GOVERNANCE IN NUNAVUT by Donald Arthur Cozzetto Dissertation submitted to the Faculty of the Virginia Polytechnic Institute and State University in partial fulfillment of the requirements for the degree of DOCTOR OF PHILOSOPHY in Public Administration and Policy APPROVED: Philip L. Mai\tin, Chairman Thomas H. Roback Frances D. Abele J:am€s F. Wolf Ga:J:¥JL. Wamsley June, 1990 Blacksburg, Virginia ABORIGINAL GOVERNANCE: THE CASE OF NUNAVUT by Donald Arthur Cozzetto Committee Chainnan: Phili~ L. Martin c~~nter For Public Administration (ABSTRACT) The settlement of aboriginal claims has been on the northern policy forefront for the past two decades. At long last the settlement of these claims may be imminent. This dissertation examines a series of political-administrative strategies designed to assist in establishing a Native form of governance in light of the recent signing of the agreer:,ent-in- principle respecting aboriginal claims settlements in Nunavut, the Inuit territory in northeastern Canada. To date, research directed in the area of Native claims primarily focuses upon the normative and legal foundations for the claims, the unique cultural and environmental dimensions, and the quantification of actual entitlements in the form of cash and land transfers. However, the critical and complex area of post-claims models of governance has largely been ignored. Drawing upon the public administration literature as a theoretical ~ase, I explore a number of models that provide a means through which the distinctive aspects of aboriginal society, economy, and culture, can be maintained, while at the same time recognizing the need for continued active Native participction in the Canadian federation. In particular, primary research conducted in northern Canada serves as the catalyst for the ensuing disc~ssion. In addition, a comparative methodology is used to highlight the negative experiences of the Alaska claims settlement, the experiences of other C?nadian Native groups, and models adopted in other parts of the world. ACKNOWLEDGEMENTS I am indebted to a number of individuals for their input and guidance throughout the arduous process of completing doctoral work. Charles Goodsell provided support, both financial and otherwise, during my time in Blacksburg. The members of my committee from CPAP--Gary Wamsley, Jim Wolf, and Tom Roback--patiently gave the much needed direction that improved the finished product. Frances Abele taught me through her advise and written work what scholarship really means. Phil Martin was more than a dissertation chairman. He helped to solidify my own beliefs with respect to the practical applicability of my work, and as his teaching assistant, he taught me a sense of professionalism that I attempt to bring into my own classes. My associates at the University of North Dakota are truly a remarkable group of individuals. Their encouragement and patience as I embarked upon a new career enabled me to complete my work. I extend my gratitude to Mary and Rob Kweit, Denise and Steve Markovich, Ted Pedeliski, Ron Pynn, and Irene Wagner for demonstrating the true meaning of colleagueship. iv W.O Kupsch at the University of Saskatchewan, Lynda Chambers at the Tungavik Federation of Nunavut, the Government of the Northwest Territories, and the Department of Indian and Northern Affairs were invaluable sources of information. My daughters, Darcy and Dana, were raised believing that it was normal for parents to spend seven days a week pursuing graduate education. Their energy, wit, and charm were a constant inspiration during the past five years. My wife, Helen, gave up so much to enable me to undertake my studies. Her support and counsel certainly transcend any marital or familial responsibility. It is to her, with the deepest love and respect, that this dissertation is dedicated. v TABLE OF CONTENTS Page ABSTRACT ii ACKNOWLEDGEMENTS iv TABLE OF CONTENTS . vi ACRONYMS . viii CHAPTER ONE INTRODUCTION Introduction . • . 4 The Native People • • • • . • . • . 18 Governance . • • • • • . 25 Self-Determination/Self-Government . 26 History/ Normative Foundations . • • . 28 The Treaty Period . • • . • . 41 Abori9inal Claims . • • • • . 46 Canadian Claims . • • • • • . • • . 47 The Evolution of Nunavut . 53 Conclusion • . • • • . 56 CHAPTER TWO LITERATURE REVIEW Books and Reports . • . • • • . 63 Comparative Literature . • • • • . 72 Government Publications • • • • . • . 75 Native Publications • . • . • • 79 Journals . • . • . • . • • . 80 Research Methodology . • . 92 CHAPTER THREE POLITICAL, ECONOMIC, AND SOCIAL STRUCTURES Northern Political Economy • • . • . • • 96 Present Organizational Infrastructure 107 The Northern Economy • • • • . • . 114 Sociological • • • • • • • . 120 Political Development . • • . 124 Conclusions • • . • • • • . • . 128 vi CHAPTER FOUR ABORIGINAL CLAIMS: A COMPARATIVE PERSPECTIVE Alaska . • • . • . • . • . 134 The Lower Forty-Eight . • • • . • • . 138 The James Bay Agreements . • • • . • • . 141 The COPE Agreement . • • 145 Australia . • • • 148 The Dene/Metis Claim 151 Conclusion . • • • • • • . • • • 157 CHAPTER FIVE ALTERNATIVE MODELS OF GOVERNANCE Traditional Model . • . • . • • . • . 163 The Navajo Model • • • . • . 169 The Corporate Model • • . • • • • . 176 The Local Government Model . • • . 197 The Coo~erative Model • . • • . 199 Conclusion • . • . • • . • • . • . • . 203 CHAPTER SIX IMPLEMENTATION STRATEGIES Training • . • • . • . • • . • • . • . 214 Financing Nunavut . • . • . 236 Legal Infrastructure . • . • . • • . 249 Summary and Conclusions . • . • 252 CHAPTER SEVEN SUMMARY AND CONCLUSIONS Summary and Conclusions 256 BIBLIOGRAPHY 269 APPENDICIES Appendix A 294 Appendix B 297 Appendix c 304 Appendix D 306 VITA 320 vii ACRONYMS Alaska Native Claims Settlement Act-ANCSA Canadian Arctic Co-op Federation-CACFL Canada Employment and Immigration Commission-CEIC Canada Job Strategy-CJS Committee for Original People's Entitlements-COPE Critical Path Method-CPM Dep't of Indian Affairs and Northern Development-DIANO Distant Early Warning Site-DEW Federal Deposit Insurance Corporation-FDIC Free Trade Agreement-FTA Government of the Northwest Territories-GNWT Industy, Science and Technology Commission-ISTC Inuit Community Corporation-ICC Inuit Committee on National Issues-ICNI Inuit Landholding Corporation-ILC Inuit Tapirsat of Canada-ITC Kativik Regional Government-KRG Northwest Territories-NWT Nunavut Constitutional Forum-NCF Performance Evaluation and Review Technique-PERT Return on owner's Equity-ROE Royal Canadian Mounted Police-RCMP Tungavik Federation of Nunavut-TFN Western Arctic Regional Municipality-WARM Western Constitutional Forum-WCF viii DONNA - PANGNIRTUNG - SUMMER 1983 PHOTO BY WILLIAM LANGFORD ix ETOOLOOK - CAPE DORSET - SUMMER 1980 PHOTO BY WILLIAM LANGFORD x ABORIGINAL GOVERNANCE: THE CASE OF NUNAVUT 1 ND GREENLAND ALASKA Baffin Bay I YUKON ( ) { I I NORTHWEST TERRITORIES BRITISH ..._ CANADA (-- ... __ _ --; -r---- , I Hudson Bay I I I I ( ALBERTA / \ I I I I / \ I I MANITOBA / QUEBEC / I \ / \ ~ASKATCHEWANi / I I I I , I , I UNITED STATES OF AMERICA MAP OF CANADA 0 2 CHAPTER ONE INTRODUCTION 3 Chapter One Introduction Most urban Canadians live within two hundred miles of the United States border. For them, the North is a distant land of permafrost, twenty-four hour darkness, and the land of the midnight sun. However, for the indigenous peoples who inhabit this vast territory, it is a complex and fragile homeland blessed with bountiful natural resources. In this introductory chapter, the reader will be introduced to a number of issues that directly impact one's understanding of aboriginal claims in general, and the proposed Nunavut settlement in particular. The discussion will include a geographic and demographic analysis of the Northwest Territories, a brief look at the Native people who occupy the region, the historical and normative foundations of the claims, the treaty period, and a general overview of the claims. In addition, several key terms such as "governance", "aboriginal", "culture", "self- government", and "self-determination" are defined. At present, eighty aboriginal claims or "land claims" are in various stages of negotiation in Canada(Morse, 4 1989). Nunavut, meaning "our land", is one of these claims. Nunavut is the territory located in the eastern and high Arctic regions of northern Canada. The map on the following page shows the geographic location of Nunavut as depicted by number 5. Nunavut borders the provinces of Manitoba, Ontario, and Quebec to the south, and the Dene Nation(# 3&4 on the map) and the Inuvialuit Settlement Region(2a on the map) to the west. The Inuvialuit settled their land claim in 1984, and the Dene are currently negotiating their claim with the federal government. Approximately eighty percent of the 18,000 inhabitants of Nunavut are Inuit. Inuit is an Inuktitut word meaning "people." Most southerners refer to these people as Eskimos meaning eaters of raw flesh. However, in northern Canada, the term Eskimo is considered pejorative. The Inuit also inhabit parts of northern Quebec and the Inuvialuit region referred to above. These people have negotiated separate claims and are not part of the Nunavut claim. Their claims are discussed in detail in Chapter Four. 5 I I I I , I ( I I I 4 (~ '\ I \ CANADA I • / \ I , t / ' ; I I / . I I I • I I I I I. COUNCIL OF YUKON INDIANS (CYJ) NATIVE CLAIMS IN CANADA LEGEND 2. INUVIALUIT SETTLEMENT REGION 3. DENE/ METIS 6 4. NUNAVUT 5. JAMES BAY TERRITORY What the Inuit expect from federalism is at considerable