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Alberta First Nations Consultation & Accommodation Handbook

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Canadian Institute of Resources Law Institut canadien du droit des ressources Alberta First Nations Consultation & Accommodation Handbook – Updated to 2016 David Laidlaw CIRL Research Fellow CIRL Occasional Paper #53 March 2016 MFH 3353, Faculty of Law, University of Calgary, Calgary, Alberta, Canada T2N 1N4 Tel: (403) 220-3200 Fax: (403) 282-6182 E-mail: [email protected] Web: www.cirl.ca CIRL Occasional Paper #53 The Canadian Institute of Resources Law encourages the availability, dissemination and exchange of public information. You may copy, distribute, display, download and otherwise freely deal with this work on the following conditions: (1) You must acknowledge the source of this work, (2) You may not modify this work, and (3) You must not make commercial use of this work without the prior written permission of the Institute. Copyright © 2016 ii / Alberta First Nations Consultation & Accommodation Handbook – Updated to 2016 CIRL Occasional Paper #53 Canadian Institute of Resources Law The Canadian Institute of Resources Law was incorporated in 1979 as a registered charity with a mandate to examine the legal aspects of both renewable and non-renewable resources. Its work falls into three interrelated areas: research, education, and publication. The Institute has engaged in a wide variety of research projects, including studies on oil and gas, mining, forestry, water, electricity, the environment, aboriginal rights, surface rights, and the trade of Canada’s natural resources. The education function of the Institute is pursued by sponsoring conferences and short courses on particular topical aspects of resources law, and through teaching in the Faculty of Law at the University of Calgary. The major publication of the Institute is its ongoing looseleaf service, the Canada Energy Law Service, published in association with Carswell. The results of other Institute research are published as discussion papers. The Institute is supported by the Alberta Law Foundation, the Government of Canada, and the private sector. The members of the Board of Directors are appointed by the Faculty of Law at the University of Calgary and the President of the University of Calgary. All enquiries should be addressed to: The Executive Director Canadian Institute of Resources Law Murray Fraser Hall, Room 3353 (MFH 3353) Faculty of Law University of Calgary Calgary, Alberta, Canada T2N 1N4 Telephone: (403) 220-3200 Facsimile: (403) 282-6182 E-mail: [email protected] Website: www.cirl.ca Alberta First Nations Consultation & Accommodation Handbook – Updated to 2016 / iii CIRL Occasional Paper #53 Institut canadien du droit des ressources L’institut canadien du droit des ressources a été constitué en 1979 comme un organisme de bienfaisance enregistré et a reçu pour mission d’étudier les aspects juridiques des ressources renouvelables et non renouvelables. Son travail porte sur trois domaines étroitement reliés entre eux, soit la recherche, l’enseignement et les publications. L’institut a entrepris une vaste gamme de projets de recherche, notamment des études portant sur le pétrole et le gaz, l’exploitation des mines, l’exploitation forestière, les eaux, l’électricité, l’environnement, les droits des autochtones, les droits de surface et le commerce des ressources naturelles du Canada. L’institut remplit ses fonctions éducatives en commanditant des conférences et des cours de courte durée sur des sujets d’actualité particuliers en droit des ressources et par le truchement de l’enseignement à la Faculté de droit de l’Université de Calgary. La plus importante publication de l’institut est son service de publication continue à feuilles mobiles intitulé le Canada Energy Law Service, publié conjointement avec Carswell. L’institut publie les résultats d’autres recherches sous forme et de documents d’étude. L’institut reçoit des subventions de l’Alberta Law Foundation, du gouvernement du Canada et du secteur privé. Les membres du conseil d’administration sont nommés par la Faculté de droit de l’Université de Calgary et le recteur de l’Université de Calgary. Toute demande de renseignement doit être adressée au: Directeur exécutif Institut canadien du droit des ressources Murray Fraser Hall, pièce 3353 Faculté de droit L’Université de Calgary Calgary, Alberta, Canada T2N 1N4 Téléphone: (403) 220-3200 Télécopieur: (403) 282-6182 Courriel: [email protected] Site Web: www.cirl.ca iv / Alberta First Nations Consultation & Accommodation Handbook – Updated to 2016 CIRL Occasional Paper #53 Table of Contents Executive Summary ........................................................................................................... vii Acknowledgements ............................................................................................................. ix List of Abbreviations and Defined Terms .......................................................................... xi Introduction to Update ...........................................................................................1 Terminology .............................................................................................................1 Background ....................................................................................................................2 Developments Since March 30, 2014 ............................................................................4 Changes in the Law Relating to Consultation................................................................7 Sources of Alberta’s Approach to Consultation ............................................................7 Using this Update ...........................................................................................................8 Alberta’s First Nation Consultation Policy & Guidelines ....................9 1. Introduction ..................................................................................................................9 Two Processes ..........................................................................................................9 Methodology to Interpret Guidelines .................................................................9 Expanded Application of Guidelines .....................................................................10 Drafting Consistency .......................................................................................11 Glossary .................................................................................................................11 First Nation ......................................................................................................16 A. Purpose of the Guidelines ......................................................................................16 Transparency ...................................................................................................17 Decisions for Consultation .....................................................................................18 Application of Policy to Strategic Decisions .........................................................19 The “continued exercise of a treaty right” ......................................................20 B. Crown’s Duty to Consult and Accommodate ........................................................20 Alberta’s Interpretation of the Governing Treaties .........................................21 Undisturbed Land ............................................................................................24 2. Consultation Process – Roles ....................................................................................24 Changed Role of the ACO ......................................................................................25 A. Government of Alberta ..........................................................................................25 i. Alberta Aboriginal Relations, Aboriginal Consultation Office (ACO) ...........27 ii. Alberta Environment and Sustainable Resource Development .......................28 iii. Alberta Culture, Historic Resource Management Branch ...............................29 iv. Alberta Tourism, Parks and Recreation ...........................................................30 v. Alberta Municipal Affairs ................................................................................30 vi. Alberta Transportation .....................................................................................31 vii. Alberta Infrastructure .......................................................................................31 Other Ministries .........................................................................................31 B. Proponents..............................................................................................................32 C. First Nations ...........................................................................................................32 Requirements on First Nations ........................................................................33 D. Alberta Energy Regulator (AER)...........................................................................33 Channelling First Nation Consultation? .........................................................34 Alberta First Nations Consultation & Accommodation Handbook – Updated to 2016 / v CIRL Occasional Paper #53 ACO Control of AER ........................................................................................34 3. Consultation Process ..................................................................................................37 Substantive
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