indigenous histories, covenant: Aboriginal treaty-making in Canada. Toronto: University of Toronto Press. projects. Although the creation of new laws and relationship principles into 11. Craft, A. (2013). arrangements to support the sharing their curriculum and suggest that this 12. Asch, M. (2014). On being here to stay: Treaties and Aboriginal rights in Canada. Toronto: of economic benefits and political knowledge ought to be considered University of Toronto Press. responsibilities are usually outside of an a core competency for planners, 13. Borrows, J. (1994). “Constitutional law from a First Nation perspective: Self-government and individual planner’s scope of influence, one that needs to be championed at the Royal Proclamation.” U.B.C. Law Review, 24 one of the practice stories included in the institutional level. We also ask 28(1), 1–47. 14. Borrows, J. (2002). Recovering Canada: The the research illustrated how a politically professional planners to dedicate just resurgence of indigenous law. Toronto: savvy planner was able to harness a small portion of their Continuing University of Toronto Press. 15. Royal Commission on Aboriginal Peoples. the power they did have to change Professional Learning (CPL) to reading (1996). the course of events over a specific the RCAP and TRC reports and 16. Ibid., p. 649 17. Federation of Canadian Municipalities. (2012). development project and to counteract exploring the ethical and practical First Nations - municipal community systemic racism. meaning of mutual recognition, infrastructure partnership project (CIPP) CIPP joint community sustainability planning (CSP) As the practice stories included in mutual respect, sharing and mutual primer. Retrieved from https://www.fcm.ca/ this research begin to suggest, planners responsibility. As a profession, we Documents/tools/CIPP/CIPP_CSP_Primer_ EN.pdf. can take personal responsibility for need to develop greater awareness 18. Ontario Ministry of Municipal Affairs and facilitating positive relationships with of how treaty principles are, indeed, Housing. (2009). Municipal-Aboriginal relationships: Case studies. Retrieved from First Nations, and local governments planning principles. ■ http://www.mah.gov.on.ca/AssetFactory. can play a clear role in Indigenous aspx?did=677. MADELEINE KOCH is a recent graduate of 19. Union of British Columbia Municipalities, & First reconciliation. These relationships the University of Manitoba’s Master of City Nations Summit. (n.d.). Guide to community can be, and in many cases are forums in British Columbia. Retrieved from Planning Program. She has several years of http://www.fns.bc.ca/C2C/C2CGuide_FINAL. already being, productively framed work experience as a planning technician for a pdf plan canada | WINTER · HIVER 2016 PLANNING IN WAGMATCOOK FIRST NATION WITHIN THE UNAMA’KI DISTRICT OF MI’KMA’KI | Source: Authors, PARTNERSHIP: adapted from http://www. muiniskw.org/index.htm (Creative Commons License) The Wagmatcook First Nation and the “Mi’kmaw Resource Guide” by UNSI, The Native Council of Nova Scotia, and Housing Pilot Project the Confederation of Mainland Mi’kmaq, Eastern Woodland Publishing, 2014. BY ALEXIS MILLER MCP, NATHAN ROTH MPLAN, AND FRANK PALERMO FCIP LPP, FRAIC Wagmatcook is a Mi’kmaw Nation located centrally within the Unama’ki District 25 This graphic article Le présent article graphique porte of Mi’kma’ki, the traditional SUMMARY RÉSUMÉ Mi’kmaw National territory. profiles an ongoing planning sur la relation continue en matière Wagmatcook is a community relationship between Wagmatcook d’aménagement qu’entretient la Wagmatcook with 843 band members; 615 live on-reserve along the shore First Nation and the Cities & First Nation (Première Nation de of the Bras D’Or Lake.1 Environment Unit (CEU) in Wagmatcook) et la Cities & Environment Unit Unama’kik (Cape Breton Island, (l’Unité des villes et de l’environnement) Nova Scotia), highlighted through d’Unama’kik (Cap-Breton, Nouvelle-Écosse) the Wagmatcook Housing Pilot qui se présente sous la forme du projet pilote Project. Utilizing a community- de logement de Wagmatcook. Le projet pilote based planning and design d’habitations adopte une approche en matière approach, the Housing Pilot Project d’aménagement et de conception fondée sur seeks to provide a contextual la collectivité, ayant pour objectif d’offrir une solution to the challenges of solution contextuelle aux défis que présente on-reserve housing in general and le logement dans les réserves, seniors’ housing in particular. particulièrement l’hébergement des aînés. plan canada | WINTER · HIVER 2016 WAGMATCOOK FIRST NATION COMMUNITY PLAN UPDATE COVER | Source: Cities & Environment Unit and Wagmatcook First Nation Wagmatcook First Nation has a long history of initiating innovative community planning projects. The Nation was an instrumental partner on the Joint Community Planning Steering Committee for the award-winning 26 First Nations Community Planning Model (2000) with the CEU. Recognized as a best HOUSING IN WAGMATCOOK FIRST practice by both the Canadian Institute of NATION | Source: Wagmatcook First Nation Planners and UN-Habitat, the Model was first implemented by Wagmatcook in 2002 Like many communities in Canada, First through the development of their first Nations are thinking about ways to ensure Community Plan. Elders and seniors can age in place on-reserve.2 Wagmatcook’s current housing In 2012, Wagmatcook reconnected with stock is predominantly split-level homes the CEU to update and refine their Plan. and three-bedroom bungalows, which are Completed in 2014, the Plan Update not meeting the community’s diverse range reaffirmed the community’s vision, of housing needs. In addition, existing celebrated planning accomplishments housing does not adequately reflect the and set out updated planning priorities for community’s cultural identity as Mi’kmaq. future community development. Housing is essential community infrastructure that supports personal, economic and social wellbeing as well as capacity development. With this understanding, the Housing Pilot Project (HPP) was conceived of as an opportunity to rethink the way housing is planned, designed and (ultimately) built on-reserve. plan canada | WINTER · HIVER 2016 WAGMATCOOK ELDERS COUNCIL WITH COMMUNITY PLANNING IN ACTION | GENERAL CONCEPT FOR FUTURE CHIEF NORMAN BERNARD | Source: Source: Authors CLUSTER HOUSING | Source: Iyad Al-Halis, Wagmatcook First Nation Cities & Environment Unit For community members to actively and An objective of the HPP was to create an authentically drive the planning, design and Future housing in Wagmatcook’s Plan inclusive, transparent and collaborative building of the Pilot Project, recognition of reflects the community’s desire to address planning process that put the future the time commitment required for this type housing shortages through innovative of housing in the hands of community of engagement was essential. The Pilot approaches. The Housing Pilot Project members. The Elders Council took the Project’s planning process was designed was identified in the Community Plan as a role of Steering Committee, along with specifically to engage a wide variety of way to evolve Wagmatcook’s approach to Chief Bernard, sharing knowledge and community members across age and ability, housing. The proposed project embraced overseeing the project. Chief Bernard to identify and use local skills and resources an approach to change comprised of three was actively involved in the Community wherever possible. Incorporating capacity principles: community-based, locally- Plan Update, attending workshops building and training opportunities into focused and action-oriented. The approach and open houses, and is currently the development of housing prototypes to change serves as a way to ensure that an engaged member of the Steering takes more time than a typical construction the community’s vision is implemented Committee. Leadership’s commitment to process. Flexibility was incorporated into through all future development projects. implementation has been vital to moving the project schedule to allow for invention, this project forward. innovation, exploration and reflection for The HPP was initiated in January 2014 by the Steering Committee, planning and Wagmatcook First Nation in partnership design professionals, and community with the CEU, with funding and research members alike. support from the Canada Mortgage and Housing Corporation (CMHC).

27 plan canada | WINTER · HIVER 2016 ILLUSTRATING A LONG TERM VISION Source: Frank Palermo, Cities & Environment Unit Through an extended, people-centered community design process, it was possible to rethink the idea of the single detached house, and conceive of a grouping of homes instead. Housing is 28 centred around a community garden and includes shared facilities that bring people together, including a common kitchen/eating space, meeting room, exercise area, arts and crafts space, HOUSING PILOT PROJECT ELEVATION rooms for visitors, a small spiritual room AND SITE PLAN | Source: Iyad Al-Halis, and a carpentry/wood shop. With a site Cities & Environment Unit selected and the preliminary program developed, conceptual designs emerged A number of design principles emerged that reflected the needs and aspirations from conversations with community of community members. members which became the basis of the design/orientation of the project: age-friendly/multigenerational public space; respect for local ecology and minimization of site disturbance; energy efficiency and built-in flexibility; opportunities for personalization; front and back access at grade for each unit; ease of construction and future renovation. These principles affected not only the siting, planning and design of the project, but also the process for construction and maintenance by

plan canada | WINTER · HIVER 2016 community members. 29 plan canada | WINTER · HIVER 2016 30 plan canada | WINTER · HIVER 2016 THE FLOOR PLAN DETAIL ARTICULATES THE PERSONAL REQUIREMENTS OF WAGMATCOOK SENIORS, WHILE THE COMMUNAL BUILDING CONCEPT OF THE PROJECT IS PROPOSED TO ADDRESS SOCIAL AND SHARED PROGRAMMATIC NEEDS.

COMMUNAL BUILDING CONCEPT & FLOOR PLAN DETAIL | Source: Frank Palermo & Iyad Al-Halis, Cities & Environment Unit Aging in place means ensuring the diverse needs of community Elders and seniors can be met over time. The Housing Pilot will ultimately incorporate a continuum of care locally within Wagmatcook. Many seniors are currently forced to leave the community to access care through long-term facilities located elsewhere, which leads to both social and cultural isolation. The Nation is currently working with St. Mary’s University School of Business to develop a sustainable funding plan for the ongoing operations of the project. The floor plan detail articulates the personal requirements of Wagmatcook seniors, while the communal building concept of the Project 31 is proposed to address social and shared programmatic needs. plan canada | WINTER · HIVER 2016 CONCLUSION

The process of planning and designing housing is just as important as getting houses built. Meaningful partnership and respectful engagement with Indigenous MODEL FOR COMMUNITY ENGAGEMENT communities is worth the time. When a community is driving the planning process, AND CONSTRUCTION PHASING | Source: the results are more likely to be culturally significant and widely embraced. Planners Kaitlin Wierstra, Cities & Environment Unit must challenge their assumptions and preconceived notions when working with The HPP is now in the construction drawing phase. These technical Indigenous communities - such planning projects are a mutual learning experience. construction documents are also a capacity For planners this means adopting a reflexive approach to planning practice. development opportunity. An Ikea-esque drawing package will be created to support Special thanks to Iyad Al-Halis for architectural design and learning and community engagement with graphics contribution. ■ construction. Developing a new approach to construction drawings is conducive to ALEXIS MILLER, MCP, is a design-minded FRANK PALERMO, FCIP LPP, FRAIC, is 32 a broad cross-section of the community participating in the building process. planner working as a Consultant in First the Director of the Cities & Environment The Final Phase will see the construction Nations Housing at the Canada Mortgage Unit, and a Professor in the Faculty of of housing units, utilizing local labour and Housing Corporation (CMHC). She Architecture and Planning at Dalhousie and materials, over the next two years. It is anticipated that Wagmatcook will is also a former community planner with University. He can be contacted at serve as a model for seniors’ and Elders’ the Cities & Environment Unit. She can be [email protected]. housing for other First Nation communities contacted at [email protected]. across Canada. IYAD AL-HALIS, MARCH, MPLAN, LEED NATHAN ROTH, MPLAN, CIP Candidate AP, is an urban designer and community Member, is a planner in the City Planning planner with the Cities & Environment Unit. Branch with the City of Edmonton, and a He can be contacted at [email protected]. former community planner with the Cities & Environment Unit. He can be contacted at REFERENCES [email protected]. 1. INAC First Nations Profiles, Wagmatcook First Nation Registered Population, July 2016 2. For example, see Health Council of Canada, “Canada’s Most Vulnerable: Improving Health Care for First Nations, Inuit, and

plan canada | WINTER · HIVER 2016 Metis Seniors”, 2013 BEYOND CONSULTATION: Lessons from Joint Stewardship Figure 1: Red Hill Parkway, Hamilton, Ontario

BY SHERI LONGBOAT PHD

SUMMARY The role of Indigenous consultation RÉSUMÉ Le rôle de la consultation et de l’engagement des and engagement in land use planning and collectivités autochtones dans l’aménagement et la mise en development continues to evolve in response to valeur du territoire continue d’évoluer en réponse aux a changing legal and policy landscape. While changements observés dans les paysages juridique et formal processes that trigger consultation politique. Bien que des procédures formelles visant à continue to develop and expand, an alternative déclencher des procédures de consultation sont toujours approach involves exploring collaborative élaborées et encouragées, une approche alternative est relationships on projects where there are shared également préconisée, soit l’adoption de relations de interests between municipalities and Indigenous collaboration au sein de projets présentant des intérêts communities. Lessons from the Red Hill Valley communs pour les municipalités et les collectivités Joint Stewardship Board in Hamilton illustrate autochtones. Le conseil de gouvernance commune de Red informal collaboration can support positive Hill Valley à Hamilton a démontré qu’une collaboration benefits and situate each community in a better informelle peut avoir des répercussions positives et favoriser 33 positon to adapt to change. l’adaptation aux changements des collectivités.

new approach to working with Indigenous communities in land use planning and development is reshaping conventional practices for consultation and engagement. Under Ontario law, Indigenous consultation is generally triggered by the Environmental Assessment Act (1990), the Heritage Act (1990) and the Ontario Planning Act (2005). The Far North Act (2010) requires a higher level of First Nations engagement through the joint development of land use plans for traditional territories; although the First Nations affected initially opposed the legislation because of its unilateral development. Signifying a shift towards a more comprehensive and collaborative model to land use planning across Ontario is the 2014 Provincial Policy Statement that explicitly “recognizes the importance of consulting with Indigenous communities on planning matters that may affect their rights and interests.” plan canada | WINTER · HIVER 2016 and their respective ministries to collaboratively address a myriad and departments. of complex issues that involve land, Canada’s 2016 full endorsement resources and environment. From and commitment by Prime Minister an Indigenous perspective, this can Trudeau to implement the United be seen as rekindling the historic Nations Declaration on the Rights relationship (between Indigenous of Indigenous Peoples (UNDRIP) people and settlers) long established further signifies a shift toward a new by our ancestors who held firm to relationship between Indigenous the original instructions and set communities and government. Most forth the guiding principles for our relevant for planning is UNDRIP relationships, our coexistence with Article 18 that affirms Indigenous one another and with all of creation. peoples’ “right to participate in Among some Indigenous nations are decision-making in matters which traditional teachings that foretell of would affect their rights”, and Article a time when critical decisions will be 19 requires that states “obtain free, required that ultimately determine prior and informed consent” before our future path and existence. Some adopting measures that affect believe that time is upon us right now. Indigenous peoples. Moreover, Given this context of change, given the full scope of the 46 uncertainly, and complexity, the Articles contained in UNDRIP, its question that all levels of government implementation will undoubtedly and Indigenous communities require a concerted effort and inevitably share is, how do we move involve all levels of government forward to fulfill responsibilities within committed to collaborating with our respective needs and constraints, Indigenous communities. without compromising our rights, Likewise, Indigenous communities autonomy and accountabilities? Or are proactively responding to the more practically, how do municipal changing environment in their own and Indigenous governments build ways. Communities are developing relationships and transform shared consultation and accommodation objectives into outcomes that

Figure 2: Fire of the Valley Wampum protocols grounded in ancestral produce mutual benefits on land of knowledge and Indigenous law. common interests? Some are using the courts to The following section offers brief Arguably, the impetus for this new challenge government infringement insight into an approach by the City approach emanates from the courts on rights and interests including of Hamilton and the Haudenosaunee where judicial decisions (for example, lack of adequate consultation on Confederacy Chiefs Council Haida Nation v. British Columbia; Taku development activities, while other (traditional government of the Six River Tlingit First Nation v. British communities are leveraging their Nations) for joint stewardship in the Columbia; Mikisew Cree First Nation v. strengths and working directly with Red Hill Valley, Hamilton, Ontario. The Canada; and, more recently, Tsilhqot’in private sector partners to create aim is to illustrate that a collaborative 34 Nation v. British Columbia) have short and long-term economic relationship need not only be affirmed and defined the Crown’s opportunities. The result is a complex triggered by formal mandate; it can duty to consult and accommodate and transformative landscape that emerge and flourish at the grass-roots Indigenous communities on activities can pose a significant challenge by those who have a direct and vested that may impact both asserted and to conventional planning and interest in the outcomes of a shared proven Indigenous and treaty rights. development, particularly as the full commitment. Once established, these At the heart of the legal disputes are implications of high-level government relationships have an added benefit issues of land ownership, land use obligations and community response of transitioning into a more formal and development, and access, use have yet to be fully realized. structure and process to address and control over natural resources On the other hand, one can look emerging needs as required. within traditional territories or at the current state of change as ancestral lands. These activities are an opportunity - an opportunity to LESSONS FROM JOINT interconnected with planning, and reset the relationship and establish, STEWARDSHIP often complicated by overlapping where necessary, new multi-level and jurisdictions and policies between inter-governmental approaches, which The Joint Stewardship Board (JSB) multiple levels of government include Indigenous governments, was created through the Joint plan canada | WINTER · HIVER 2016 each have a responsibility for the the for have aresponsibility each Act Municipal the under entities Crown City maintains sole jurisdiction as Treaty, the if or Nanfan 1701 the Indigenous and treaty rights under proven had Haudenosaunee the if debate than Rather responsibilities. shared on to focus decision by aconscious overcome were Valley Hill Red to the jurisdiction and rights the holds to who views and experiences. views author’s the represents and piece areflective is following the noted, be should It benefits. shared and to collaboration conflict from progressed JSB the how for lessons key four are below follows What www.jointstewardshipboard.com. at website the on found is activities and objectives vision, JSB the including accomplishments. More information JSB the of all to detail here available space the beyond is It centre. interpretive of environmental an developments for construction continuing and future, the for planning and monitoring on focused is JSB the restoration plans were completed, final the after years Now, five recovery. and traditional medicine plant human and natural heritage protection, restoration, species-at-risk assessment, environmental monitoring, ecological namely community, Nations Six the coordination between Hamilton and and integration knowledge involving projects of anumber undertook jointly JSB the restoration, and 1). (Table Ontario southern now is what pre-confederation treaty rights within Haudenosaunee people who assert the and City, the between interests a number of shared concerns and to address negotiated aseries of one is agreement The 1). (Figure Hamilton east in Parkway Valley Hill Red the of over opposing views on construction to conflict response in (HCCC) Council Haudenosaunee Confederacy Chiefs the and Hamilton of City the between (2003) Agreement Stewardship 1 Through parkway construction , both communities agreed agreed communities , both which to build. Find common ground upon Opposing Opposing AGREEMENT RESPECTING THE HUMAN HERITAGE OF THE RED HILL VALLEY, JANUARY 9, 2004 9, JANUARY VALLEY, HILL RED THE OF HERITAGE HUMAN THE RESPECTING AGREEMENT 2004 9, JANUARY VALLEY, HILL RED THE IN OPPORTUNITIES ECONOMIC ON AGREEMENT 2003 18, DECEMBER PLANTS, ANDOTHER PLANTS SIGNIFICANT AGREEMENT ON MEDICINE STEWARDSHIP AGREEMENT,JOINT 2003 18, DECEMBER AGREEMENT ON TOLLS, NOVEMBER 17, 2003 ANDGATHERING, NOVEMBER 17, TRAPPING FISHING, 2003 AGREEMENT HUNTING, ABOUT AGREEMENT,GENERAL NOVEMBER 17, 2003 2003 22, OCTOBER VALLEY, CREEK HILL HILL CREEK VALLEY AND ASSURANCES CONCERNING ARCHEOLOGICAL WORK IN THE RED AGREEMENT CONCERNING RESPECT FOR AND PROTECTION OF HUMAN BURIALS IN THE RED AGREEMENT FACILITATED ABOUT NEGOTIATIONS, 19, 2003 SEPTEMBER TABLE 1: HAUDENOSAUNEE—HAMILTON RED HILL AGREEMENTS 35 plan canada | WINTER · HIVER 2016 THE GOAL WAS NOT TO REINVENT THE WHEEL BUT RATHER CAPITALIZE ON THE STRENGTHS OF EACH COMMUNITY.

health and well-being of the Red for both communities. Lack of staff liaison, and the adoption or Hill Valley, and that would form the finances to carry out JSB activities adaptation of existing procedures basis of the relationship and vision was a limitation addressed through proven effective in practice. moving forward. a financial commitment by the City. The goal was not to reinvent the A dedicated budget supported JSB wheel but rather capitalize on the Respect and incorporate administration and a staff member strengths of each community. 2 Indigenous approaches. It was who coordinated JSB activities and There are growing requirements important for the Haudenosaunee acted as a resource and link between for formal consultation with that the relationship defined the two communities. The financial Indigenous communities in Canada. by written agreements also be commitment reaped shared benefits The JSB experience illustrates legitimized by Haudenosaunee beyond the monetary investment. collaborative relationships can be tradition. The “Fire of the Valley” Completed and forthcoming projects formed outside of or in addition wampum which signifies principles attracted potential partners and to mandated consultation, and of respect, trust and friendship, funding opportunities, and local yield shared benefits that jointly 36 as represented by three strings stewardship activities brought support municipal and Indigenous of wampum beads (Figure 2), together communities. community goals. As an added was presented to the Mayor of benefit, both communities are Hamilton to signify recognition of Create structure and now better positioned to work the commitment and responsibility 4 processes to operationalize together on future challenges and to one another. The wampum decisions into actions. While opportunities as they emerge. ■ is brought to all regular JSB the agreements established a meetings which are opened and collaborative framework and SHERI LONGBOAT, PHD, is a Haudenosaunee Mohawk born and raised closed by a Haudenosaunee created the JSB, also imperative in Hamilton with 20 years of experience Thanksgiving Address (Ohen:ton was to carve out processes for working with First Nations. She has Karihwatehkwena), meaning the moving forward the objectives coordinated Joint Stewardship Board “Words Before All Else: Greetings to with City staff and Six Nations. activities for the past three years, and is the Natural World.” This was achieved through the co- an assistant professor at the University development of Terms of Reference, of Guelph in the School of Environmental Address capacity issues that routine monthly meetings (rotating Design and Rural Development. She can create barriers to participation between communities), a City be reached at [email protected]. plan canada | WINTER · HIVER 2016 3 NEW CENTURY, NEW APPROACH to Marine Planning in B.C.

BY MARINE PLAN PARTNERSHIP FOR THE NORTH PACIFIC COAST (MAPP) CONTRIBUTORS: JOHN BONES BA, MSC, CHARLES SHORT BSC, MSC, AND STEVE DIGGON BES, MSC

SUMMARY For the first time in RÉSUMÉ Pour la première British Columbia’s history, First fois dans l’histoire de la Nations have been equal Colombie-Britannique, les Premières Nations partners with the provincial sont sur un pied d’égalité avec le government in developing gouvernement provincial dans l’élaboration marine use plans — an historic d’un plan d’utilisation des zones côtières. Il approach viewed largely by all s’agit d’une approche historique qui, selon involved as having yielded very les partis impliqués, a généré des retombées positive outcomes. Beyond the positives. En plus de la promesse d’atteindre promise of achieving real and des résultats réels et durables en matière lasting impact in shared marine d’utilisation des zones maritimes communes, spaces, there are broader de plus grandes leçons peuvent également lessons for planning and être tirées de cela, notamment en ce qui a engagement that can be applied trait à l’aménagement et à l’implication. Ces in other parts of Canada leçons peuvent être intégrées ailleurs au and globally. Canada ou à l’échelle mondiale. 37

n British Columbia, a unique approach to developing marine plans has involved a spirit of collaboration. The Marine Plan Partnership Ifor the North Pacific Coast, or MaPP as it’s more commonly known, involves the Province and 17 member First Nations — represented by the North Coast–Skeena First Nations Stewardship Society, Coastal First Nations–Great Bear Initiative, Council of the Haida Nation, Central Coast Indigenous Resource Alliance and Nanwakolas Council. The partnership’s mandate is about planning for marine uses, economic sustainability and the long-term ocean health on B.C.’s North Pacific Coast, divided into four sub-regions: Haida Gwaii, North Coast, Central Coast and North Vancouver Island. plan canada | WINTER · HIVER 2016 38 plan canada | WINTER · HIVER 2016 T and political perspectives. traditional values and current legal Nations First integrate also They science. marine and knowledge local interests and values, traditional and Nations First policy, government local and provincial of combination a are approach MaPP unique the through achieved plans marine The joint going forward. implementation a clear roadmap and commitment to now is there sub-regions, four its and area the for place in agreements and August With 2016. completed plans implementation agreements in early plan marine of signing official the in in 2011. in signed was intent of letter founding a since years five the in progress real and relationships working solid approach has realizedmade-in-B.C. this instead to progress, barriers and delays lengthy in resulted otherwise have could that history complex and arich With knowledge. scientific and cultural practices and Indigenous systems, governance Nations First negotiation and agreement in up-front for expectation the and Peoples; Nation First affected with requirement for prior consultation a past; the in government-led federal or provincial typically were that activities in co-leadership and doors for First Nations engagement the opened has law, which case evolving include play. at They also are cases. nation-specific certain in rights fishing commercial or ceremonial purposes; and social food, for to fish right protected the practices; and activities by pre-contact defined for Aboriginal fishing rights, now include: evolving legal definitions that factors of avariety of result the shifting, is landscape legal the Meanwhile, broader legal drivers when atime at come plans The initiativeThe MaPP culminated THE MARINE PLANNING THE PLANNING MARINE government policy with provincial integrates his collaborative approach BACKDROP new norm. new planning and management, now the the number and collaboration of First success. its to greatly contributed but approach, MaPP the distinguished spatial planning. example of governance and marine international an as upheld being is set has MaPP precedent the Indeed, analysis and policy development. on information-gathering, scientific leading ways, many in and, process this for to prepare work significant undertaking partners Nations First with milestone, acritical represent MaPP through built relationships This understanding and the partners. full-fledged, equal nation-to-nation but groups, or individuals other like stakeholders simply not are official recognition that First Nations been the provincial government’s has approach to this Fundamental involving First Nations governments. planning concerted more towards evolved has that Canada) of parts other and B.C. (in planning resource of decades from stemmed emphasis on collaboration has and regulatory authority. jurisdiction legal has it that considers interests where the Province marine provincial and Nations B.C. of Coast Pacific North the of two-thirds along stretching partners, Nations’ First 17 the of territories the traditional includes that area –an coastline of kilometres 29,000 and ocean of kilometres encompassing about 102,000 square became increasingly clear. guide decisions about ocean use to help planning marine for need the along the British Columbia coast, industrial and recreational activity With increasing commercial, The geographic scale alone and and alone scale geographic The only havenot factors Various its and approach MaPP The First common on focuses MaPP vast, is involved area The UNDERSTANDING

THE APPROACH

renewable energy. processing, and renewable and non- conservation and infrastructure, fish marine aquaculture, shellfish public recreation, finfish and commercial and marine tourism, marine science, coastal forestry, many planning issues considered: the Among processes. other from addressing – also distinguishes it addressed – and will continue has it values and activities uses, together and number of marine brought has MaPP stakeholders of diversity The private foundations. from resources external as well as resources, Nations First and model that leveraged government quasi public-private partnership a employing integral, also was achieved. been before never had government, provincial the with leading the marine planning process co- and together working nations with participation, Nations First extensive nations was a major first. Such arrangement and involved so many governance collaborative a within plan. amarine in unprecedented of stakeholders engaged was number the with two)or coupled one perhaps past, the (in Nations into an abundance of local experts to tap able Being work. its undertake quickly could partnership MaPP the and funding already established, With proper governance structures crucial. was place in expertise and leveraged. fully were opportunities to achieve progress Accordingly, time. away any at go can resourcing while change and public interest can quickly mandates as time, in point unique a at were they understood involved everyone that was benefit major A learned. lessons consider also approach’s success, which they to the credit partners MaPP the There are additional factors MaPP’s approach to funding to funding approach MaPP’s designed was process the That Having the right arrangements MORE KEYS TO SUCCESS, TO SUCCESS, KEYS MORE LESSONS LEARNED LEARNED LESSONS over a two-year period. atwo-year over engaged be would stakeholders how understanding by project partners of common asolid, ensured advance, in establishing the process engagement Also, critical. was process, the in they could meaningfully engage to ensure funding by adequate and local governments, supported organizations. partner the within from expertise localized and staffing of form the in resources on to draw able to be fortunate was process MaPP The difference. areal made THROUGH JUNE 2014 2014 JUNE THROUGH LATE FALL 2011 NOVEMBER 2011 PRE-201 plans. sub-regional the of development to the relating highlights some are following The objectives. and stakeholders participants, unique process, own its had developed plans sub-regional four the of Each PLAN ASUB-REGIONAL BUILDING FOCUS: IN AUGUST 2016 2016 MAY 2015 APRIL Having buy-in from stakeholders stakeholders from buy-in Having 1 • • • • stakeholders. with discussions in used to be measures management and policies legislation, provincial exiting with augments then which Province, the with components plan draft preliminary of development for basis the as used are plans Nation First local The formed. is MaPP policies, legislation and management procedures. plans, provincial Existing plans. community individual complete Nations First Local sub-regional First Nations are signed. Four separate implementation agreements between the government B.C. and signed. is Framework Action Regional regional marine plans. sub- four the of signing the celebrate stakeholders and staff technical representatives, partner sub-regional where Victoria in Legislature B.C. the at held is ceremony A signing

communities and economy; and zoning framework. and governance; monitoring and enforcement; marine research and education; management collaborative infrastructure; energy; storage; and handling log aquaculture; process; tenuring the fisheries; Nations First and recreational commercial, and protection; cultural and heritage resources; marine recreation and tourism; climate change; tsunami debris management; marine pollution; marine conservation strategies; and objectives issues, management ecosystem-based statement; a vision are: plan asub-regional of development the of part as discussed topics the Among plan are subsequently reviewed and/or incorporated. to the changes proposed input, public on Based 2014. of spring the in period review public asix-week launching communities, sub-regional in held are houses open Public plan. overall the to build input stakeholder and reports consultant research, internal or assessment process). The sub-regional planning teams use information from available aplan and reports, trends and conditions current mapping, online Sketch Sea matrix, framework, recommended uses and activities table, vulnerability matrix, compatibility (zoning tools planning shared to develop together work staff technical partner MaPP partner organizations staff. from expertise of awealth Province) and the representing other the and Nations First the (one representing co-leads two are process the Supporting components. plan draft to review period atwo-year over times 15 nearly to meet on go and formed are (MPAC) Committees Advisory Plan Marine the plans, sub-regional To the build process purposes. both for organizational and for much-valued nimbleness, overall project management allowed and administration MaPP’s the into built flexibility Considerable afoundation. as framework policy operating awide public the and decision-makers, stakeholders gave regulators, This benefit. major –a other) the or one be typically components (where plans would both strategic and operational using a hybrid approach, having That plans were developed developed were plans That governments alike. local and Nations to First news –welcome process review complex a from uses marine out by screening effort and time considerable saves This Nations. First and government local to both referred is it made, is application an When activities. and uses marine azone’s for received are that applications to address how on managers direct tables The sub-zone. and zone each for included recommended use tables same zoning approach, which All four MaPP plans used the the used plans MaPP four All

39 plan canada | WINTER · HIVER 2016 40 plan canada | WINTER · HIVER 2016 • • planning phase included: the during faced complexities government policy. provincial as well as reality planning anew reflects approach this areas, coastal and marine the of ownership assert Province the and Nations First both where B.C., In groups. by non-Indigenous stakeholder understanding and sensitivity awareness, greater also but plans to balanced only not leads obligations stewardship and systems governance values, cultural Nations First to reflect effort deliberate the that and policy, and science information, current outlast will that relationships builds include recognition that good process refined. were while collective agreements progress could be demonstrated and maintained be could momentum so advanced and identified were activities implementation interim, agreements to sign them. In the comfortable with the implementation were parties some sufficiently before ayear took it completed, were plans marine the Once ideal. than less proved which timeframe –a finalized were plans the before being prepared about eight months implementation agreements were case, this In after-thought. an more that implementation becomes planning on focused so to become easy is it as earlier much planning resources into pre-implementation better to put additional staff and havebeen would it is consensus the revisited, to be was If the process

stakeholder groups; and Nations First governments, participating of mandates the within indirectly only were that issues management resource coastal and marine to address how legislation; designations under provincial legal to specific committing without protection marine for areas zone and to identify how Some specific challenges and and challenges specific Some learned lessons significant Other CHALLENGES AND CHALLENGES COMPLEXITIES

• of approach with flexibility to reflect to reflect flexibility with approach of consistency balancing and priorities, of range awide and bays and inlets of hundreds upon hundreds with communities, a complex geography different many encompasses that area large avery across work how collaborative planning can momentum. to maintain partnerships and leveraging timelines of government-to-government importance the as such key areas providing in valuableguidance are learned lessons while MaPP, after modelled being is review and input stakeholder for a process Seychelles: the in Also Seychelles. the in application for developed or used being either are tables rationale and tables activities allowable definitions, of list master matrix, acompatibility example, For B.C. beyond well planning marine in work at already are MaPP in used successfully and developed geographies. other in found be can environment, and culture economy, of importance the and decisions past of impacts the and history governance, and authority jurisdiction, including governments, Nations First and deficiencies. policy were there where to areas solutions creative, incremental applying about been has approach The more. and tradition Nations First science, policy, planning, of balance careful a reflect partnership MaPP the through developed plans marine The •

A NEW MODEL FOR PLANNING PLANNING FOR MODEL A NEW use tables; zoning direction and recommended area-based specific with plans the of strategies and objectives strategic broad, to link how planning areas. the in changes ecosystem indicate to and success implementation plan to gauge actions measurable into translated be readily can they that so strategies to draft how MaPP is a success story about about story asuccess is MaPP tools the of some Indeed, provincial by the faced issues Many AND POLICYMAKING AND POLICYMAKING [email protected]. at reached be may He sustainability and research programs. governance, environmental policy analysis, First Nations community planning and focusing on marine and coastal planning, Initiative, Bear –Great Nations First Marine Planning Coordinator for Coastal Regional the is MSc, BES, DIGGON STEVE at [email protected]. reached be may He Government. B.C. the for initiatives planning coastal Resource coordinating Operations Natural and Lands Forests, of Ministry Division, Operations Regional Area Coast Executive Director, Strategic Projects, the is MSc, BSc, SHORT CHARLES at [email protected]. reached be may He government. B.C. the with Minister Deputy Assistant aformer was and Council Planning Coordinator for Nanwakolas Marine the is MSc, BA, BONES JOHN be found at mappocean.org can information other and plans MaPP Columbia. British of Province the and Nations First member 17 between withreconciliation Nations. First government’s commitment to B.C. the achieving towards step ahuge is approach MaPP the Furthermore, policy. or science information, latest the outlast will that relationships to building contributed decisions together. deliverables and scope and make on agree conflicts, and differences address communication, of lines open establish trust, to build parties by all made effort enormous the of because worked has Coast Pacific North the in to planning approach collaborative authority. and jurisdiction as governance, Indigenous rights, such issues account into taking while successful be and occur can planning ocean high-quality that shows it time, stakeholder engagement. At the same comparisons to support planning and useful offer can MaPP space, ocean of kilometres of thousands across islands and millions of people spread of thousands with Indonesia, as such places in Similarly, issues. different MaPP is a collaborative partnership partnership acollaborative is MaPP has process good short, In this believe partners MaPP The . ■ FROM REACTIVE TO PROACTIVE IN FIRST NATIONS PLANNING: A Case Study of the Metlakatla Experience in British Columbia

BY KATERINA KWON MCIP, THOMAS GUNTON MCIP, RPP, MURRAY RUTHERFORD MCIP, RPP, AND TAYLOR ZEEG MCIP, RPP

SUMMARY First Nations in British Columbia RÉSUMÉ Les Premières Nations en Colombie-Britannique increasingly recognize the need for proactive reconnaissent de plus en plus la nécessité d’un aménagement planning that manages cumulative effects of proactif qui gère les effets cumulatifs du développement d’une development in a manner consistent with manière qui correspond aux objectifs de la collectivité. La community goals. Cumulative effects gestion prévisionnelle des effets cumulatifs progresse au-delà management planning moves beyond the reactive de la nature réactive de l’étude d’impact et vise à préserver ou nature of impact assessment, and aims to améliorer l’état des composantes de priorité valorisée au fil du maintain or improve the condition of priority temps. La Metlakatla First Nation (Première Nation de valued components over time. Metlakatla First Metlakatla) et l’Université Simon Fraser ont élaboré Nation and Simon Fraser University have conjointement une nouvelle approche stratégique en matière developed a new strategic planning approach for d’aménagement afin de choisir les composantes de priorité selecting valued components for Metlakatla’s valorisée pour le système de planification des effets cumulatifs cumulative effects planning system. We describe de Metlakatla. Nous décrivons le système innovant de Metlakatla’s innovative system and the lessons Metlakatla, de même que les leçons apprises en matière learned for First Nations planning. d’urbanisme pour les Premières Nations.

focused, reactive process that fails to economic aspects of the natural INTRODUCTION adequately incorporate community and human environment that are Many First Nations in British Columbia goals and address long-term important to the community; in other are facing significant development cumulative impacts of past, present, words, the things people care about.4 pressures that will have dramatic and future projects and activities.2 The concept of “valued components” impacts on their communities. In the The unintended consequence is that was created to provide focus for 41 North Coast region of B.C. alone, many of the environmental, social, the environmental assessment there are 65 major proposed projects and economic values essential to process and provide a way for the that will individually and collectively the long-term well-being of First public and potentially impacted have social, environmental, and Nations communities may be at risk groups to identify the aspects of economic impacts that could from development. their environments that they value threaten the well-being of First One way of addressing the and want to protect, maintain Nations communities.1 limitations of project-based and restore.5 The VC-focused Currently, the impacts of impact assessment is to develop a approach is seen as a more effective these development projects are comprehensive cumulative effects approach to project assessment being managed in large part by management (CEM) system that and was designed to replace “the project-based federal and provincial identifies and protects key community count everything” approach, which environmental assessment processes. assets or “valued components” over attempted to assess a project’s Although project-based impact time consistent with community impact on all environmental assessment can help mitigate some goals.3 Valued components (VCs) values.6 VCs are the foundation adverse effects, it is a narrowly are the environmental, social and of an effective and efficient CEM plan canada | WINTER · HIVER 2016 AN IMPORTANT CHARACTERISTIC OF METLAKATLA’S CEM PROGRAM IS THE RECOGNITION THAT IT IS A LONG-TERM, ITERATIVE PROCESS COMPOSED OF SEVERAL PHASES WITH OPPORTUNITIES FOR CRITICAL REFLECTION BY METLAKATLA DECISION- MAKERS ON SUCCESSES TO DATE, LESSONS LEARNED AND ONGOING IMPLEMENTATION CHALLENGES.

Aerial view of Metlakatla Village

system and the VC selection process lessons from this experience for First assessment processes evaluating ultimately determines which values Nations planning. these projects and, where appropriate, will be monitored, maintained and have been negotiating impact improved over time. In effect, the benefit agreements with project METLAKATLA FIRST NATION goals of protecting and enhancing proponents. These agreements deal VCs in CEM are equivalent to the Metlakatla First Nation’s traditional with the distribution of benefits goals and objectives that guide territory is comprised of 19,920 between the community and the community planning. km2 of land and sea in the North project developers and the mitigation In recognition of the need to Coast region of B.C.7 As of 2015, of impacts. The experiences of the move beyond project-based impact the Metlakatla First Nation had Metlakatla with these processes led 42 assessment to comprehensive 900 registered members, with 629 them to the conclusion that they community-based cumulative members residing within Metlakatla needed to develop a more proactive effects management, the Metlakatla traditional territory.8 The most community-based CEM system to First Nation has partnered with the important employment sectors for manage the impacts of projects and Resource and Environmental Planning Metlakatla members are port-related other development and meet their Program at Simon Fraser University development, tourism, retail, band long term goals. in a multi-year project to develop a office, marine transportation, forestry cumulative effects planning process. and subsistence harvesting.9 CUMULATIVE EFFECTS This paper summarizes a critical The issue of cumulative effects has MANAGEMENT SYSTEM component of this planning process: recently become a prominent concern the selection of VCs. We begin with for the Metlakatla, partly because A CEM system typically aims to track a short introduction to the Metlakatla of the large number of proposed and assess the condition of priority First Nation, followed by a description projects in their territory, including VCs and implement management of their innovative CEM system and the development of a liquefied plans to maintain or improve the an example of its application for natural gas industry. The Metlakatla condition of these VCs over time marine VCs. We conclude with some have been participating in impact (Figure 1). The Metlakatla CEM system plan canada | WINTER · HIVER 2016 includes management goals, triggers marine VCs by examining all relevant feature of the new method: its explicit and actions for each priority VC documents including Metlakatla consideration of implementation (Figure 2). The values foundation plans, government documents and planning and the constraints of for this CEM system consists of five previous environmental assessments Metlakatla’s limited resources. A final pillars: economic, social/health, of proposed projects in the region. The prioritization workshop was held with environment, cultural identity and next step was to develop well-defined Metlakatla managers and members, governance. This CEM initiative selection criteria for candidate VCs in which they used implementation has the potential to be an effective and indicators based on a review of planning criteria (Table 1) to select tool for supporting Metlakatla best practice literature, followed by the final priority list of VCs. The decision-making across scales: (1) at community input on potential criteria general goal of both workshops, an individual project scale through (Table 1). In addition to providing which included approximately 15 environmental assessment response; transparency to the VC selection managers, staff and members that (2) at a territory-wide scale through process, the use of well-defined represent the major governing bodies community and land/marine use criteria helped to ensure that the of the Metlakatla, was to receive input planning; and (3) at a regional selected VCs reflected community on the candidate VCs and to select scale through participation in CEM values and priorities. These selection which VCs they wanted to monitor initiatives with other First Nations.10 criteria were used to reduce the list of and manage in their CEM system, A major challenge in implementing 166 marine VCs to 14 VCs. given the resources and capacity the Metlakatla CEM initiative The third step consisted of available. All of the workshops used occurred during the scoping stage ongoing engagement with community a pragmatic, deliberative approach of identifying and selecting VCs. members and experts through a to engagement that focused on Many VCs are important, but due workshop and interviews to refine extensive discussion and debate that to constraints on resources and the candidate list further to four VCs. has been successfully used in other information, the comprehensive The next step highlights a distinctive planning processes.13 planning ideal of tracking all important VCs is not feasible; Documentation, thus, a key issue is determining Monitoring & which of these VCs to select and Scoping Analysis Communication Mitigation & Accountability manage.11 To address this real world challenge, the Metlakatla and Simon Identify primary Periodic collection issues and VCs Analyze past, of data Performance Fraser University developed a new present and future reporting to all conditions stakeholders strategic planning approach for De ne values, Develop monitoring selecting and prioritizing VCs in indicators and programs for VCs triggers CEM.12 The approach consists of the De ne signi cance Establish roles and following components: De ne spatial Develop and responsibilities and temporal incorporate mitigation Design Components: boundaries strategies 1. Explicit consideration of cumulative effects that is adapted Figure 1: Components of a cumulative effects management planning framework. Adapted from Cumulative Effects Assessment and Management : A Framework for the Metlakatla First Nation, to the context of the region by Lucchetta & Steffensen (2015). 2. Explicit incorporation of Metlakatla values and local knowledge 3. Deliberative approach to 43 engagement Critical Zone Management goal: Quickly reverse the trend 4. Incorporation of uncertainty and restore the VC to an acceptable condition. Management actions: Stringent measures 5. Use of well-defined selection (e.g., revise policy, implement restrictions) Management criteria for VCs and indicators Trigger In-practice Components: Cautionary Zone 6. Implementation planning and Management goal: Restore the VC to an acceptable condition or identify acceptable offsets in lieu. identification of barriers Management actions: Enhanced measures (e.g., convene working group, implement mitigation measures) Management 7. Prioritization over Trigger valued components comprehensiveness Increased impact to Acceptable Zone The results of the case study Management goal: Avoid/minimize impacts to the VC Management actions: Standard measures (e.g., follow standard application of the methodology procedures, maintain routine monitoring) to marine VCs in Metlakatla’s traditional territory are summarized Increasing projects and activities over time in Figure 3. The first step identified Figure 2. Overview of the Metlakatla CEM Concept a comprehensive inventory of 166 Adapted from Metlakatla CEM Project: Phase 1 Summary Report and Phase 2 Implementation Plan, by Compass Resource Management Ltd. (2015) plan canada | WINTER · HIVER 2016 The selection process described and priorities, to the next priority level The process has successfully above for marine VCs was used to VCs identified in the selection process. prioritized four VCs by consensus select VCs across all of the Metlakatla agreement that is being used in a value pillars, resulting in a final priority pilot project. A second tier list of CONCLUSION list of four VCs: VCs was also identified and will be • Butter clam (environmental - An important component of the considered for the next stage of CEM marine), Candidate indicator: efforts of the Metlakatla First Nation implementation. Starting small with a population density to address major development pilot project has allowed the Metlakatla • Economic self-sufficiency pressures and achieve long term goals First Nation to get started on their (economic), Candidate indicator: is the implementation of a novel First CEM initiative with the resources high school completion rate Nation-led CEM system. To address available, instead of waiting to gather • Food, social and ceremonial (FSC) real world constraints, the Metlakatla knowledge, resources and capacity activity (cultural identity), Candidate developed a CEM system that uses to monitor the full comprehensive list indicator: FSC participation rate explicit criteria and community input of VCs. A focus on implementation • Adequate housing (social/health), to prioritize VCs so that management planning encourages a long range Candidate indicator: Core strategies can be developed and perspective from everyone involved housing need. implemented successfully with and emphasizes the importance of The next step in the available resources. An important starting small, gaining initial victories implementation of the Metlakatla characteristic of Metlakatla’s CEM and building confidence among CEM system is a pilot project to program is the recognition that it managers and community members monitor and manage these four is a long-term, iterative process alike. The Metlakatla strategic CEM VCs to meet desired management composed of several phases with planning process, therefore, addresses objectives. The results will be opportunities for critical reflection deficiencies of project-based evaluated and consideration will be by Metlakatla decision-makers on environmental assessment given to expanding the CEM program, successes to date, lessons learned and and the practical challenges of depending on Metlakatla resources ongoing implementation challenges. comprehensive planning by adopting a

Extensive Inventory of Biophysical VCs Refined Candidate VC List 1 166 Marine Systems VCS 3 4 Candidate Biophysical VCs

Chinook Dungeness Butter 85 Key Species VCS Eulachon Salmon Crab Clam

Initial Candidate VC List Final Candidate VC List 2 6 Tier 1 VCS & 8 Tier 2 VCS 4 2 Final Candidate Biophysical VCs

Chinook Butter Salmon Clam 44 Tier 2 VCS Tier 1 VCS Marine biodiversity Sockeye Salmon Clean water Eelgrass Primary production Red Laver Seaweed Final Priority VC List Chinook salmon Eulachon 1 Final Priority Biophysical VC Pacific halibut Northern Abalone 5 Butter clam Pacific Harbour Red sea urchin Porpoise Rhinoceros auk Butter Clam

6 Implementation Plan for All Final Candidate VCs

Plan to incorporate other initial candidate VCs into CEM program over time

plan canada | WINTER · HIVER 2016 Figure 3. Summary of Metlakatla First Nation Case Study Application Results TABLE 1. DECISION-MAKING CRITERIA USED IN THE NEW VC SELECTION METHOD FOR A FIRST NATION’S CEM SYSTEM.

VC SELECTION CRITERIA TRADITIONAL IMPORTANCE – AS A TRADITIONAL RESOURCE OR HAS SOCIAL, CULTURAL OR COMMERCIAL IMPORTANCE TO METLAKATLA FIRST NATION SENSITIVE TO DEVELOPMENT CONTEXT – SENSITIVE TO THE CUMULATIVE EFFECTS FROM DEVELOPMENT EXPECTED IN THE REGION RESPONSIVE, MEASURABLE AND PRACTICAL INDICATORS – RESPONSIVE TO CHANGES IN THE CONDITION OF VC OVER TIME, MEASURABLE AT THE APPROPRIATE SPATIAL AND TEMPORAL SCALES, AND PRACTICAL TO IMPLEMENT REPRESENTATIVE OF KEY HABITATS – OF THE KEY HABITATS FOUND IN METLAKATLA’S TRADITIONAL TERRITORY KEY ROLE IN THE ECOSYSTEM – SPECIES HAS A KEY ROLE IN AN ECOSYSTEM FOUND IN METLAKATLA’S TRADITIONAL TERRITORY SPECIES AT RISK – LISTED AS FEDERAL SPECIES AT RISK UNDER SPECIES AT RISK ACT, S.C. 2002, C. 29 IMPLEMENTATION PLANNING CRITERIA LEVEL OF PRIORITY FOR METLAKATLA FIRST NATION GIVEN THE CURRENT DEVELOPMENT CONTEXT AND CURRENT PERCEIVED CONDITION OF THAT VC STRENGTH OF METLAKATLA FIRST NATION MANDATE TO MANAGE AND AFFECT CHANGE FOR THIS VC ABILITY OF METLAKATLA FIRST NATION TO INFLUENCE THE MANAGEMENT OF THIS VC, PARTICULARLY THROUGH EXTERNAL PARTNERSHIPS METLAKATLA CAPACITY (FINANCIAL AND HUMAN RESOURCES) TO ADDRESS THIS VC community-based, strategic planning Environmental Planning Program at Simon and Project Appraisal, 1–13. doi: Fraser University. 10.1080/14615517.2015.1039382 model that sets realistic priorities 7. Metlakatla First Nation. (2015). Development and project applications. and achievable goals for effective , is an advisor TAYLOR ZEEG MCIP, RPP Retrieved from: http://www.metlakatla. management of cumulative effects. to Metlakatla Stewardship Society and ca/overview/stewardship/development- What can be learned from the Metlakatla Development Corporation. For and-project-applications 8. Aboriginal Affairs and Northern Metlakatla experience? First, it is 15 years he’s worked with First Nations and Development Canada (AANDC). (2015). important and feasible to move from local governments, energy utilities, NGOs Registered population: Metlakatla First and federal and provincial agencies in Nation. Retrieved from: http://pse5-esd5. a reactive, project-based impact ainc-inac.gc.ca/fnp/Main/Search/ assessment process to a proactive the areas of economic development and FNRegPopulation.aspx?BAND_ resource management. NUMBER=673&lang=eng CEM system that identifies community 9. Ference Weicker & Company Ltd. (2009). objectives in the form of VCs with Social and economic assessment and REFERENCES analysis of First Nation communities and measurable management triggers territorial natural resources for integrated marine use planning in the Pacific North and develops management plans to 1. BC Ministry of Jobs, Tourism and Skills Coast Integrated Management Area. Training (BC JTST), Economic maintain or improve the condition Retrieved from http://ccira.ca/media/ Development Division. (2015). BC major documents/pdf/marine-sector-report- of those VCs. Second, the CEM projects inventory September 2015. f-w.pdf Retrieved from BC Ministry of Jobs, system needs to prioritize VCs in a 10. Compass Resource Management Ltd. Tourism and Skills Training website: http:// (2015). Metlakatla Cumulative Effects transparent, deliberative process www2.gov.bc.ca/gov/content/ Management Project: Phase 1 Summary employment-business/economic- consistent with community goals Report and Phase 2 Implementation Plan. development/industry/ Report prepared for Metlakatla and resource constraints. Third, the bc-major-projects-inventory First Nation. 2. Duinker, P. N., & Greig, L. A. (2006). “The process should enable continuous 11. Antoniuk, T., Kennett, S., Augmann, C., impotence of cumulative effects Weber, M., Schuetz, S. D., McManus, R., … learning in which results are assessed assessment in Canada: Ailments and ideas Manuel, K. (2009). Valued component for redeployment.” Environmental and plans are revised as required. thresholds (management objectives) Management, 37(2), 153–61. doi: 10.1007/ project. Environmental Studies Research Finally, the entire process needs to be s00267-004-0240-5 Funds Report No. 172. Calgary, AB. P.164 3. Noble, B. F. (2013). Development of a 45 developed and managed by the First 12. Kwon, K. (2016). Grounded in values, cumulative effects monitoring framework: informed by local knowledge and science: Nation community to ensure that it Review and options paper. Report The selection of valued components for a prepared for the Department of Indian meets their needs and expands their First Nation’s regional cumulative effects Affairs and Northern Development management system (Master’s Research capacity to manage their future. ■ Canada. Project). Simon Fraser University, 4. BC Environmental Assessment Office Burnaby, Canada. (BCEAO) (2013). Guideline for the selection 13. Parkins, J. R. (2011). Deliberative KATERINA KWON MCIP is a PhD student at of valued components and assessment of democracy, institution building, and the the School of Resource and Environmental potential effects. Retrieved from British pragmatics of cumulative effects Columbia Environmental Assessment Management at Simon Fraser University. She assessment. Ecology and Society, 16(3), 12. Office website: www.eao.gov.bc.ca/VC_ doi: 10.5751/ES-04236-160320 has been working with the Metlakatla First Guidelines.html Nation as part of her Master’s research, and 5. Canter, L., & Ross, B. (2010). State of practice of cumulative effects assessment will continue the partnership into her PhD. and management: The good, the bad and WORKS CONSULTED the ugly. Impact Assessment and Project THOMAS GUNTON MCIP, RPP, is Director Appraisal, 28(4), 261–268. doi: 10.3152/1461 Lucchetta, M., & Steffensen, M. (2015) of the Resource and Environmental Planning 55110X12838715793200 Cumulative effects assessment and management: A framework for the Metlakatla Program at Simon Fraser University. 6. Olagunju, A. O., & Gunn, J. A. E. (2015). Selection of valued ecosystem First Nation. Unpublished manuscript, School components in cumulative effects of Resource and Environmental , is MURRAY RUTHERFORD MCIP, RPP assessment: Lessons from Canadian road Management, Simon Fraser University, Associate Professor in the Resource and Burnaby, BC.

construction projects. Impact Assessment plan canada | WINTER · HIVER 2016 A ROADMAP TO INDEPENDENCE The K’ómoks First Nation’s Proactive Approach To Sustainable Land Management

BY ALANNA MITCHELL, FORMER K’ÓMOKS FIRST NATION COMMUNITY PLANNER, PAMELA SHAW PHD, MCIP, RPP, FRCGS, AND DEVON MILLER, MSC, LEED AP ND

A version of this article was published in Spring 2015 issue of Planning West

SUMMARY Aweetnakula means “one with the land and RÉSUMÉ Aweetnakula signifie « celui avec la terre et la mer » sea” in Kwakwaka’wakw (one of the languages spoken en Kwakwaka’wakw (l’une des langues parlées par le peuple by the people of K’ómoks First Nation). This phrase de Première Nation K’ómoks). Cette phrase résume la sums up the philosophy and direction of future philosophie et l’orientation de l’aménagement futur du development in K’ómoks territory, which has grown territoire K’ómoks, qui ont évolués grâce à la relation from the relationship they have had with the lands and entretenue avec les terres et la mer depuis la nuit des temps, sea since time immemorial, building on the past and en s’inspirant des expériences passées et en élaborant une developing a roadmap to new opportunities. Building feuille de route vers de nouvelles possibilités. S’appuyant sur upon this philosophy, the K’ómoks Chief and Council cette philosophie, le chef et le conseil de bande K’ómoks ont have taken a proactive approach to planning, which has adopté une approche proactive en matière d’urbanisme, qui included an award-winning Comprehensive Community comprend un plan d’aménagement urbain primé. Depuis Plan (CCP). Since the adoption of the CCP, several l’adoption de ce plan, plusieurs étapes de la mise en œuvre ont implementation items have been undertaken, including été réalisées, notamment l’adoption de directives destinées the creation of Developer Guidelines as well as an aux aménageurs ainsi qu’un plan intégré de développement Integrated Sustainability Plan. This article outlines the durable. Cet article décrit l’approche adoptée par le chef et le approach that has been taken by the K’ómoks First conseil de bande du peuple de Première Nation K’ómoks et Nation Chief and Council, including overview of the présente un aperçu général du travail réalisé à ce jour et des work completed to date, and lessons learned. This leçons apprises. Le processus et l’information contenus dans le process and information belongs to K’ómoks First présent article appartiennent à la Première Nation K’ómoks. La Nation and permission has been granted from K’ómoks diffusion de l’information contenue dans cet article a été to share the information presented in this article. autorisée par le peuple K’ómoks.

independently and since then KFN aspects of community life. Aboriginal COMMUNITY AND CONTEXT 46 has moved from Stage 1 to Stage 4 Affairs and Northern Development K’ómoks First Nation (KFN) is located of the process. The Treaty Process is Canada (AANDC) has been working on the east coast of Vancouver Island. anticipated to conclude in 2017. in partnership with B.C. First Nations The Traditional Territory reaches on Comprehensive Community Plans across much of the central part of the (CCPs) since 2004. A COMPREHENSIVE Island and across the Salish Sea, and The CCP process for K’ómoks First COMMUNITY PLAN members of the Nation have lived Nation enabled a detailed, systematic on these lands and by these waters As part of the second Treaty Process, means of defining and implementing since time immemorial. The Nation K’ómoks First Nation Chief and the goals and aspirations set out by first entered into the Treaty Process Council envisioned and initiated a the K’ómoks people. The planning almost 20 years ago as a member of Comprehensive Community Planning process and the document that was the Hamatla Treaty Society. However, initiative in 2011. Comprehensive produced were timely and valuable after much negotiation, K’ómoks Community Planning is an ongoing as the surrounding local governments First Nation Chief and Council process that enables a community were seeking the Nation’s involvement decided in 2008 to negotiate with the to plan its development in a way that in a regional growth strategy. Working provincial and federal governments meets its needs and aspirations in all with the local governments enabled plan canada | WINTER · HIVER 2016 The logo for the Planning Project, which represents the four families of the K’ómoks First Nation, was designed by Pam Mitchell, a community member and artist,

expectations regarding the use of The location of the K’ómoks First natural materials, the preferred color Nation traditional territory. palette to use, and guidelines on the incorporation of local art. recognition of KFN in the Comox document for decision-making by The Guidelines also include Valley Regional Growth Strategy, Chief and Council. The Action Plan recommendations on processes and and led to subsequent opportunities articulates the Nation’s priorities, and protocols for engaging in productive, for partnerships and involvement in provides detailed guidance for the respectful, and meaningful infrastructure projects between the development of staff workplans and discussions regarding development Nation and local governments. capital planning. In the year following on K’ómoks First Nation land or on The Plan process provided the the adoption of the CCP more than proposals for partnerships with the opportunity to hire members as half of the initiatives identified in the Nation. The Guidelines are intended Community Planners and to include Action Plan were either completed or to be a “first stop” document for members in other aspects of the moved forward. prospective developers to read and process. Three young people – Alanna then use to shape their proposals Mitchell, Josh Frank, and Pauline Engish before any significant time is spent DEVELOPER GUIDELINES AND – were hired to bring new perspectives in project review by K’ómoks First PROTOCOLS BOOKLET to the development of the Plan. Pam Nation administration. The Guidelines Mitchell, a community member and The external development community result in a more efficient use of artist, developed the logo for the has long recognized that K’ómoks both the proponents and Chief and Planning Project, which represents First Nation is a significant player Council’s time, and reduce the the four families of the K’ómoks First in the local economy in the Comox possibility of misunderstandings or Nation. In addition, youth were involved Valley, and the Nation is regularly unsupportable proposals. in the making of a CCP video as a way approached to partner on a wide to bring the story of the CCP to life. variety of projects. Responding to INTEGRATED Throughout the three years of this, and building on the momentum SUSTAINABILITY PLAN the CCP process, Chief and Council created by the CCP process, the directed the planning team to need for a document that articulates The CCP established high level conduct a wide range of community KFN’s approach to development and sustainability goals and, as an action 47 consultation initiatives that were partnerships was identified by Chief out of that process, K’ómoks Chief and tailored to the community, including and Council. Council directed staff to undertake BIG’s (Barbeques in the Garden), The K’ómoks First Nation an Integrated Sustainability Plan (ISP) CALM’s (CCP and Lands Meetings), Developer Guidelines and to reduce the Nation’s ecological KISS’s (K’ómoks Information Strategy Protocols booklet was the result footprint. Utilizing a “backcasting” Sessions), and FLIEs (Fun-Filled Land of an informative engagement and approach as a framework, the Plan Information Events). Staff involved brainstorming process focused on includes an assessment of baseline in the planning process also kept how development should proceed conditions (“Where are we now?”), members informed through social on KFN lands or within partnerships. the establishment of goals, targets, media outreach, interactive mapping The Guidelines include considerations and objectives (“Where do we want sessions, language lessons, “Quick for how buildings are sited within to go and how will we get there?”), Facts” posters, newsletter updates, and the landscape, the overall preferred and the creation of a monitoring and many presentations. design aesthetic, how interior spaces implementation plan (“How will we The CCP concluded with an are typically used, how landscape know when we get there?”). The ISP Action Plan that has become a critical designs can honour local ecosystems, is organized as a forward-thinking plan canada | WINTER · HIVER 2016 Planning process for the KFN’s Comprehensive Community Plan.

action strategy. From growing local be established as the existing actions K’ómoks planning team. Additionally, it food to conserving precious water and are achieved. should be noted that Aboriginal Affairs energy, the goal is for KFN to become and Northern Development Canada has leaders – along with local citizens and established a CCP Mentorship program, OUTCOMES AND other governments – on sustainability which continues to encourage sharing, LESSONS LEARNED issues in the Comox Valley and beyond. idea generation, and guidance. This The ISP is organized into three At the conclusion of the Treaty Process, spirit of openness and collaboration main areas: K’ómoks First Nation will be one of has been one of the most successful 1) Our Lands – strategies and actions the largest landowners in the Comox aspects of the work done to date, related to land management and Valley. The CCP has become the and the planning team and Chief and planning, natural environment and guiding document for decision-making, Council have worked diligently to share resource lands, and biodiversity and bringing community issues forward for their experiences with other Nations habitat protection; consideration by Chief and Council. The embarking on planning projects. 2) Our Operations – strategies and Developer Guidelines provide additional A sincere Huy’ch’qa and Gila’kasla actions related to energy, carbon, guidance and informational value to (“thank you” in Hul’q’umi’num and and water reduction targets, as well prospective development partners. The Kwakwaka’wakw) to all who were as waste management strategies Integrated Sustainability Plan ensures involved in these projects and those that and alternative transportation that the Nation continues to develop helped in our success. ■ policies; and in a way that reduces its impact on the ALANNA MITCHELL was previously the 3) Our Nation – strategies and actions environment. Together, these important Community Planner for her home community, related to resiliency and climate undertakings illustrate a forward 48 K’ómoks First Nation. Her strengths include the adaptation, emergency thinking and proactive approach to development of highly innovative consultation preparedness, health and wellbeing, planning and managing the lands, and strategies that are tailored to the specific needs food production, and language provide a suggested approach for other of groups and individuals in the community. She revitalization. First Nations or local governments. can be reached at [email protected]. Undertaking an ISP was a new One of the best outcomes of the PAMELA SHAW PHD, MCIP, RPP, FRCGS, process for K’ómoks Chief and Council processes outlined in this article is the is a planning consultant and the Director of and required a certain level of “thinking Nation’s involvement in the range of the Master of Community Planning Program out of the box” to include all aspects mentorship and sharing opportunities at Vancouver Island University. She can be of ecological and social sustainability. that have developed among First reached at [email protected]. Some of the recommendations that Nations in B.C. Many Nations such as DEVON MILLER, MSC (PLANNING) is a came out of the Plan include the the Gwa’ala-’Nakwaxda’xw, Musqueam, Planning Analyst at the City of Victoria. creation of a Sustainability Committee, Adams Lake Indian Band, Penticton He previously worked with the K’ómoks as well as “champions” for each of the Indian Band, West Bank and Tsouke First Nation on the Developer Guidelines action areas. K’ómoks Chief and Council First Nations were generous in sharing and Protocols as well as the Integrated continues to build on this initiative their knowledge and advice with Sustainability Plan. He can be reached at and anticipates that new actions will regards to the CCP process with the [email protected]. plan canada | WINTER · HIVER 2016 KNOWING: WAYS OF Indigenous Planning Education Engaging In Partnership For the neighboring Musqueam people, with connection, alone let contact, no virtually had it existence, its of years 60 first Yet, the for planning. progressive in aleader as itself regarded has and years 65 a mere for existence in been has (SCARP) Planning &Regional Community of School The years. 100 past the for territory unceded and ancestral, part of Musqueam’s traditional, significant but asmall occupied has (UBC) Columbia British of University city the before city the c’əsna?əm: multi-site multimedia exhibit, since time immemorial. The recent Columbia, British of Mainland Lower the as known now territory, large a haveinhabited grass, river the The Musqueam people, people of SUMMARY RPP MCIP, COOK JEFF AND LLB MA, BA, SPARROW M. LEONA PHD, SANDERCOCK BY LEONIE Indigenous community. an and auniversity between partnership educational in experience evolving this in challenges future and achievements, pains, growing our into insights some We offer Indigenous. are whom of nine students, twenty-two graduated has and old years four now is program The Planning. &Regional Community of School UBC’s in Planning Regional and Community in degree Master’s the of part program, (ICP) Planning Community Indigenous our of substance and origins the we described Canada, Plan INTRODUCTION: NEIGHBOURS , tells a part of this history. The The history. this of apart , tells WHO WERE STRANGERS WERE WHO

In the 2013 Indigenous Planning issue of issue Planning Indigenous 2013 the In respect and understanding is still planning principles. Act Indian the since them on imposed planning of model colonial top-down to the B.C. in Nations by First resistance specific as well as Canada, of government the and peoples Metis and Inuit, Nations, First between landscape and set of relationships political and legal the in changes broader of reflective is partnership educational this (ICP), Planning curriculum in Indigenous Community anew of delivery and design the for Musqueam Indian Band (MIB) in 2012 partnership between SCARP and the aformal into moving and 2011, in Sandercock and Leona Sparrow conversation between Leonie did. it day one Until governance. Musqueam with or This journey towards mutual mutual towards journey This exploratory an with Beginning of 1876, over-riding Indigenous Indigenous over-riding 1876, of RÉSUMÉ éducatif entre une université et une collectivité autochtone. collectivité une et université une entre éducatif partenariat en évolutive expérience cette de cœur au sont qui àvenir défis et réussites nos croissants, problèmes nos de aperçu un donnons Nous autochtones. sont eux d’entre 9 et diplômés sont en étudiants 22 ans; quatre de près depuis existe programme Ce Colombie-Britannique. la de àl’Université Planning Regional and Community of School du régional et communautaire urbanisme en maîtrise de programme du partie fait qui autochtones, peuples des d’aménagement programme notre de nature la et origines les décrit avons nous Canada, Plan de autochtones 1

Dans Dans l’édition 2013 de l’aménagement des peuples peuples des l’aménagement de 2013 l’édition

own award-winning Comprehensive Comprehensive award-winning own its completed just had Musqueam began, conversation this When planning”. of culture meaning “unlearning the colonial Musqueam, from to learn willingness a brought has SCARP planning. community way doing of their and way knowing, of their history, and culture their to share a willingness relationship to this have brought Musqueam stages. early the in issues involved. planning the of some we discuss this un/learning is unpacked, and of some article this In accomplish. to ageneration least at take surely will and planning, progressive of one been has self-image SCARP’s daunting task, especially because BECOME PARTNERS WHEN STRANGERS 2 This is a is This

49 plan canada | WINTER · HIVER 2016 WORKING IN A GOOD WAY WITH/ IN INDIGENOUS COMMUNITIES REQUIRES UNLEARNING THE TOP-DOWN, PRESCRIPTIVE, EXPERT-DRIVEN APPROACH TO PLANNING, AND A WILLINGNESS TO LISTEN TO AND LEARN FROM THE SPECIFIC COMMUNITY ABOUT ITS OWN TRADITIONAL (AND MODERN) WAYS OF PLANNING AND ITS OWN KNOWLEDGE SYSTEMS.

SCARP students visiting Skidegate Haida Immersion Program

Community Plan (CCP).3 Musqueam’s the values, planning, teachings, achieving their own aspirations for initial interest in this partnership and decision making systems of the self-determination, land stewardship, came from their desire to share their particular community. Furthermore, cultural revitalization, and community way of knowing and their way of working in any mainstream urban or health and wellbeing, and in doing community planning, as part of environmental planning context in managing their relationships with their longer term vision of producing Canada today requires an awareness surrounding municipalities and other a new generation of planners better and understanding of the meaning entities. This requires a signature prepared to work with and serve the and implications of Indigenous rights combination of classroom and aspirations of Canada’s Indigenous and title and an appreciation of and experiential, land and community- peoples. Musqueam offered in-house willingness to integrate traditional based learning – a combination we staff, their community facilities, their Indigenous knowledge and land are now being asked to scale up community plan, and opportunities stewardship practices into various and share the learning from our to learn from their knowledge planning, development, and decision- experiences to other institutions.5 holders, within their community. making contexts. This is as true for SCARP faculty directly engaged SCARP brought extensive experience planners working with municipalities in the ICP program have had their in western modes of planning or regional districts, transportation own un/learning to do, about the and specific skills in engagement agencies, port authorities, water and importance of listening, of ways of techniques, but limited experience power utilities, disaster preparedness showing respect, ways of conducting in engagement with First Nations, an units or urban developers as it is oneself, respecting cultural and inadequate budget,4 and a less than for planners working in health, research protocols, choice of unified front internally, concerning housing or any other social agency. language, and honouring silence, 50 the importance of Indigenous In part this is because of Indigenous but there is another piece of the planning. In fact, some faculty felt resistance and persistence and a ongoing learning that involves raising this whole initiative was unnecessary Supreme Court of Canada decision in the awareness of all SCARP faculty because “Indigenous planning is just 2004 mandating the duty to consult around Indigenous history and issues. like any other planning, isn’t it?” and accommodate Indigenous Not unlike earlier struggles But is it? Working in a good way peoples’ interests where they are around engendering planning with/in Indigenous communities likely to be affected by development curricula, where the battle was to requires unlearning the top-down, plans. In part it is because planning get all courses to feminize their prescriptive, expert-driven approach outcomes would be enhanced, syllabi, to recognize that planning to planning, and a willingness to arguably transformed by the is not a gender-neutral practice, listen to and learn from the specific integration of Indigenous ways of SCARP now faces the challenge community about its own traditional knowing and being. of moving beyond the ICP core (and modern) ways of planning and The goal of ICP in its first five program to recognize planning is not its own knowledge systems. Working years has been to inform and educate a culturally-neutral practice. While in culturally appropriate ways emerging community planners who this is part of ICP’s mission for its involves honouring and incorporating will support Indigenous peoples in second five years, it is likely to take plan canada | WINTER · HIVER 2016 longer to develop an understanding among faculty and students about the realities and consequences of Musqueam Indian Band planning’s colonial history and its ongoing colonial practices6,7,8 and to grasp the relevance of Indigenous Skidegate Band Council Tsilhqot`in National Government Tla`amin Nation ways of knowing and being. Our program is unique in at SCARP Indigenous Community Planning Program least two ways: we co-develop Student-Community Practicum Presentations curricula with Indigenous community Thursday, April 28, 2016 partners, prioritizing partnership 9:00 am - 1:30 pm and Indigenous leadership, and we Location: Musqueam Cultural Centre, 4000 Musqueam Avenue weave extensive practical experience RSVP AT: [email protected] into the fabric of the program. Prioritizing Indigenous partnership and leadership is reflected in the formal partnership with Musqueam to co-design and co-deliver the program and in our three practicum partnerships each year with host First Nations in B.C.9 In their second Students share year, students spend 350 to 400 the research and hours on reserve with a host First planning methods, For more information: creative community Nation, working on a priority aspect Jeff Cook, Instructor Phone: 604-626-9165 engagement of Comprehensive Community Email: and facilitation [email protected] techniques they’ve Planning (CCP), land use planning, acquired through or health and wellbeing planning, the program. as identified and directed by the host Nation. Students share the research and planning methods, Indigenous community planning, of Indigenous rights and title, creative community engagement land use, health and wellness opportunities are emerging for and facilitation techniques they’ve planning, including community self-determination in various forms, acquired through the program, engagement with Indigenous in turn creating opportunities for while at the same time immersing governments, organizations, trained, informed professionals themselves in and learning Indigenous housing, and Indigenous to be engaged by and with First respect for Indigenous culture and municipal planning. Nations. In B.C., especially in knowledge systems.10 We have been successful in the past decade, the emergence our goal to recruit roughly equal of Comprehensive Community numbers of Indigenous and Plans (CCPs), supported by the 51 SUCCESSES non-Indigenous students from regional office of Indigenous and Letters of support from host First across Canada. Northern Affairs Canada (INAC), Nations indicate students have not community health and wellness only learned from the community but planning supported by the First MEDIUM AND LONG TERM have also brought value to community Nations Health Authority, and ISSUES AND ASPIRATIONS processes and helped communities municipal governments increasingly move forward in a good way in Before colonization, Indigenous recognizing the importance of achieving their own aspirations. peoples were sovereign, self- learning how to work with First The benefit to students, governing Nations. Under the Nations living within or adjacent graduates, and communities is Indian Act they became “wards of to their boundaries, is creating evident in their written testimonials the state”, struggling to maintain increasing demand for such trained as well as in the 100 per cent their ways of knowing. There has professionals. So too is the spread of employment rate following students’ been a long history of resistance the CCP concept to other provinces. graduation. Graduates are working to this domination and, since the The need for a new generation across the broad spectrum of 1985 constitutional recognition of planners who understand and plan canada | WINTER · HIVER 2016 THERE IS A WEALTH OF UNTAPPED KNOWLEDGE IN INDIGENOUS COMMUNITIES, KNOWLEDGE THAT WOULD AUGMENT OR TRANSFORM THE PLANNING WORK OF HEALTH PLANNING, HOUSING, DISASTER PREPAREDNESS AND MORE.

facilitate dialogues, decision-making the consequences – costly delays and non-Indigenous students learning processes, relationships, and social conflicts. and working side by side; and UBC reconciliation with communities, Social services planners in working in respectful partnership as well as between Indigenous the health, housing, community with First Nations across B.C. ■ communities and governmental and development and educational fields LEONIE SANDERCOCK PHD is a professor private sector interests, is great and must shift to participatory processes and chair of the Indigenous Community growing. These emerging planners of service design and culturally Planning (ICP) program in the School of need to be fully competent in appropriate models of service Community & Regional Planning at UBC. mainstream planning processes and delivery, or face the consequences LEONA SPARROW, a member of the also fully informed about Indigenous – escalating social dysfunction, Musqueam Band, is their liaison to UBC, history, community, governing failed programs, wasted resources, and is Director of Treaty, Lands, and and social systems, and thought. and increasing disparities in living Resources with the Musqueam Indian Band; By honouring traditional ways of conditions of Indigenous and co-chair of the ICP Advisory Committee; knowing, being, and deciding, non-Indigenous Canadians. and an Adjunct Professor in SCARP. and supporting the restoration of There is a wealth of untapped JEFF COOK is Practicum Instructor for the traditional systems of planning and knowledge in Indigenous ICP program as well as Principal of Beringia decision-making, ICP graduates communities, knowledge that would Community Planning. are supporting broader cultural augment or transform the planning revitalization objectives expressed work of health planning, housing, by First Nations, and also supporting disaster preparedness and more. REFERENCES the decolonization of planning. There is a literature on “traditional 1. Sandercock, L., with J. Cook, L.M. Sparrow, & L. Grant. 2013. “Indigenizing The increasing demand ecological knowledge” that is Planning Education, Decolonizing across Canada for graduates slowly impacting the environmental Planning Practice”, Plan Canada, July 2013. with this training is driven by planning and resource management 2. Porter, L. 2010. Unlearning the Colonial three factors: the resurgence of fields, but Indigenous ways of Cultures of Planning. (Aldershot: Ashgate) Indigenous communities seeking knowing are relevant to all domains 3. See www.musqueam.bc.ca/sites/ self-determination and economic of planning. default/files/musqueamccp. 4. Five-year funding from the Real Estate sovereignty through various means; Ultimately, we hope to have an Foundation of BC enabled us to hire Jeff the crisis in living conditions on impact on the planning profession Cook to teach the key component of the program, the 8-month Practicum. many reserves, from housing to itself, whose 6,300 CIP members Operating costs have been covered clean water, physical and mental across Canada have an opportunity through annual funding applications within UBC, and by short-term support health, lack of opportunities for – and a responsibility – to acquire an from the Dean of Applied Science. 52 youth; and political and legal understanding of Indigenous history 5. 2016 funding from INAC supports expansion of the program. responses to these concerns, and planning in this country and the 6. Porter, L. 2010 contributing to a changing ongoing effects and implications of 7. Porter, L. and J. Barry. 2016. Planning for Co-existence? Recognizing Indigenous landscape within which planning four centuries of colonization. As rights through land-use planning in must operate. noted in the 2015 recommendations Canada and Australia. (London: Routledge) Infrastructure planners (working of the Truth and Reconciliation 8. Walker, R., T. Jojola & D. Natcher. Eds. for port, transportation, electricity, Commission, it’s time for learning 2013. Reclaiming Indigenous Planning. (Montreal: Queens-McGill gas, or water authorities), as well as institutions to take responsibility University Press) urban and economic development for addressing this truth, this 9. For details about core courses, internships, access to Practicum reports, planners, must be informed about history. ICP can be a significant step and a short video about ICP, see www. the significance of Indigenous rights in the direction of an embodied scarp-icp.ubc.ca. 10. Host Nations have included Skidegate and title, Treaty settlements, the reconciliation process: SCARP and Band Council (four years), Gitksan duty to consult and accommodate, Musqueam building the program Government Commission, Tobacco Plains Indian Band, Seabird Island Band (two and cultural heritage legislation together; SCARP and host First years), Lake Babine Nation, Tla’amin as it relates to protection of Nations’ mutual learning through Nation, Tsilhqot’in National Government, Toquaht Nation, and Old Massett Indigenous ancestral sites, or face collaboration; Indigenous and Village Council. plan canada | WINTER · HIVER 2016 QUEBEC SUMMARY This article presents an overview of the relationship between Indigenous INDIGENOUS communities and major planning actors in Quebec. It looks at the role played by COMMUNITIES INAC regional office, Quebec Ministry of Municipal Affairs, local governments, AND URBAN professional planning consultants and Indigenous communities themselves in PLANNING: shaping reserves. It also shortly reviews some innovative projects and A World Apart? practices from the 1970s up to BY DENISE PICHÉ MPS, MURB, PHD now. In conclusion, it tries to explain why the situation is not better known and presents some of the avenues to be explored to improve uebec seems to be a world apart when it comes to Indigenous planning, as well as Indigenous planning in Canada. Neither of the two our knowledge of previous special issues of Plan Canada on Indigenous Indigenous realities. Q planning1,2, nor the important reader Reclaiming Indigenous 3 RÉSUMÉ Cet article se penche Planning edited by Walker, Jojola and Natcher , refer to sur les relations entre les case studies and projects carried out in the province. This is communautés amérindiennes less surprising when one reviews publications in French on et les principaux acteurs de la planification du territoire au Indigenous communities and urban planning, whether academic Québec. Il examine le rôle joué or professional. There is indeed a scarcity of published work on par le bureau régional de this topic. One must go back to a special issue on housing of l’AADNC, le ministère des Recherches amérindiennes au Québec in 19754 to get a glimpse Affaires municipales du Québec, les gouvernements of what was happening…at the time. 53 locaux, les consultants en urbanisme et les communautés In this article, I will present what GOVERNANCE, INDIGENOUS elles-mêmes dans I discovered in my own research COMMUNITIES AND PLANNING: l’aménagement des réserves. Il concerning the relationship between FROM A FEDERAL revoit aussi rapidement Indigenous communities and the RESPONSIBILITY TO LOCAL quelques projets et pratiques planning community in Quebec GOVERNMENTS innovantes depuis les années before briefly reviewing some 1970. En conclusion, il tente innovative projects and practices from It is well known that Indigenous d’expliquer pourquoi la the 1970s until today. In conclusion, reserves are constitutionally the situation n’est pas mieux I will try to explain why the situation sole responsibility of the federal connue et il présente des is not better known and present government, and they are tightly avenues pour développer un some of the avenues to be explored regulated by the colonial Indian Act urbanisme autochtone, ainsi to improve Indigenous planning, and and the Ministry of Indigenous and que la connaissance du vécu more specifically our knowledge of Northern Affairs Canada (INAC). du cadre bâti des réserves. Indigenous realities. INAC Quebec Regional Office serves plan canada | WINTER · HIVER 2016 Figure 1. Uashat mak Mani-Utenam’s three urban parcels as represented in Sept-Îles land-use urban plan. (Ville de Sept-Îles, Plan d’urbanisme, 2007) Note: The smallest parcel in white is the old reserve, which predates the foundation of the city. Despite its historical significance, it is not considered in the particular urban plan for the town centre.

45 reserves and settlements, widely bought by Canada over a long Planning, as developed in British scattered all over the province and period of time. This leaves twenty-six Columbia and disseminated by varying in their status. However, reserves and three inhabited INAC, and Indigenous planning the nine Cree reserves and the only settlements on federal lands under as a particular way of envisioning Naskapi reserve all fall under the the responsibility of the Regional communities have not yet achieved a James Bay and Northern Quebec Office, each with a particular land breakthrough in planning circles and Agreement (JBNQA). These are the and planning history. Indigenous communities.6 only Indigenous communities for The planning involvement of the It is difficult to find a single which the provincial government Regional Office is mainly concerned explanation for the disconnect plays a major role. In comparison with the administration of the Indian between “new” approaches making with other communities, they enjoy Act and the various federal housing, inroads at INAC and their limited greater autonomy and a specific infrastructure and environmental integration in the practice of the land regime, and are therefore the programs; maintaining the Indian Regional Office. Obviously, the locus of some interesting planning Land Registry in collaboration with Regional Office’s practices are related 54 and local governance experiments. the Surveyor General Regional to problems as they are understood Four reserved lands are uninhabited: Office; and counselling the bands by multiple actors involved in Coucoucache, Doncaster, Whitworth facing particular planning problems. reserve land management. This and Cacouna. Five are settlements: Most optional federal programs includes the Indigenous communities Winnaway and Pakua Shipi located directly concerned with planning themselves, professional planners and on federal Crown Lands; Kitcisakik, a issues are sparingly used in Quebec. associations, planning educators and “squatter” settlement on provincial For instance, the provisions of researchers, as well as the Regional Crown Lands; Hunter’s Point, the FN Land Management Act Office, a dynamic which remains to be also a “squatter” settlement not (FNLMA) have not yet been applied studied. A preliminary investigation permanently inhabited; and the and only two bands are presently indicates for instance that First fifth settlement, Kanesatake, has a working at fulfilling the conditions Nations already manage their complex land history that, after the to gain control over their land reserved land quite effectively within Oka crisis, led to the Kanesatake management. The creation of urban the limitations imposed by the Indian Interim Land Base Governance Act reserves has not been exploited Act and that many have adopted (Bill-S-24) in 2001, which recognized by reserves located in rural areas.5 land codes outside the framework as a settlement all Mohawk land Comprehensive Community imposed by the FNLMA. Also, the plan canada | WINTER · HIVER 2016 A PROMISING CAUCUS OF MUNICIPALITIES NEIGHBOURING FIRST NATIONS CREATED IN 2004 WITHIN THE UNION DES MUNICIPALITÉS DU QUÉBEC COULD HAVE BEEN A CATALYST FOR RAISING INTERCOMMUNAL RELATIONSHIP AND PLANNING ISSUES, BUT UNFORTUNATELY IT IS CURRENTLY INACTIVE. language used in the community The relationships between our exploratory research highlights planning approach developed in Indigenous communities and local urban and regional planning British Columbia and circulated by local governments are tenuous ignorance of contemporary INAC is quite removed from how at best. The websites and public Indigenous realities and complexities, very localized issues are discussed. documents of very few municipalities, new trends indicate that it should and These observations call into question regional municipalities and urban could play a helpful role in rethinking the relevance of centrally conceived communities where there is a relationships between communities programs and approaches for local significant Indigenous population in space and development. Indeed, communities7, but also the relative describe their contemporary reality9, although in Quebec 72 per cent of isolation of Quebec’s communities although historical presentations First Nations people with registered from what is discussed in the West and documents often refer to their Indian status live on reserve (the and in Ottawa. past. Many local governments highest proportion in Canadian This brings us to the role of the sign service agreements with provinces), as elsewhere in Canada, Quebec government in Indigenous neighbouring reserves10, but a growing proportion of Indigenous planning issues. Although it is not their planning documents make persons live in urban centres.12 With an official actor in the 26 federal no substantial reference to their urban growth, some of the most reserves, through its ministry of off-reserve Indigenous population populous reserves are increasingly Affaires municipales et Occupation and they mostly represent enclosed contiguous to or encircled by the du territoire, it has a most important or neighbouring reserved lands as urban fabric. First Nation communities role in shaping issues related to a blank void (Figure 1). A promising in rural and remote regions now play local and regional planning in the caucus of municipalities neighbouring a major role in their development. province, and therefore mediating First Nations created in 2004 within Not only must these realities be the general planning debate. It is the Union des municipalités du recognized by planners and local surprising how very little this ministry Québec could have been a catalyst governments, but they are certainly has been directly concerned with for raising intercommunal relationship better equipped than the central Indigenous issues outside Inuit, and planning issues, but unfortunately government to take into account local Cree and Naskapi regions covered it is currently inactive. The colonial conditions to help create sustainable by the JBNQA. The ministry has yet “protection” from settler populations communities and harmonious to play a leadership role in raising imposed on Indigenous communities intercultural cohabitation. the awareness of municipalities by the central government left a and regions to the realities of their legacy of mutual ignorance that is INDIGENOUS GOVERNANCE Indigenous population and to the only beginning to be overcome. For 55 AND PROFESSIONAL presence of reserved land within instance, the territorial status of PLANNERS or neighbouring their boundaries, reserved lands remains so ambiguous and for that matter to develop its that recently the office of the With very few exceptions, reserves own thinking on the subject. Up to Directeur général des élections du were planned or widely extended now, the only information document Québec informed municipalities that after the Second World War, produced for local governments reserves’ inhabitants, who live within when the Canada Mortgage and conflates the Indigenous population their municipal boundaries, enjoy full House Corporation was created with the immigrant population. In local electoral rights as citizens.11 and began to spread suburban short, the province impacts the built Much remains to be done to housing development models and environment and development of understand and develop relationships when municipalities adopted urban Indigenous communities through between semi-autonomous regulations for their expansion that the actions of and funding by many Indigenous governments framed by led to the reproduction of these of its ministries and agencies8, but it the federal government and other urban forms. Therefore, it is not does not intervene in planning with or local and regional governments surprising that many FN communities for them. created by the provinces. Although were developed along the same plan canada | WINTER · HIVER 2016 56 plan canada | WINTER · HIVER 2016 RESEARCH SHOWS THAT IN BANDS THAT ARE STILL VERY CLOSE TO THE LAND, MEMBERS’ HOME ATTACHMENT IS TO THEIR HUNTING TERRITORY AND CAMPS, RATHER THAN TO THE HOUSES THEY INHABIT IN THEIR RESERVE. THEREFORE, IT IS NOT SURPRISING THAT WHILE PUBLIC CONSULTATIONS ON TERRITORIAL DEVELOPMENT AND LAND CLAIMS ARE Figure 2. (Above) Satellite images of three VERY POPULAR, reserves’ suburban urban forms: Pikogan in Abitibi (2011), Mani-Utenam in Côte-Nord CONSULTATIONS ON (2006) and Wendake’s post-60s expansion in Quebec (2003). Source: Google Earth RESERVE EXPANSION

Figure 3. (left) The discrepancy between PLANS CAN LOOK LIKE Unamen Shipu physical plan and the RUBBER-STAMPING community’s cultural values and uses. Photo: Pierre Lahoud EXERCISES. lines (Figure 2), considering these to maximize housing production and models dominated the views and limit immediate infrastructure costs; practices of professional surveyors, and they produce the zoning plans planners, engineers and construction and regulations that are prioritized firms, whether they worked for by financial institutions as well as federal agencies or as consultants to by INAC. On the other hand, band band councils. members are now used to this type Although these suburban of development that looks like what developments have been the object is being built elsewhere. Moreover, of criticism in planning circles for the research shows that in bands that are past 40 years, and their inadequacy still very close to the land, members’ for Indigenous communities voiced home attachment is to their hunting 57 by their members and numerous territory and camps, rather than observers, they are still reproduced to the houses they inhabit in their today, with all their well-known reserve. Therefore, it is not surprising problems such as the discontinuity that while public consultations on between urban fabrics, the territorial development and land infrastructure and environmental claims are very popular, consultations costs, and the lack of permeability on reserve expansion plans can look (Figure 3). On the one hand, the like rubber-stamping exercises. same consultants are hired again While the rationale behind the and again by many Indigenous planning framework imposed by communities because they deliver INAC over time certainly needs what the bands expect in terms of to be updated, there is a lot that timelines; they know how to respond professional planners and planning to the specific conditions imposed research can do to improve by INAC’s financial programs in order communities’ planning perspectives plan canada | WINTER · HIVER 2016 A B

C D

Figure 4. Examples of innovative planning and architectural projects. A. Chisasibi preliminary conceptual village plan (Source: Daniel Arbour & Associés, 197813) B. Ouje-Bougoumou as built from Douglas Cardinal’s master plan (Source: Google Earth, 2010) C. Mashteuiatsh extension plan (central zone) (Source: Gaston St-Pierre & Associés, 2014) D. Jennifer Papatie house as renovated, Kitcisakik, Québec (Photo: Guillaume Lévesque, Architectes de l’urgence Canada, 2012)

58 on their own terms. First, observing community, amenities that are not consultants must also prioritize and listening could go a long way in considered in the plans they are participation processes. New tools can this direction. As can be seen in Figure given. Furthermore, home facilities also support communities in taking an 3, communal space and possible for hunting-related activities that active role in planning. For instance, requirements for permeability in the don’t disturb the neighbours are witnessing that communities took urban fabric are key issues. Simple completely ignored in housing, plots for granted zoning plans produced remarks during casual conversations, and neighbourhood design. Second, by consultants, our research group consultation sessions and surveys can new visions must be developed Habitats et cultures, along with reveal profound cultural values that with and for communities, as well members of Innu communities and are entirely forgotten by functionalist as for public agencies such as their technical services, developed and bureaucratic planning. For INAC. Collaborative planning and architectural and urban design example, community members architectural studios in universities guides to help them visualize how have a strong attachment to the can explore diverse design directions simple changes in their environment landscape while plans often ignore that will help communities imagine and alternative planning premises natural features of the land. People the forms their community could take could improve their everyday want beauty and greenery in their in the future. Professional planning living environment. plan canada | WINTER · HIVER 2016 PLANNERS CAN NO LONGER IGNORE THE PRESENCE OF FIRST NATIONS IN THEIR WORK AND, IF PLANNING IS IMPORTANT, ITS KNOWLEDGE AND EXPERTISE CANNOT REMAIN ON THE FRINGE OF COMMUNITIES SEARCHING FOR THEIR AUTONOMY IN A JUST AND HUMANE FUTURE AND SHARED LIVING SPACE.

Communities are not simple extended families and clans; a just and humane future and recipients of external conditions. Oujé-Bougoumou, with its shared living space. They have their own planning much-rewarded community plan New perspectives on planning perspective and despite the fact that, and architecture by Douglas education and research have an to our knowledge, there are yet no Cardinal, developed with the important role to play to take Indigenous professional planners community and founded on a deep up these challenges. In Quebec, in FN technical services, bands and symbolic meaning; there are as yet no programs tribal councils are now becoming • the Innu community of in urban planning and regional planning consultants’ “real” clients Mashteuiatsh, with a new plan for development offering specific and more directly involved in planning its centre, probably inspired by training in Indigenous planning processes. For example, Wendake Oujé-Bougoumou’s; and its theoretical, historical and recently reviewed an expansion plan • Kitcisakik, an Anishnabe organic methodological specificities. proposed by its consultants and took settlement where houses are being Formalized research is limited the lead of a new planning orientation improved with the community by to two research groups15 and a that would be more environmentally Architectes de l’urgence, a non- few Master’s theses and projects. sensitive. Also, First Nations profit organization, while a local Now, there is ample justification businesses are now diversified, workforce is trained and certified and substance to imagine a new operating in natural resources, in building trades; compulsory course on Indigenous construction, tourism, culture and • on another scale, the Eeyou issues for planning programs, retail; and they develop their own Istchee James Bay Regional continuous education for planners health, education and recreation Government, a new mixed regional and co-educational activities with services. All these impact land use authority for shared regional the communities themselves.16 and call for a change in the types of planning and development. There are also plenty of issues to plans produced by planners. There are many other actions be researched, be it on the role In brief, we dare say that the and practices that need to be better of various actors in Indigenous planning profession in Quebec known, assessed and discussed. planning, comparative planning is lagging behind in terms of its In 2010, Urbanité, the Institut des methodologies or the variety of participation in a new relationship urbanistes du Québec’s bulletin, Indigenous settlements in the with First Nations, a situation that may initiated a conversation between province, both in terms of culture be changing. Indigenous presence and planning.14 and geography. Such measures But there is a need for a much would foster a new leadership in wider debate reaching out to Indigenous planning and invigorate 59 PROFESSIONAL, EDUCATIONAL planners, both in the public service discussions between institutional, AND RESEARCH PERSPECTIVES IN and private practice, who are not professional and community actors. INDIGENOUS PLANNING directly involved with Indigenous Many thanks to Gaëlle The picture painted in this article is communities; architects and André-Lescop, for sharing her partial in both senses of the word. We engineers who hold diverse views information and ideas. Thanks also did not review the individual planning of the built environment; academics to Émilie Robertson for the English experiments conducted over time, nor and researchers interested in revision, and to Julien Landry for the major planning operations in Cree planning and the built environment; illustrations. ■ and Inuit territories under the JBNQA. and the communities themselves. DENISE PICHÉ is associate professor at Figure 4 depicts some of these Planners can no longer ignore the the École d’architecture, Université Laval, innovative experiments that should be presence of First Nations in their Québec, member of the research group further examined: work and, if planning is important, Habitats et cultures, and co-researcher • three Cree communities: Chisasibi its knowledge and expertise cannot in the partnership project Living in and Nemiscau, communities taking remain on the fringe of communities Northern Quebec a cluster form to accommodate searching for their autonomy in www.habiterlenordquebecois.org/home. plan canada | WINTER · HIVER 2016 NOTES & REFERENCES reserve success story, but Wendake, in 8. To name but a few, the ministry of the north of Quebec City, is not located Énergie et Ressources naturelles 1. Cook, J. (Ed.) (2008) “Indigenous in a rural area and the whole reserve has through its forestry policies; the Planning Special Edition,” Plan Canada, been urban since its very beginning. The Secrétariat aux Affaires autochtones, summer issue. site is simply an addition contiguous to the agency entrusted with the 2. Cook, J, (Ed.) (2013) “Honouring its land base. responsibility for relations and Indigenous Planning. Renewing our 6. However, one professional at the partnerships between Indigenous Commitment to Action,” Plan Canada, Regional Office is actually working with a peoples and the government as well as summer issue. community interested in implementing a the coordination of the actions of all 3. Walker, R., Jojola, T., & Natcher, D. (Eds.). comprehensive community planning departments and agencies with said (2013). Reclaiming Indigenous Planning. approach. peoples; and the Société d’habitation Montreal and Kingston: McGill-Queen’s 7. It should also be noted that the FNLMA du Québec, which plays a major role in University Press. promotes an outdated and very limited the provision of housing in Nunavik, as 4. Le logement amérindien. (1975) managerial approach to land-use well as in financing off reserves housing Recherches amérindiennes au Québec. planning, and community planning more through Waskahegen, a non-profit Vol. 5, no. 4-5. generally, and it is out of sync with the organization, and housing improvement 5. The INAC website mentions the site of a value attached to communal land by in Kitcisakik and Maigna Agik (the latter boutique hotel in Wendake as an urban First Nations. not listed by INAC), the only two Indigenous settlements on provincial land. 9. This is based on the findings of ongoing research by the author on the relationships between thirteen Design municipalities and their regional governments on the one hand, and neighbouring Indigenous reserves on the other hand. 10. The Ministry is currently surveying COMPETITION municipalities on their formal agreements with First Nations. We No entry fee. intend to examine these agreements Saturday, May 6, 2017 using Alcantara and Nelles’ theoretical Cash prizes. framework (Alcantara & Nelles 2016, Fanshawe College, London, ON Nelles and Alcantara 2014). 11. A few reserves are excluded from Entry deadline: municipal boundaries because they Open to teams of three, full-time March 31, 2017 were founded before Quebec’s Canadian college & university students municipal regime was adopted or because they are located in non- organized territory. 12. Quebec still excludes 41,000 Métis from Contact: William Pol, MCIP, RPP its Indigenous population, most of them [email protected] 519-933-5152 living in urban centres. 13. I thank Marie Lessard, now associate professor at the Institut d’urbanisme, Université de Montréal, for giving me access to her archives from the time fanshawec.ca/urp2/designcompetition she was project director for Chisasibi. 14. Urbanité (2010), special issue on “Présence autochtone et aménagement du territoire”, summer, http://www.ouq. qc.ca/publications/urbanite/ urbanite-2002-2014. 838124_Fanshawe.indd 1 28/10/16 7:36 PM 15. Habitats et cultures at the School of Architecture at Université Laval has worked with Innu communities for many years and is now heading an interdisciplinary, multi-university and 60 collaborative team looking into housing in the North. www.habiterlenordquebecois.org/home. Odena at INRS-urbanisation focuses on Indigenous people in urban centres 16. Community colleges actually show a strong interest in developing programs for First Nations students. As an example, Cégep Garneau offers a new online program in housing management.

WORKS CONSULTED Alcantara, C. & Nelles, J. (2016) A Quiet Evolution. The Emergence of Indigenous- Local Intergovernmental Partnerships in Canada. Toronto: Toronto University Press. Nelles, J. & Alcantara, C. (2014) Explaining the emergence of Indigenous-Local intergovernmental relations in settler societies. A theoretical framework, Urban

plan canada | WINTER · HIVER 2016 Affairs Review, 50(5), 599-622.

821205_MacNaughton.indd 1 7/5/16 11:56 PM COLLABORATING TO PRESERVE Indigenous Heritage in Lethbridge, Albertaa BY PERRY STEIN MA, BA, SCOTTY MANY GUNS, ANDREW MALCOLM RPP MCIP, BA, NEIL MIRAU, AND CHELSEA KING

SUMMARY With the return to regional planning in RÉSUMÉ Avec le retour à la Planification régionale en Alberta, Alberta, the City of Lethbridge must ensure its la ville de Lethbridge doit s’assurer que son processus planning and decision-making are consistent with d’aménagement et de prise de décisions s’inscrit dans la the new vision for its watershed. To do so, the City nouvelle vision de ce tournant décisif. Pour ce faire, la ville a has initiated baseline data-gathering projects, mis en place des projets de collecte de données de références, including around historic resources. Better notamment en ce qui concerne les ressources historiques. La understanding historic resources from an ville a rapidement conclu qu’une meilleure compréhension des Indigenous perspective was identified early on by ressources historiques du point de vue des autochtones est the City as a way of building relationships with essentielle afin de nouer des relations avec le peuple des Blackfoot peoples, implementing the Truth and Pieds-Noirs et de mettre en œuvre des appels à l’action de la Reconciliation Commission’s Calls to Action, while Commission de vérité et réconciliation tout en restant also demonstrating Regional Plan compliance. conforme au Plan régional. L’exploration de cette notion Lethbridge’s exploration of this emerging aspect of émergente de l’aménagement urbain par la ville de Lethbridge Community Planning has taught them a great deal lui a permis de constater l’importance d’instaurer un climat de about building trust and awareness, collaboration, confiance et de sensibilisation, de même que l’importance de and the importance of implementation. la collaboration et de la mise en œuvre.

largely reflects a changing regional LETHBRIDGE economy: from the arrival of early Lethbridge is located in southwestern American whiskey traders, to the Alberta, at the confluence of coal industry, and later irrigation the St. Mary and Oldman Rivers agriculture and agri-processing. In approximately 200 km south of more recent years, the local economy 61 Calgary, and within Blackfoot has been strongly influenced Traditional Territory. The City by public sector work (such as is approaching a population post-secondary, hospital, and of 100,000 of which at least government workforces). 5 per cent self-identifies as Aboriginal.1 While the City’s history dates Lethbridge serves as a regional back some 110 years, a more fulsome economic, service and educational recounting of history shows that for hub with a trade area of over 275,000 several thousand years the Blackfoot people extending west into British and their ancestors have lived in Columbia and south into Montana. The the area now called Lethbridge. The City is bordered by Lethbridge County imprint of Siksikaisitapi can been and Kainai Nation, the largest First seen within the City’s river valley Nation Reserve in Canada. and in our “backyard” at places like Lethbridge was founded in 1906, Head Smashed-in Buffalo Jump, and the City’s post-settlement history Writing-on-Stone Provincial Park and plan canada | WINTER · HIVER 2016 on environmental and historic resources. Ultimately this data and the analysis that follows will be used to update our City’s highest order statutory plan, the Municipal Development Plan, and in that way demonstrate compliance with the Regional Plan as all lower order plans will successively fall into alignment.

ENHANCED INDIGENOUS COMMUNITY PARTICIPATION IN PLANNING Elders and Technicians from Blackfoot Confederacy Nations doing field work in the Oldman River Valley. Photo: City of Lethbridge. All of these distinct data collection efforts have meaning and THE TRADITIONAL KNOWLEDGE importance to the urban Indigenous AND USE ASSESSMENT IS THE CITY’S community living in Lethbridge and FIRST COMPREHENSIVE ATTEMPT TO to neighbouring Nations, as future patterns of growth and efforts to UNDERSTAND AND IDENTIFY TRADITIONAL protect environmental and historic KNOWLEDGE AND LAND USE FROM THE resource impact the way in which PERSPECTIVE OF INDIGENOUS PEOPLES. residents, visitors and our neighbours experience, identify with, are in the tapestry of names and stories impacted by, and feel included in REGIONAL PLAN COMPLIANCE associated with landscapes passed on the City. through generations. In 2015, the City of Lethbridge In recognition of this and initiated a cross-departmental effort following the direction of the to understand the implications of SSRP and its encouragement REGIONAL PLANNING the SSRP. The South Saskatchewan for greater collaboration with In 2014, the Government of Alberta Regional Plan Compliance Initiative “Aboriginal Albertans” (including adopted the second of seven Regional or SSRPCI, is focused on gathering specifically between Aboriginal Plans in the province: the South relevant baseline data to explore and non-Aboriginal planners and Saskatchewan Regional Plan or SSRP. the potential implications of the decision-makers), the City of The South Saskatchewan Region SSRP’s vision and outcomes, and to Lethbridge has actively sought (SSR) is 84,000 km2 in size, includes ensure that municipal planning and out the voices of Indigenous 84 urban and rural municipalities and decision-making is aligned. Starting in organizations and individuals on the First Nations, and is home to more 2015, and over the next four years, the SSRPCI project teams – including than two million people. The SSRP City will gather data to understand: Aboriginal Housing organizations, sets out a vision for the SSR for the 1. Land use and the factors that historians and traditional land use 62 next 10 years and is organized around influence land use efficiency (such experts. However, by far the most eight outcome areas: Economy, as market place, demographics, innovative way that the City of Air, Biodiversity and Ecosystems, infrastructure, administrative Lethbridge has collaborated with the Water, Efficient Use of Land, processes); Indigenous community is through the Outdoor Recreation and Historic 2. The presence and significance and exploration of historic resources. Resources, Aboriginal Peoples and health of key ecological resources Community Development. in our City (such as wetlands, HISTORIC RESOURCES The City of Lethbridge, like all riparian areas, wildlife corridors); municipalities in the SSR, is required 3. The presence, significance and Early on in the process of reviewing to undertake a review of its plans, health of historic resources in our the SSRP and envisioning the roll-out policies and decision-making tools City (including for the first time of the data collection projects to ensure their direction is consistent both First Nation and mentioned above, historic resources with the vision of the Regional post-settlement resources); and were identified as an incredible Plan. Municipalities are required to 4. The footprint and impacts of opportunity to strengthen the way complete this review within five years economic and tourism land uses on that the City works with Indigenous of the Regional Plan’s adoption. the future growth of our City and peoples (which leading into this plan canada | WINTER · HIVER 2016 project was quite limited). Around the In April, 2016 the TKUA formally planners, politicians, technical experts time that Lethbridge’s Community began with a ceremony in the Oldman and the broader community. For these Planners were scoping out how to River Valley with the participation reasons, this project means something approach data collection for First of Elders, politicians, Traditional different and has special significance Nation historic resources, the Truth Knowledge Officers, Community to each of its distinct stakeholders. and Reconciliation Commission (TRC) Planners and members of the SSRPCI The following sections of the Calls to Action were released and the project team. Over the next several article present the implications of Government of Alberta’s announced months, the Blackfoot Confederacy the TKUA to some of those key its commitment to the principles and Arrow Archaeology have stakeholders: Traditional Knowledge and objectives of the United been gathering information about Officer; Community Planner; Nations Declaration on the Rights of traditional knowledge and land use Archaeologist. Indigenous Peoples (UNDRIP). from Elders, experts and through Scotty Many Guns, Both the TRC Calls to Action, archival research and field visits. Traditional Knowledge Officer which push municipalities to provide When the project concludes in early “It is critical that traditional use more inclusive and accurate histories 2017, a final report will be presented sites be preserved and remain viable (away from the Doctrine of Discovery to the SSRPCI project team with for future generations of Blackfoot and idea of Terra Nullius), and the recommended implementation and non-Blackfoot people alike. The UNDRIP’s principle that Indigenous strategies for the collaborative traditional knowledge experts of the peoples have the right to their identification, commemoration and Confederacy applaud Lethbridge’s cultures, histories and languages, preservation of traditional knowledge efforts in recording, protecting and ultimately informed how historic and use sites within the borders of the preserving these sites, working to resources data collection was City of Lethbridge. build a close relationship between the conceived and the intent through City and the Confederacy.” which it was approached. Andrew Malcolm, IMPLICATIONS SSRPCI approaches historic Community Planner resources not just from the The TKUA is the City’s first “A truer understanding of our perspective of identifying sites comprehensive attempt to shared heritage – which includes and telling their history (which is understand and identify traditional both Indigenous and post-contact a valuable process), but in a way knowledge and land use from the historic resources – is the that highlights the larger history perspective of Indigenous peoples. cornerstone of community identity of Blackfoot traditional use and Because the work is being led by and an essential component to a occupancy of this place we now call the very Peoples whose knowledge well-planned, inclusive, vibrant and Lethbridge (implementing specific we seek to learn more about, it healthy community.” TRC Calls to Action), includes represents a significant departure Neil Mirau, Archaeologist discussions of Rights to traditional from the norm and an opportunity to “The Blackfoot Confederacy is knowledge, as well as collaborative foster strong relationships between a political and cultural entity that is methodologies for the preservation Indigenous and non-Indigenous older than any modern nation-state of identified sites.

TRADITIONAL KNOWLEDGE AND USE ASSESSMENT 63 In early 2016, the City of Lethbridge went through a competitive procurement process to identify a consultant to undertake a Traditional Knowledge and Use Assessment (TKUA). As part of that process, all of the First Nations within the SSR were notified and invited to submit proposals (alongside other interested parties). Ultimately, the successful proponent was a combined proposal by the Blackfoot Confederacy Nations (Kainai, Piikani and Siksika Nations) and The Kick-off Ceremony to the Traditional Knowledge and Use Assessment project. Arrow Archaeology. Photo: City of Lethbridge. plan canada | WINTER · HIVER 2016 and over the millennia, individuals generations of broken promises and where one side (typically the and groups that were part of the cultural genocide. To be able to non-Indigenous side) takes more Confederacy left many traces of work together effectively, trust than they put in (be it is resources their presence. If historical traces must be built at the technical level or knowledge). What better way to are not identified, protected and and the political level. In Lethbridge build a relationship and explore potentially relocated, they are at risk we did this by being present at Indigenous heritage then to work of being destroyed and forgotten as different cultural events, regional with (and compensate) the very has already happened at hundreds First Nation meetings, and getting peoples whose knowledge you wish of thousands of archaeological sites to know local leaders. Trust building to learn about. In Lethbridge, the around the world”. without agenda or pretext is procurement process was open to necessary before relationships can all Nations with the SSR who were shift towards specific outcomes. invited to participate alongside NEXT STEPS • Know your history and your private sector firms. After the TKUA is completed, its neighbours: It is impossible to • Value the process as an outcome: recommendations and baseline data understand the value of historical The old cliché that the journey is (for example, locations of sites) will resources without first learning worth more than the destination be included in the recommendations about the historical context within definitely applies here. The process that form part of the larger SSRPCI which those resources exist. This of understanding the context for project. These recommendations will includes learning about the work, building relationships, be presented to the community at an colonization, treaties, residential scoping out a project and working open house and to Lethbridge City schools, the Indian Act, recent court through it collaboratively with First Council. The hope is that the TKUA’s cases, among other key local events Nations is the real outcome of any recommendations, alongside other and issues. Beyond history, to be project, including the recommendations from the SSRPCI able to build relationships with First Lethbridge TKUA. that address the policy areas of the Nations neighbours and urban • Implement: Circling back to trust SSRP (economy, water, air, biodiversity, Indigenous communities, you need building, implementing the efficient use of land, and others) will be to understand contemporary recommendations or outcomes that incorporated into the next update of priorities, challenges and emerge from a TKUA-type project the City’s Municipal Development Plan, opportunities, be they economic, or relationship building exercise is ahead of our compliance deadline of social, legal or otherwise. In crucial. If recommendations or September, 2019. Lethbridge, we organized a series outcomes are lost, or if the From that point forward, we hope of education and awareness training communication loop at the back that Indigenous heritage will form sessions for municipal leaders and end of a project isn’t effectively part of the baseline context through reached out to local Indigenous closed, then you risk losing all the which planning and land use decisions heritage leaders. social capital and trust that are made in Lethbridge, much in • Understand why: Don’t approach you accumulated. ■ the same way that we have come relationship building or Indigenous to do for geotechnical, biophysical, heritage just because you think you PERRY STEIN MA, BA, is a Community transportation and other variables. should or because it is now suddenly Planner with the City of Lethbridge.

on the political agenda. If you SCOTTY MANY GUNS is a Traditional cannot clearly answer the “so what” Consultation Officer of the Siksika Nation. LESSONS LEARNED 64 question (even if your answer is ANDREW MALCOLM RPP, MCIP, BA, is a For other municipalities that are simply “to have a relationship”), step Community Planner with the City considering undertaking a similar back and learn more. You may want of Lethbridge . project to better understand to start by reading and speaking the presence and significance of with local leaders about the TRC NEIL MIRAU is a Senior Archaeologist and Indigenous heritage, whether for a Reports and UNDRIP. Ask questions Partner at Arrow Archaeology.

specific planning area or across entire like: How can we implement the TRC CHELSEA KING is a GIS Technologist with landscapes, or for those municipalities Calls to Action through land use the City of Lethbridge. simply interested in building a planning and heritage preservation? relationship with their neighbouring What is the role of planning in NOTES Nations, we provide some key lessons reconciliation? 1. This number is based on the 2011 National learned from the perspective of City • Be collaborative: Open up the Household Survey, but is likely much higher as it does not account for post-secondary of Lethbridge Community Planners. process and the work to the Nations students who live in the City during the • Build trust: There is a lot of distrust themselves. Too often relationship school year or individuals who may live temporarily in the City for other economic between First Nations and all levels building with Indigenous peoples is or social reasons. A more accurate number of government, grounded in based on an unequal power dynamic is more likely closer to 15 per cent. plan canada | WINTER · HIVER 2016 BRINGING DECISION-MAKING CLOSER TO HOME: A Health and Wellness Planning Ecosystem BY LEANNE MARTINSON, CONNIE JASPER AND TRISH OSTERBERG

SUMMARY Over the past ten years, RÉSUMÉ Au cours des dix dernières années, des mesures transformative First Nations health and wellness transformatrices d’aménagement en matière de santé et de planning approaches were charted in British bien-être au sein des Premières Nations ont été adoptées en Columbia. The first of its kind in Canada, the Colombie-Britannique. L’Autorité sanitaire des Premières Nations province wide First Nations Health Authority de la province, la première en son genre au Canada, opère selon (FNHA) works through an ecosystem health and une approche en partenariat d’aménagement en matière de santé wellness planning and partnership approach et de mieux-être des écosystèmes, qui fait le pont entre les which links community priorities to regional and priorités de la collectivité à l’aménagement régional et provincial. provincial planning. This is a grassroots planning Il s’agit d’un modèle d’aménagement populaire. En effet, les voix, model, where B.C. First Nations voices – their les points de vue et les priorités des Premières Nations de la perspectives and priorities – guide regional and Colombie-Britannique dirigent les investissements et provincial health and wellness planning and l’aménagement en matière de santé et de bien-être à l’échelle investments. Decision-making has been brought régionale et provinciale. La prise de décision s’effectue closer to home through five regional FNHA maintenant de façon plus locale, par l’intermédiaire de cinq teams, Regional Health and Wellness Plans, and équipes d’autorité sanitaire des Premières Nations, de plans innovative and partnership-based régionaux de santé et de bien-être et d’investissements locaux regional investments. novateurs, fondés sur une relation de partenariat.

INTRODUCTION province-wide First Nations health PROFILE: In 2006, First Nations in B.C. authority of its kind in Canada. We embarked upon a shared journey aspire to transform the health and Seven of health reform. First Nations, the well-being of B.C.’s First Nations, Directives Province of British Columbia, and the in part, through more effective Government of Canada determined healthcare planning. DIRECTIVE #1: Community- 65 that First Nations health disparities First Nations in B.C. developed Driven, Nation-Based were no longer acceptable. These the Seven Directives to describe DIRECTIVE #2: Increase First Tripartite Partners developed a the standards and instructions for Nations Decision-Making series of agreements and collectively the health governance relationship. and Control planned to create a new First Nations These directives serve as guiding DIRECTIVE #3: Improve Services health governance structure with standards for FNHA planning DIRECTIVE #4: Foster the First Nations Health Authority approaches. We find the following Meaningful Collaboration (FNHA) as one component. In 2013, common threads effective when and Partnership the FNHA assumed responsibilities planning: the importance of DIRECTIVE #5: Develop Human formerly held by Health Canada’s culturally relevant and holistic health and Economic Capacity First Nations Inuit Health Branch – and wellness planning; creating DIRECTIVE #6: Be Without Pacific Region as well as a broader space for First Nations priorities to Prejudice to First Nations mandate of working with the Province drive change; bringing decision- Interests of British Columbia to improve making closer to home; and the DIRECTIVE #7: Function at a health services accessed by First importance of thinking of planning High Operational Standard Nations in B.C. The FNHA is the first from an ecosystem perspective. plan canada | WINTER · HIVER 2016 B.C. FIRST NATIONS PLANNING APPROACH

Since time immemorial, First Nations have planned for their families and communities, grounded in and guided by First Nations traditions and culture. Under the previous federal system, planning approaches could be developed in Ottawa and implemented in a region. Our goal is to invert that system. It will take time, but we have made significant strides forward. The B.C. First Nations planning approach respects community and regional driven processes and is a ground up planning model. B.C. First Nations Planning Approach Today, B.C. First Nations are gathering to strengthen a health and wellness planning ecosystem respectful of traditional ways. This TAKING THE TIME TO SUPPORT represents a significant and exciting COMMUNITY AND THEN REGIONAL shift away from centralized health LEVEL PLANNING CONVERSATIONS HAS planning and funding approaches towards integrated regional health STRENGTHENED OUR UNDERSTANDING and wellness planning driven by OF AND ABILITY TO RESPOND TO community and regional planning HEALTH AND WELLNESS PRIORITIES priorities. The approach is built on ACROSS OUR HEALTH ECOSYSTEM. the Seven Directives, a First Nations Perspective on Health and Wellness and a set of accompanying planning Our engagement-based model standards which honour the voices focuses on B.C. First Nations’ and direction of communities. priorities, goals and perspectives, which shape the plans and investments made regionally and PROFILE: provincially. We are also focused on B.C. First effective working relationships with partners such as Regional Health Nations Authorities to coordinate planning Perspective at different levels within our health 66 ecosystem. We are focused on on Health bringing decision-making closer to and Wellness home by supporting planning, priority setting and investments at community and regional levels. A common thread across the Innovative and transformative diverse First Nations cultures in approaches to health care. We health and wellness planning B.C. is a holistic perspective on see health and wellness as a approaches are happening on the health and wellness reflective lifelong journey and endeavor to ground. In response to First Nations of the interconnectedness of support First Nations individuals priorities and innovation, the FNHA the mental, physical, emotional and communities as they change established five regional teams, and spiritual facets of life. The and grow. The Perspective on a practical approach to building FNHA champions a First Nations Health and Wellness has shifted relationships and integrated planning perspective on health and FNHA planning approaches from work with Regional Health Authorities. wellness that balances a holistic health planning only to health and FNHA regional teams work on view of health with mainstream wellness planning. community engagement, planning plan canada | WINTER · HIVER 2016 health and wellness priorities and approaches. First Nations and Regional Health Authorities have also signed Regional Partnership Accords, describing commitments to align planning, programming and service delivery; enabling First Nations to more fully participate in the design and delivery of local and regional health services; and offering new opportunities to address barriers and resolve problems. Culturally relevant and innovative regional planning approaches are common practice and are informing the evolution of partnerships with local partners. Multiple First Nations communities within a region are able to partner with local health authorities based on clear priorities from their regional PROFILE: plans and accords. Fraser Salish Regional Health and Wellness Plan LOCAL PLANNING PRIORITIES SPARK NEW INVESTMENTS IN B.C. FIRST NATIONS HEALTH The Fraser Salish Regional Health and Wellness Plan is a living document which establishes a common regional health and wellness voice and Community, Nation and Regional perspective and charts a path forward. The Fraser Salish region represents Health and Wellness Plans developed 32 communities, and four language families (Halq’eméylem, Hul’q’umi’num, through culturally relevant planning N’laka’pamux and Senćton) representing nearly 10,000 First Nations approaches are creating opportunities people. The plan was developed by a regional working group who captured for joint investment planning. Through the discussions and wisdom shared by the Fraser Salish people over the available resources, we are supporting years. The plan was adopted by Fraser Salish Chiefs and leadership. integration of health services to better An important plant resource for the Fraser Salish people is the meet regional health and wellness cedar tree which is why the plan is depicted through the parts that needs and address policy barriers. make up a cedar basket – Pillars, Common Threads, and the Base. The First Nations are coming together in Pillars represent core regional priorities, Common Threads the cross- regions to jointly plan and prioritize cutting themes woven across all Pillars, and the Base of the basket is relevant and innovative primary the foundation for continuous quality improvement, including planning health care projects. As of spring and evaluation based on quality information and data. The essential 2016, 30 unique projects based on approaches guiding the journey are inside the basket, including the Vision, local and regional planning priorities Unity Declaration, Seven Directives and the B.C. First Nations Perspective were approved in areas such as 67 on Health and Wellness. locally determined primary care, The plan brings health and wellness planning and decision-making maternal and child health, and mental closer to home and is helping to establish a wellness system through wellness and substance use services. partnerships and respect for diversity, culture, and traditions. Projects are developed, submitted and/or implemented in partnership with regional health authorities, FNHA regional directors, and local and project development, often in organizations. Each project plan REGIONAL PARTNERSHIP collaboration with local partners. outlines how the project will work with PLANNING Taking the time to support community local partners. and then regional level planning As directed by B.C. First Nations, One example is in the Nenqayni conversations has strengthened each region developed a Regional Wellness Centre Society, which our understanding of and ability Health and Wellness Plan. This expanded health programming for to respond to health and wellness regional planning approach is its mobile treatment service, serving priorities across our heath ecosystem. resulting in a common voice, 15 rural and remote Tsilhqot’in, plan canada | WINTER · HIVER 2016 PROFILE: Tsilqhot’in Nation Health and Wellness Plan

The Tsilhqot’in, meaning “people of the river,” are a TNG staff, and was supported by two UBC students Dene-Athapaskan speaking people, numbering 4,100 from the School of Community and Regional Planning members (2008 estimate) who live between the Fraser Indigenous Community Planning Program. River and Coast Mountains in west-central B.C. Prior Health staff and community members to contact, communities actively lived off the land. determined common health strengths, challenges Colonization and assimilation impacted Tsilhqot’in and opportunities. Through the planning process, people’s health and wellness, bringing diseases and participants celebrated and drew on their traditions, forcing children into residential school. Despite many core values, and culture related to health to determine losses, many members practice traditional medicine priority objectives and appropriate actions. The and speak Tsilhqot’in. Tsilhqot’in Nation Health and Wellness Plan was In fall 2015, the Tsilhqot’in Nation Government framed in five phases using the Tsilhqot’in story of the (TNG) opted to develop a Nation level Health and Salmon Boy “Deyenz Lhy Belh Nandlag,” a story of Wellness Plan with the goal of updating and deepening transformation and travelling back to where one began the Interior Regional Health and Wellness Plan. It with new knowledge and strength. The plan and the can be challenging to plan at a Nation level when planning cycle are organized around this story which is funding is typically applied at a community level. an example of a way in which planning can be informed However, TNG was hopeful that a nation-level plan by culture. could lead to greater coordination in priority setting The planning process helped to ensure that and planning processes, would bring communities community projects and programs make sense, are the together and potentially create new opportunities for best use of resources, and link to other Nation health leveraging resources. plans. The tools and techniques used in this planning Tsilhqot’in communities are geographically diverse process were designed to strengthen collaborative and have unique governance structures and processes. planning between communities, harness expertise, The planning process supported collaboration between make the best use of resources and strengthen the six Tsilhqot’in community health departments and community planning processes.

Carrier and Shuswap communities. this spirit, the FNHA introduced two engage in appropriate services, Mobile treatment enhances access Wellness Navigators that facilitate a and champion strength-based, to culturally sensitive counselling, person-centred and holistic approach life-affirming approaches rehabilitative services, education, food, to care, including providing tools to building community and day programs and workshops. for individual health and wellness individual capacities. The overall Another example is the Fraser planning to enhance health literacy, goal is to support individuals Salish Region which emphasizes empowering individuals with on a transformation journey to active participation by citizens in knowledge about the health and becoming healthy, self-determining 68 the health and wellness journey. In wellness system so that they can and vibrant beings.

Plaza Three, 101-2000 Argentia Rd., Mississauga, Ontario L5N 1V9 Tel: (905) 272-3600 Fax: (905) 272-3602 e-mail: [email protected]

Consulting Services include:

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774169_Malone.indd 1 10/20/15 2:27754751_Watson.indd AM 1 27/06/15 3:08 AM On Vancouver Island, an innovative community-based Primary Care Teamlet now offers a continuum of care at Cowichan’s Ts’ewulhtun Health Centre. The teamlet model uses a holistic approach and allows community members to access most medical services in one location. These approaches mark a move away from planning in silos and show how planning together from a health and wellness perspective can result in shared resources and innovate projects benefitting multiple communities.

LEARNINGS

Full transition to our planning model is taking time – particularly given the complexity, volume and different levels of health and wellness plans. The FNHA is now thinking about service standards and the relevant scope of plans at each level in order to support effective alignment and linkages of plans within our ecosystem. LEANNE MARTINSON is a Director of 2002 and has been in her current position We have learned many things Planning with the First Nations Health since 2010. Connie was born and raised in along the way in our transformative Authority. She holds a Masters of Arts the Chilcotin. health and wellness planning journey, in Planning from UBC and is a member TRISH OSTERBERG is Regional Director – and we continue to learn. We have of the Tsal’alh First Nation in British Fraser Salish Region with the First Nations learned that remaining grounded in Columbia. Health Authority. She holds a Master of our Seven Directives, the B.C. First CONNIE JASPER is a Health Manager Science (Plant Science) from UBC and is Nations Perspective on Health and with the Tsilhqot’in National Government. a member of the Squiala First Nation in Wellness and the expressed priorities She has worked in the health field since British Columbia. of B.C. First Nations communities is foundational to our ecosystem planning work. Appropriate and culturally relevant planning and engagement approaches are also Environmental Design important. We have found that communities coming together to 69 collaborate and plan is making a COMPETITION difference – sparking innovation and joint projects on the ground. We samedi 6 mai 2017 Pas de frais d’entrée. have learned that effective working Fanshawe College, London, ON relationships with various partners La date de including Regional Health Authorities (compétition) ouverte à équipes de contribution: help to align planning at different trois, étudiant(e)s à plein temps 31 mars 2017 levels and increase First Nations participation in the design of health Contact: William Pol, MCIP, RPP services and programs. The FNHA [email protected] 519-933-5152 will continue to work as a willing partner with our communities in support of health and wellness for B.C. First Nations individuals, families www.fanshawec.ca/urp2/designcompetition and communities. ■ plan canada | WINTER · HIVER 2016

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PATRICIA MALONEY RPP, FCIP FIRST NATIONS ARE NOT MUNICIPALITIES

ften we think that once level of self-governance, and economic we have completed our development abilities. When I started degrees and started working with First Nations, the main work, we are finished thrust of the work was completing Owith learning. Oh, we might meet our physical development plans that learning credits, but we generally identified the infrastructure required. believe we have the tools to complete These plans were led by INAC with our duties as a professional planner. minimal community engagement. Well, I was proven wrong about Over the last 25 years, we have seen 25 years ago when I had my first significant changes in the scope and opportunity to work with a First Nation. sophistication of the plans and studies I was asked to prepare a “town plan” completed by First Nations. While for the Siksika Nation as an add-on knowledge was historically passed on to a highway upgrade plan. My great verbally through stories, First Nations fortune was to meet Allan Wolf Leg, my are now mapping their traditional mentor and long-time friend, who had knowledge and writing their goals, the grace to guide me through working objectives and policies. They are with a First Nation. Now, years later, I adopting comprehensive community have worked with over 24 First Nations. plans that provide direction for their While I have taught Land Management at growth and formulating economic knowledge the Banff School of Management development strategies that incorporate was historically Aboriginal Studies and the Centre for education and training for their Indigenous Environmental Resources; members. While First Nations’ land has passed on prepared and taught courses for INAC been traditionally held communally and verbally through (Indigenous and Northern Affairs not thought of as a commodity that is stories, First Canada) and spoken at First Nation bought and sold, many First Nations Land Managers Conferences. are turning to land development 70 Nations are now mapping Among the first things I learned both on and off reserve for economic their traditional was that Indigenous peoples do development, to create employment not perceive land the way non- and generate income. Several First knowledge and Indigenous peoples do. Land is Nations have demonstrated their writing their generally considered communal and progressive economic development goals, objectives housing is often considered a liability with major land development projects and policies. rather than an asset. The legacy of such as West Bank in Kelowna, B.C. residential schools and the colonization (West Bank First Nation), Grey Eagle of the First Nations has damaged Casino and Resort (Tsuut’ina First generations. Social issues abound. Nation in Calgary, Alberta), Great Blue And, in its fiduciary role, the federal Heron Casino (Port Perry, Ontario) and government continues to treat First Tsawwassen Mills (Tsawwassen First Nations people as incapable, rather Nation in Delta, B.C.). than training them to self-govern. For those planners who have never First Nations vary across the worked with a First Nation before, country in terms of their independence, CONTINUED ON PAGE 72 plan canada | WINTER · HIVER 2016 PATRICIA MALONEY UPC, FICU LES PREMIÈRES NATIONS NE SONT PAS DES MUNICIPALITÉS

ous croyons souvent représente davantage un passif plutôt des composantes éducatives et qu’une fois nos diplômes qu’un actif. Les pensionnats et la professionnelles pour leurs membres. en poche et notre carrière colonisation des Premières Nations Alors que traditionnellement les amorcée, nous avons ont causé du tort à toute une terres des Premières Nations étaient Nterminé notre apprentissage. Ou génération. Des questions sociales un bien communautaire et non une que lorsque nous avons obtenu nos abondent. Le gouvernement fédéral, marchandise que l’on pouvait acheter crédits d’apprentissage, nous croyons dans son rôle de fiduciaire, a encore ou vendre, plusieurs de ces Nations avoir tous les outils nécessaires tendance à traiter les peuples des se réorientent maintenant dans pour accomplir nos tâches en tant Premières Nations comme des gens l’aménagement du territoire tant dans qu’urbanistes professionnels. Et inaptes, plutôt que de les former les réserves que hors de celles-ci, en bien, on m’a prouvé que j’avais tort à s’autogérer. tant que stratégie de développement il y 25 ans de cela, lorsque j’ai eu L’indépendance, le niveau économique ayant pour objectif de ma première de travail avec une d’autogestion et les capacités de créer des emplois et générer des Première Nation. On m’a demandé développement économique des revenus. Plusieurs Premières Nations de réaliser un « plan de ville » Premières Nations varient d’un ont fait état de leur développement pour la Nation Siksika en tant bout à l’autre du pays. Lorsque j’ai économique progressiste dans le que complément d’un projet de débuté avec les Premières-Nations, cadre de projets d’aménagement revitalisation d’autoroute. J’ai eu la l’orientation principale de notre d’envergure tels que West Bank à chance de rencontrer Allan Wolf Leg, travail constituait à ébaucher des Kelowna en Colombie-Britannique mon mentor et ami de longue date, plans d’aménagement physique (Première Nation West Bank), qui a eu la grâce de me guider dans qui identifiaient les infrastructures Grey Eagle Casino and Resort mon travail avec une Première Nation. requises. Ces plans étaient menés (Première Nation Tsuut’ina à Aujourd’hui, plusieurs années plus par Affaires autochtones et du Nord Calgary en Alberta), Great Blue tard, j’ai eu la chance de travailler Canada (AANC) et il y avait très peu Heron Casino (Port Perry en avec plus de 24 Premières Nations. de participation communautaire. Ontario) et Tsawwassen Mills J’ai enseigné la gestion des terres Au cours de 25 dernières années, (Première Nation Tsawwassen à Delta 71 à la Banff School of Management de nombreux changements se sont en Colombie-Britannique). Aboriginal Studies et au Centre for opérés en terme de portée et de Voici quelques conseils pour une Indigenous Environmental Resources, raffinement des plans et des études collaboration fructueuse, destinés aux j’ai préparé et enseigné des cours réalisés par les Premières Nations. urbanistes qui n’ont jamais travaillé pour AANC (Affaires autochtones Traditionnellement, les connaissances avec les Premières Nations. et du Nord Canada) et fait des étaient transmises à l’oral par des allocutions lors de conférences histoires. Les Premières Nations 1. Respect – Respecter la culture, de gestionnaires des terres des consignent maintenant leur savoir le processus et les personnes. Ne premières nations. traditionnel, leurs buts, leurs objectifs dérangez pas un ainé. Posez la L’une des premières choses que j’ai et leurs politiques. Ils ont des projets question lorsque vous ne savez apprises est que les Premières Nations de planification communautaire pas quelque chose. Certains ne perçoivent pas les terres de la globale qui donnent une orientation peuples des Premières Nations même façon que les non autochtones. à leur croissance et ils élaborent sont plus traditionnels que d’autres; En effet, ils les considèrent comme un des stratégies de développement les processus des municipalités bien communautaire et l’immobilier économique qui comprennent SUITE À LA PAGE 72 plan canada | WINTER · HIVER 2016 FELLOWS’ CORNER | DU CÔTÉ DES FELLOWS

CONTINUED FROM PAGE 70 SUITE DE LA PAGE 71

here are a few tips to help make your collaborations sont tous légèrement différents, il en va de même pour les successful: processus des Premières Nations. 1. Respect – Respect the culture, respect the process 2. Loi – Bien que la majorité des lois et du financement and respect the people. Do not interrupt an Elder. If proviennent du gouvernement fédéral, chaque province you don’t know something, ask. Some First Nations et chaque région comporte des règlements, des initiatives are more traditional than others, but just as et des traités légèrement différents. Par exemple, la municipalities all have slightly unique processes, so do structure des traités étant très formelle et en vigueur First Nations. depuis 140 ans en Alberta, les Premières Nations de la 2. Legislation – While most of the legislation and Colombie-Britannique négocient actuellement les traités. funding comes through the federal government, each 3. Partneraire – Votre rôle consiste à écouter le chef, le province and region has slightly different rules, conseil et les membres de la Nation pour comprendre leurs treaties and initiatives. For example, while the Treaty préoccupations et les enjeux auxquels ils font face. Vous structure is very formal and has been in existence for n’est pas là pour imposer des lois et règlements municipaux, 140 years in Alberta, First Nations in British Columbia mais pour établir un partenariat avec la Nation afin d’élaborer are negotiating treaties now. des solutions. Gagnez leur confiance en tant que conseiller. 3. Partner – You are there to listen to the Nation chief, 4. Patience – Même si vous travaillez probablement dans council, and members and to understand their un monde des affaires en rapide évolution, les Premières concerns and issues. You are not there to impose Nations ont des perspectives différentes quant au temps municipal rules and regulations, but to partner with ainsi que d’autres priorités. Souvenez-vous que plusieurs the Nation to develop a solution for them. Earn trust collectivités des Premières Nations sont petites et peuvent as an advisor. être affectées par un événement de faible envergure. Ils ne 4. Patience – While you might work in the fast-paced subissent pas les mêmes pressions en ce qui concerne les corporate world, First Nations have different approbations des projets de développement. Il n’y a aucun perspectives on time and different priorities. morcellement des terres. Remember that many First Nations are small, and can 5. Reconnaissance – Si vous avez l’occasion de travailler avec be affected by a small event. They do not have the un peuple de la Première Nation, soyez reconnaissant de same pressure for approving development. There is no pouvoir apprendre et approfondir vos connaissances et subdivision of land. votre compréhension. 5. Gratitude – If you have the opportunity to work with a Assurez-vous de comprendre les politiques de la Première First Nation, be grateful for the chance to learn and to Nation. Souvenez-vous que les collectivités sont en majeure expand your knowledge and understanding. partie composées de grandes familles ou de clans. Le mandat Understand the politics of the First Nation. Remember de la Première Nation est passé de deux à quatre ans. Les that most First Nations communities are large families or politiques changent souvent avec l’élection. Le nouveau clans. First Nation elected terms range from two to four Chef/Conseil peut vouloir entreprendre des changements years. Often the politics shift with an election. The new importants. Même si vous avez déjà travaillé avec la Première Chief and Council may want to make significant changes. Nation, le nouveau Conseil peut décider d’apporter des Even if you have a history of working with the Nation, the changements d’envergure. 72 new Council may decide to make broad changes to the Nos peuples autochtones représentent les segments consultants working with them. de la population dont la croissance est la plus rapide. Par Our Indigenous people are our fastest growing conséquent, ils apportent une contribution importante populations and make significant contributions to our à nos villes, nos régions rurales et à notre économie. Les cities, our rural areas and our economy. First Nations Premières Nations ne sont pas des municipalités. Elles sont are not municipalities. They are sovereign nations that des nations souveraines qui doivent être considérées en tant must be treated as such. Development on reserves will que tel. Le développement dans les réserves augmentera. Les increase. First Nations will become more involved in Premières Nations participeront davantage au développement development on non-reserve lands. This is an exciting des terres situées en dehors des réserves. C’est une période time for anyone with the opportunity to work with our stimulante pour ceux qui auront la chance de travailler avec nos First Nations in some capacity, and planners can be at Premières Nations d’une façon ou d’une autre, et les urbanistes the leading edge. ■ sont à la pointe des avancées. ■

PAT MALONEY RPP, MCIP Is a Senior Planner and Associate with PAT MALONEY UPC, FICU, urbaniste principale et associée de la firme Dillon Consulting Limited working out of the Calgary office. She Dillon Consulting Limited, travaille dans le bureau de Calgary. On lui a was given the Blackfoot name of Spitake (pronounced spit-ahh- attribué le nom Pieds-Noirs de « Spitake » (prononcé spit-ahh-kay), qui

plan canada | WINTER · HIVER 2016 kay), which means “Tall Sister”. signifie « Grande sœur ». PLANNERS’ BOOKSHELF

REVIEWED BY ERIC DOHERTY MCIP PLANNING CANADA: A CASE STUDY APPROACH

EDITED BY REN THOMAS | OXFORD UNIVERSITY PRESS 2016: 456 PAGES

lanning Canada is intended Highlights include an account of to fill the need for a the City of Vancouver’s Dialogue Canadian introductory Project between indigenous planning textbook, given residents and recent immigrants, that Pcommonly used U.S. texts and which proposes expanding this reading lists don’t reflect Canadian bold reconciliation pilot project to law, history or government structure. a national scale (Ashraf, Kittredge It achieves this goal, and covers wide and Ugarte). An account of how ranging and innovative examples residents of Toronto’s Regent Park of Canadian planning likely to be of social housing project experience interest to many practitioners. But on redevelopment gives insight into crucial points it takes too safe a path how public-private partnerships to prepare students for the turbulent can undermine residents’ right of times we are immersed in. return (Johnson). The revealing Planning Canada reflects two case of planning and gentrification aspects of Canadian planning and in Montreal’s Quartier de Spectales politics all too well. First, the “cultural shows how public investment genocide” against indigenous people can worsen local social problems in Canada is not given the emphasis (Loison and Fischler). And the story Overall, the case it deserves. Second, the authors of developing Benalto Alberta’s don’t express much urgency or focus Community Plan shows that “urban” studies are well regarding climate change. This is not planning is a realistic possibility in written, cover both surprising in a planning text book small towns (Sandalack and Uribe). basic planning but students will have to explore Space prevents mentioning other and innovative elsewhere to get the disturbing case studies that advance planning 73 projects, and context needed to understand knowledge in important ways. raise important reconciliation with Indigenous Planning Canada also provides peoples and the critical challenge of a good overview of the history questions for reducing climate pollution. of planning in Canada. However, discussion. The 34 case studies are divided the editor and case study authors into nine sections: Community sometimes fall into the all-too- Development and Social Planning, Canadian habit of framing dramatic Urban Forum and Public Health, history in ways that makes it Natural Resource Management, seem incremental or even boring. Housing, Participatory Processes, For example, the freeway revolt Urban Design, Urban Redevelopment, that turned politics on its head in and Transportation and Infrastructure. Vancouver in the late 1960s and Overall, the case studies are well early 1970s barely gets a mention, written, cover both basic planning although the history of urban freeway and innovative projects, and raise controversies is extensively covered. important questions for discussion. If Canadians are portrayed as people plan canada | WINTER · HIVER 2016 If Canadians are portrayed as people who have never made dramatic changes in the public interest, will planning students be able to imagine Canadians doing so in the future?

who have never made dramatic without rapid and deep reductions in modes. People who replace their changes in the public interest, will greenhouse gas (GHG) pollution, most old car tend to buy a larger vehicle planning students be able to imagine adaptation attempts will be futile. But and drive it more, resulting in higher Canadians doing so in the future? this essential context is largely absent rather than lower GHG pollution. This In 2015, the Truth and from Planning Canada’s introduction valuable insight is undermined by an Reconciliation Commission found and case studies. There are plenty of accompanying photo caption stating dangerous words to convey what mentions of reducing GHG pollution that “older vehicles emit considerably the Canadian Government did to as a planning goal, but little that more GHG.” Planning Canada is timid Indigenous peoples. It used the term would seriously challenge anyone and unfocused when it comes to the “cultural genocide”. Planning Canada who is comfortable with inaction. greatest planning challenge of our touches on some of this history and In one notable exception, Walter age, as are many Canadian planning some tentative steps forward, but Peace quotes a Hamilton freeway initiatives to date. without really conveying the depth opponent saying, “I think in light of Planning Canada achieves its of wounds still festering. This book is what’s happened since, particularly basic goals, and covers much of what too comfortable a read for a Canada with respect to our understanding of Canadian planners do well. It also struggling to find a way through this climate change, that we were on the features bold and innovative examples dark history towards reconciliation. right side.” that will expand planning knowledge This is understandable given the The final case study does deal with in some crucial areas. Where Planning limited role planners have had in this efforts to reduce GHG pollution, by Canada does fall short, it only reflects painful process to date, but it is now getting older vehicles off the road. common shortcomings of planning in time to go proactively increase that It discusses little known evidence Canada. ■ role. that accelerated vehicle retirement ERIC DOHERTY is the principal of Ecopath Scientists tell us that global programs are only effective in Planning (www.ecoplanning.ca), and lives warming and ocean acidification reducing GHG pollution if they in Victoria BC. Eric does transportation threaten everything humanity values. provide incentives to switch to planning and communications consulting, It is widely acknowledged that public transit or other low-carbon as well as teaching cycling safety.

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