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Thomas Berger Final Report Nunavut Land Claims Agreement Implementation Contract Negotiations for the Second Planning Period 2003-2013 Conciliator’s Final Report March 1, 2006 “The Nunavut Project” Thomas R. Berger, O.C., Q.C. By Thomas R. Berger, O.C., Q.C. Conciliator Craig E. Jones Counsel to the Conciliator Bull, Housser & Tupper 3000-1055 W. Georgia Street Vancouver, British Columbia V6E 3R3 [email protected] TABLE OF CONTENTS LETTER TO THE MINISTER ENGLISH ........................................................................................................................................i INUKTITUT.................................................................................................................................. xiii FINAL REPORT I. INTRODUCTION..................................................................................................................................1 A. MY MANDATE.....................................................................................................................................1 B. PROGRESS SINCE THE INTERIM REPORT .............................................................................................3 II. OVERVIEW ..........................................................................................................................................5 A. “OUR LAND”: THE INUIT AND THE ESTABLISHMENT OF THE CANADIAN ARCTIC........................................5 B. THE NUNAVUT LAND CLAIM.................................................................................................................8 C. NUNAVUT TODAY..............................................................................................................................10 III. ARTICLE 23 AND THE FUTURE OF NUNAVUT .............................................................................13 A. THE CREATION OF NUNAVUT.............................................................................................................13 B. A UNIQUE JURISDICTION IN CANADA..................................................................................................14 C. THE EXTENT OF INUIT REPRESENTATION IN THE PUBLIC SERVICE OF NUNAVUT ...................................17 D. THE SCOPE OF ARTICLE 23...............................................................................................................19 IV. BILINGUAL EDUCATION .................................................................................................................23 A. THE IMPORTANCE OF ENGLISH ..........................................................................................................23 B. THE IMPORTANCE OF INUKTITUT........................................................................................................23 C. THE CURRENT STATE OF THE INUKTITUT LANGUAGE IN NUNAVUT .......................................................25 D. THE NEED FOR EFFECTIVE BILINGUAL EDUCATION HAS LONG BEEN RECOGNIZED ..............................27 E. THE SCHOOLS TODAY ......................................................................................................................28 F. WHAT DOES EFFECTIVE BILINGUAL EDUCATION REQUIRE? ................................................................30 G. THE PROPOSED SYSTEM OF BILINGUAL EDUCATION...........................................................................30 H. THE CHOICE.....................................................................................................................................32 I. THE NUNAVUT PROJECT ...................................................................................................................34 V. QUESTIONS OF FUNDING...............................................................................................................35 A. THE ROYAL COMMISSION ON BILINGUALISM AND BICULTURALISM........................................................35 B. FEDERAL FUNDING ...........................................................................................................................39 C. THE COST OF FAILURE .....................................................................................................................41 (1) Dollar Costs...........................................................................................................................41 (2) Social Costs...........................................................................................................................42 VI. THE NUNAVUT PROJECT................................................................................................................45 A. THE CHALLENGE ..............................................................................................................................45 (1) The Commitment Required ...................................................................................................45 (2) Eyes on the Prize ..................................................................................................................46 (3) The Numbers Game..............................................................................................................47 B. THE PLAN ........................................................................................................................................48 (1) Introduction............................................................................................................................48 (2) The Core of the Program: Bilingual Education K-12 .............................................................48 (3) The Pillars of Bilingual Education..........................................................................................50 (a) Inuit Teachers.......................................................................................................................................50 (b) The Development of a Nunavut-Specific Curriculum and Materials .....................................................51 (c) The Evolution of Inuktitut Language.....................................................................................................52 (d) Testing and Accountability ...................................................................................................................52 (4) Supporting Programs ............................................................................................................52 (a) Pre-School Skills Enhancement ...........................................................................................................52 (b) Trades, Vocational and Cultural Instruction in Schools ........................................................................53 (c) Post-Secondary Initiatives....................................................................................................................54 (d) Daycare Programs ...............................................................................................................................54 C. FOR IMMEDIATE ACTION: SPECIFIC NEAR-TERM INITIATIVES ...............................................................54 D. THE PROPOSALS ..............................................................................................................................55 (1) Nunavut Sivuniksavut............................................................................................................55 (2) Summer student program......................................................................................................56 (3) Internship Program................................................................................................................56 (4) Community Career Development Officers ............................................................................56 (5) Mature Graduation / Returning Student Programs................................................................57 (6) Scholarships..........................................................................................................................58 (7) Summary of Costs for Near-Term Initiatives .........................................................................59 VII. CLIMATE CHANGE, SOVEREIGNTY, AND THE FUTURE OF THE INUIT ....................................60 A. NUNAVUT IN CANADA’S FOREIGN POLICY...........................................................................................60 B. THE CHANGING PHYSICAL ENVIRONMENT AND ECONOMIC DEVELOPMENT ..........................................61 C. THE INUIT AND ARCTIC SOVEREIGNTY ...............................................................................................63 VIII. EPILOGUE .........................................................................................................................................67 APPENDIX: LETTER AND REPORT ON IPG FUNDING ........................................................................68 i THOMAS R. BERGER, O.C., Q.C. SUITE 440, MARINE BUILDING, 355 BURRARD STREET, VANCOUVER, B.C., CANADA V6C 2G5 March 1, 2006 The Honourable Jim Prentice Minister of Indian Affairs and Northern Development Parliament Buildings, Ottawa Dear Mr. Prentice, RE: CONCILIATION It is now six years on since the creation of Nunavut. Nunavut today faces a moment of change, a moment of crisis. It is a crisis in Inuit education and employment, a crisis magnified by the advent of global warming in the Arctic and the challenge of Arctic sovereignty. The Nunavut Land Claims Agreement that led to the creation of Nunavut is by far the largest of the land claims settlements in the modern land claims
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