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Local Government and Indigenous Reconciliation in British Columbia

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Local Government and Indigenous Reconciliation in British Columbia Local Government and Indigenous Reconciliation in British Columbia: Reforming the Relationship By Ben Barnes B.A., University of Victoria, 2016 A Master’s Project Submitted in Partial Fulfillment of the Requirements for the Degree of MASTER OF PUBLIC ADMINISTRATION in the School of Public Administration ©Benjamin Barnes, 2020 University of Victoria All rights reserved. This project report may not be reproduced in whole or in part, by photocopy or other means, without the permission of the author. Defense Committee Supervisor: Dr. Kimberly Speers, Assistant Teaching Professor School of Public Administration, University of Victoria Second Reader: Dr. Harry Swain, Adjunct Professor, School of Public Administration and Associate Fellow, Centre for Global Studies School of Public Administration, University of Victoria [1] Acknowledgements The researcher, project supervisor, and University of Victoria acknowledge with respect the Lekwungen peoples on whose traditional territory the university stands and the Songhees, Esquimalt and WSÁNEĆ peoples whose historical relationships with the land continue to this day. The researcher would like to thank Dr. Speers for her invaluable input on this report. Further, the researcher would like to thank his family and partner for their patience and support! [i] Executive Summary Introduction The purpose of this research project was to develop a literature review and jurisdictional scan to identify information and research on the relationship between local settler governments and Indigenous Peoples in British Columbia (“Local-Indigenous Relationship”). While there is no formal client for this Master’s Project, recommendations were developed for local government governments in British Columbia to consider. The primary research question explored in this report is: what is the current state of the literature on the relationship between local governments and Indigenous Peoples and governments? Additional questions that were asked are: • What issues and barriers affect this relationship? • What actions are local governments taking (including policies and practices) to improve this relationship? • What recommendations can be made to local government entities based on the findings of this research? Research Approaches This project’s research design adopted a decolonization research framework that was guided by decolonizing principles (Martin, et al., 2020, p. 316). Reflecting a “two-eyed seeing” approach (Antoine, 2017, pp. 117-118), both Indigenous and settler epistemologies were utilized to help better understand and frame the research questions and analyse the findings. In reconciling this research, the researcher endeavours to create research that pushes for us to celebrate virtues established by Indigenous Peoples during early Indigenous-settler relations: “we shall each travel the river together, side by side, but in our own boat. Neither of us will try to steer the other's vessel” (Borrows, 1997, p. 170). A multi-method approach was used to research the questions guiding this topic, with a literature review and a jurisdictional scan being the two choices. A secondary analysis of the literature and a primary analysis of policies and practices took place. No ethics permission was needed given there was no interaction with other humans to gather information and no sensitive or internal data was used in the report. This research was also conducted by the researcher with an awareness of the researcher’s positionality within society in relation to the researched topic. [ii] Key Findings Overall, researching this topic proved challenging as research is very limited at a scholarly level, which made it necessary to rely on non-scholarly sources for guidance and information. Nonetheless, several key findings were made addressing the research questions on issues and barriers, local government actions, and recommendations: • Analyzing the current state of literature revealed that there are three themed groupings of issues and barriers affecting the Local-Indigenous Relationship: power dynamics, value systems, and economic mobility. • The literature review revealed two potential actions: create a shared community worldview between Indigenous and settler communities and develop an interdisciplinary analytical framework inclusive of Indigenous methodologies. • The jurisdictional scan revealed three themes of policies to pursue: communications, services and programming, and development and planning. • Genuine reconciliation efforts require upholding Indigenous sovereignty through a holistic approach (Chrismas, 2013; Wilson & Nelson-Moody (Tawx’sin Yexwulla), 2019). Failure to apply these local government actions in this manner carries legal, economic, political, ecological, social, and spiritual implications for local governments and communities. Recommendations and Strategy This report concluded that a diverse multi-phase policy mix can be applied by local governments in British Columbia: • Create a shared community worldview • Develop an interdisciplinary analytical framework inclusive of Indigenous methodologies • Engage in protocol agreements • Maintain formalized meetings or forums • Establish formal acts of recognition, acknowledgement, or awareness • Orchestrate service agreements • Pursue parks and recreation agreements • Share tourism or agricultural ventures • Work towards direct funding opportunities • Establish resource management partnerships • Cooperate on land use planning • Jointly pursue economic development Implementing any of these local government actions will require that this policy mix be implemented in a three-phase design, highlighting an early stage, intermediate stage, and late [iii] stage of a renewed Local-Indigenous Relationship. Improving relationships takes time, and so local government actions will need to be implemented gradually over these three phases. This implementation will need to address power dynamics, value systems, and economic mobility in a manner that enables Indigenous Peoples’ agency and Traditional Knowledge. [iv] Table of Contents Acknowledgements .......................................................................................................................... i Executive Summary ........................................................................................................................ ii Table of Contents ............................................................................................................................ v List of Figures and Tables............................................................................................................. vii 1.0 Introduction ............................................................................................................................... 1 1.1 Purpose Statement ............................................................................................................ 1 1.2 Defining the Issue............................................................................................................. 1 1.3 Research Question and Project Objectives....................................................................... 2 1.4 Project Definitions............................................................................................................ 3 1.5 Project Client .................................................................................................................... 4 1.6 Background ...................................................................................................................... 4 1.7 Organization of Report ..................................................................................................... 5 2.0 Approaches, Methodology and Methods .................................................................................. 7 2.1 Introduction ...................................................................................................................... 7 2.2 Self-Location .................................................................................................................... 7 2.3 Reconciling Research ....................................................................................................... 7 2.4 Epistemology and Methodology ...................................................................................... 9 2.5 Methods and Tasks ......................................................................................................... 12 2.6 Limitations ..................................................................................................................... 12 3.0 Literature Review.................................................................................................................... 14 3.1 Introduction .................................................................................................................... 14 3.2 Colonialism’s Legacy ..................................................................................................... 15 3.3 Canada’s Inequitable Relationship ................................................................................. 33 3.4 Listening to Indigenous Voices ...................................................................................... 38 3.5 Competing Identities in Canada ..................................................................................... 42 3.6 Defining Reconciliation ................................................................................................. 47 3.7 Literature Review
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