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Email Address Removed IN THE MATTER OF THE ENERGY RESOURCES CONSERVATION ACT R.S.A. 2000, C. E-10; AND THE OIL SANDS CONSERVATION ACT, R.S.A. 2000, C. 0-7; AND IN THE MATTER OF THE CANADIAN ENVIRONMENTAL ASSESSMENT ACT, S.C. 1992, c.37; AND IN THE MATTER OF A JOINT PANEL REVIEW BY THE ALBERTA ENERGY RESOURCES CONSERVATION BOARD AND THE GOVERNMENT OF CANADA; AND IN THE MATTER OF ERCB APPLICATION NO. 1554388 AND CEAR NO. 59540, JACKPINE MINE EXPANSION, ALBERTA Submissions of the Attorney General of Canada In Response to Notices of Question of Constitutional Law Filed with the Joint Review Panel Kirk Lambrecht, Q.C./Janell Koch Justice Canada EPCOR Tower 300, 10423-101 Street Edmonton, AB T5H 0E7 Tel: 780 495 2968 Fax: 780 495 8491 Email: [email protected] 2 TABLE OF CONTENTS Overview ......................................................................................................................................... 4 Part I: Facts .................................................................................................................................... 7 Overview ............................................................................................................................. 7 Approvals Required for the Shell Jackpine Mine Expansion ............................................. 7 The Initial Jackpine Mine Project ....................................................................................... 9 EIA & EPEA Review.............................................................................................. 9 Creation of a Joint Review Panel for the Initial Jackpine Mine ........................... 10 Shell‟s Agreements with First Nations ................................................................. 10 The Panel‟s Consideration of Aboriginal Views .................................................. 11 The Initial Jackpine Mine Panel Decision ............................................................ 11 Approvals of the Initial Jackpine Mine ................................................................. 12 Jackpine Mine Expansion ................................................................................................. 12 Alberta‟s Initial Review – EIA and Consultation Requirements .......................... 12 Federal and Provincial Approaches to Aboriginal Consultation .......................... 12 Aboriginal and Public Input on Proposed Terms of Reference ............................ 14 EIA – EPEA Review ............................................................................................. 14 ERCB Notices of Application ............................................................................... 14 Aboriginal and Public Input on EIA - Statements of Concern ............................. 15 EPEA Sufficiency Review .................................................................................... 16 Aboriginal and Public Input on AENV and ERCB SIRs – Jackpine Mine Expansion .............................................................................................................. 16 EPEA Review Complete ....................................................................................... 16 Federal EA Required – Referral to JRP ............................................................................ 17 Aboriginal and Public Input on Draft JRP Agreement and TOR ......................... 17 The Mandate of the Jackpine Mine Expansion Panel Respecting Aboriginal Rights and Interests ............................................................................................... 18 Establishment of Jackpine Mine Expansion JRP and Appointment of Panel members ................................................................................................................ 18 Participant and Aboriginal Funding - Jackpine Mine Expansion ....................... 18 Traditional Knowledge and Traditional Land Use Information ........................... 19 First Nation Consultation and Technical Review Submission – Evidence........... 20 Hearing Order ................................................................................................................... 20 Notice of Constitutional Question .................................................................................... 20 Part II: Issues................................................................................................................................ 22 3 Part III: Submissions ..................................................................................................................... 23 The Duties of a Tribunal As Regards the Assessment of Crown Consultation and Accommodation ................................................................................................................ 23 The Duties of the Jackpine Mine Expansion Joint Review Panel under its Enabling Legislation: Presentation of the Overall Legislative Context .......................................... 23 The Panel Performs a Planning Function at this Time ......................................... 24 Conclusion ........................................................................................................................ 33 Part IV: Order Sought .................................................................................................................. 34 Appendix I: Concordance of Aboriginal Concerns with Reference to the Panel Report on the Initial Jackpine Mine..................................................................................................................... 35 Appendix II: Basic Information on the Parties Filing Notice of Question of Constitutional Law ....................................................................................................................................................... 48 Appendix III: Federal Approach to Aboriginal Consultation for the Shell Jackpine Mine Expansion ...................................................................................................................................... 50 Endnotes ........................................................................................................................................ 58 4 OVERVIEW “the Panel's mandate to receive and report on potential impacts on aboriginal rights is not eroded in any way by the notice requirement or potential referral of a question of constitutional law to the Court.” 1 1. Whether or not this Panel has jurisdiction to assess the adequacy of Aboriginal consultation by the Crown is a question of law. Whether this Panel should assess the adequacy of Crown consultation is a matter for the discretion of the Panel having regard to the context of the case. 2. Aboriginal parties submit that the Panel has jurisdiction, and that it should exercise that jurisdiction. Alberta, relying upon the interlocutory ERCB decision in respect of the Taiga SAG-D mine project, submits that the ERCB does not have this jurisdiction; and, by extension, the Joint Review Panel could not have the jurisdiction. 3. In the event that the Panel rules that it has no jurisdiction, it is possible that a Court of law may disagree. Should that occur, the potential arises that the proceedings will be vitiated and the matter returned to the Panel for reconsideration. Should approvals of the Application be granted in the meantime, such approvals could be placed in jeopardy. 4. To assist the Panel, and without conceding in any way that the Panel has jurisdiction to assess the adequacy of Aboriginal consultation by the Crown, the Attorney General of Canada presents a fresh perspective in the interests of providing the Panel with a variety of submissions. The Attorney General submits that it is not necessary for the JRP to determine at this time whether or not it has jurisdiction to assess the adequacy of Crown consultation by either Alberta or Canada. This is because -- in the context of the case at bar -- the assessment of the adequacy of Crown Aboriginal consultation and accommodation reasonably and correctly belongs to the Crown rather than to this Panel, and will be undertaken at later stages of the project development process. In such a context, the Panel may decline to make a ruling on its jurisdiction to assess the adequacy of Aboriginal consultation by the Crown. Assuming (without conceding) that such jurisdiction exists, it should not in any event be exercised in this case. 5 5. The assessment of the adequacy of Crown consultation belongs to a later stage of the project development process because responsibility for measuring project effects on actual or asserted Aboriginal or Treaty rights is a matter which both the Legislature and Parliament have delegated to this Panel at this stage of the project development process for this Project. Assessment of the adequacy of Aboriginal consultation by the Crown should not be undertaken in advance of the findings of this Panel respecting Project impacts on actual or asserted Aboriginal or Treaty rights. The Proponent, and the executive branches of Government, are entitled to rely on this Panel to perform this statutory function. The Panel is not obligated to assess the adequacy of Crown consultation and accommodation. Crown consultation and accommodation is integrated with this Panel‟s process; and the future Crown decisions about the adequacy of its Aboriginal consultation and accommodation approaches are intended to be informed by the Panel Report. 6. Section 6.3 of the JRP‟s Terms of Reference does not obligate this Panel to assess the adequacy of Crown consultation.
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