A View into the Sahtu: Land Claims and Resource Development Miles Smart A Thesis in The Department of Sociology and Anthropology Present in Partial Fulfillment of the Requirements for the Degree of Master of Arts (Social & Cultural Anthropology) at Concordia University Montreal, Quebec, Canada August 2014 © Miles Smart, 2014 Concordia University School of Graduate Studies This is to certify that the thesis prepared By: Miles Smart Entitled: A View into the Sahtu: Land Claims and Resource Development and submitted in partial fulfillment of the requirements for the degree of Master of Arts (Social and Cultural Anthropology) complies with the regulations of the University and meets the accepted standards with respect to originality and quality. Signed by the final Examining Committee: Dr. Meir Amor _________________________________ Chair Dr. Kregg Hetherington _________________________________ Examiner Dr. Daniel Salée _________________________________ Examiner Dr. Mark Watson _________________________________ Supervisor Approved by _________________________________________ Chair of Department or Graduate Program Director ____________ 2014 ____________________________ Dean of Faculty ABSTRACT A View into the Sahtu: Land Claims and Resource Development Miles Smart This thesis examines the Sahtu region of the Northwest Territories and the Sahtu Dene and Metis Comprehensive Land Claim Agreement as a unique example of Northern Aboriginal governance. Attention is given to the political developments in Aboriginal/state relations which led to the contemporary relationship between the Sahtu regime, the Government of Canada, and the resource industry. The role of culture and the land are explored which comes together to form the Sahtu deep view. The Sahtu deep view is a pragmatic approach to government relations and resource development which invokes a profound cultural connection to the land and a parallel concern for the far future. The town of Norman Wells in the Sahtu is examined to reveal its unique position as a resource development town and regional hub. Specific examples of an oil exploration play and federal policy in land claim implementation are used as insights into how the Sahtu regime operates and its larger goals. iii Acknowledgements I would like to thank my supervisor, Dr. Mark Watson, for guiding the development of this thesis. I would also like to thank Dr. Max Forte, Dr. Christine Jourdan, Dr. Salinda Hess, and Dr. Daniel Salée for both their teaching and encouragement during my time at Concordia University. This thesis would not have been possible without the input of those of whom it is about. I would like to thank all the interviewees who contributed directly to this thesis. Their brief biographies are given in the introduction. I would also like to thank individuals who took an interest in my research and who contributed in some way; Donna Schear and Dale Kochon, Dudley Johnson, Gregor McGregor, Chris Buist, Greg Gidman, Kathleen Roberts, Kerry Abel, Jerry Huculak, Tom Andrews, Alasdair Veitch, Paul Dixon, and Dave Little. I would like to thank Sheila and Tim Casgrain for their support and encouragement during my educational career. Finally I would like to thank all my family for their loving support. Dedication This thesis is dedicated to the memory of Bruce Moffett and the futures of the littlest Yukon’s, Nelly and Monalee. iv TABLE OF CONTENTS List of Figures…………………………………………………………………………………vii Glossary & Abbreviations……………………………………………………………………viii Introduction...................................................................................................................................1 My Sahtu Story………………………………………………………………………........1 Thesis Overview & Chapter Summaries………………………………………………….4 Project Overview & Research Methods………………………………………………......8 Interviewees………………………………………………………………………………9 Chapter One: The North……………………………………………………………………....12 Chapter Overview…………………………………………………………………….....12 Canadian Northerness, Symbolism, and Contradiction………………………………....13 The Territorial North…………………………………………………………………….15 Homeland………………………………………………………………………………..17 Chapter Two: The Sahtu and Norman Wells………………………………………………...21 The Sahtu………………………………………………………………………………...21 Treaty 11…………………………………………………………………………………25 The Legacy of Treaty 11…………………………………………………………………26 ‘where the oil is’…………………………………………………………………………29 Norman Wells Proven Area Agreement…………………………………………………30 Norman Wells Oilfield Expansion and Pipeline Project 1981-1985………………….....31 Norman Wells Today………………………………………………………………….....33 Conclusion……………………………………………………………………………….37 Chapter Three: The Making of Modern Aboriginal/State Relations……………………….38 Chapter Overview………………………………………………………………………..38 The White Paper………………………………………………………………………....40 Legal and Constitutional Gains……………………………………………………….....43 Dene Nation and Metis Association of NWT……………………………………………46 Paulette Caveat…………………………………………………………………………..49 Berger Inquiry……………………………………………………………………………50 Dene/Metis Negotiations………………………………………………………………...52 Conclusion……………………………………………………………………………….56 Chapter Four: SDMCLCA…………………………………………………………………….59 Chapter Overview………………………………………………………………………..59 Prelude to Negotiations…………………………………………………………………..59 Sahtu Negotiations…………………………………………………………………….....62 Ratification…………………………………………………………………………….....66 The Sahtu Land Claim…………………………………………………………………...67 v General Objectives…………………………………………………………………….....68 Indian Status & Treaty Rights……………………………………………………………71 Eligibility & Beneficiaries…………………………………………………………….....72 Sahtu Lands………………………………………………………………………………73 Financial Payment, Resource Royalties, and Economic Benefits……………………….74 Sahtu Regime………………………………………………………………………….....78 Institutions of Public Government…...…………………………………………………..78 Designated Sahtu Organizations…………………………………………………………81 Primary Projects……………………………………………………………………….....83 The EA Trump Card……………………………………………………………………..85 Disputes………………………………………………………………………………….86 Norman Wells Land Corporation & Paul………………………………………………..87 Conclusion……………………………………………………………………………….91 Chapter Five: Where the Oil is………………………………………………………………...93 Chapter Overview………………………………………………………………………..93 The Saudi Arabia of the North…………………………………………………………...93 F**cking………………………………………………………………………………....97 Courting the Sahtu……………………………………………………………………….99 The Spectre of Fort McMurray…………………………………………………………103 Regulatory ‘Reform’……………………………………………………………………105 Conclusion……………………………………………………………………………...108 Conclusion……………………………………………………………………………………..109 Ethel…………………………………………………………………………………….110 Prophecy………………………………………………………………………………..112 Giant Beavers…………………………………………………………………………...113 Concluding Remarks……………………………………………………………………114 References……………………………………………………………………………………...115 vi List of Figures 1)Mackenzie Mountains………………………………………………...……………….4 2)Northwest Territories Land Claim Map……………………………………………….21 3)Sahtu Region and communities……..………………………………………………....23 4)Discovery Well 1920…………………………………….…………………………….29 5)Mackenzie River/Norman Wells………………………………………………………34 6)Esso Property with sign and oil drums………………………….……………………..35 7)Sahtu District Map……………………………………………….…………………….63 8)SDMCLCA title page with signatures……………………………….………………...67 9)Sahtu Land and Water Board logo……………………………………….…………....79 10)Sahtu Renewable Resources Board logo………………………………...…………...79 11)Sahtu Land Use Planning Board logo……………………………………...…………79 12)Sahtu Secretariat Inc. logo…………………………………………………...…….....80 13)Norman Wells Land Corporation sign………………………………………...……...88 14)Edward G. Hodgson Building…………………………………………………..……88 15)Paul Tan’s Land Corporation mission statement………………………………...…...90 16)Oil and Gas Exploration Parcel Map………………………………………………....95 17)ConocoPhillips EL470 Drill Site…………………………………………………....102 18)Treaty 11 Fort Norman and Fort Good Hope signature page……………………….111 19)Bear Rock Mountain………………………………………………………………...113 vii Abbreviations and Glossary AANDC-Aboriginal Affairs and Northern Development Canada. Previously ‘Department of Indian Affairs and Northern Development’ and later ‘Indian and Northern Affairs Canada’. Beneficiary/Member/Participant-Any eligible person who meets certain requirements to successfully enroll under the SDMCLCA. Co-Management- A principal of public land claim institutions in which board positions are reserved for each member government. A key feature of the Mackenzie Valley regulatory regime. DLC- District Land Corporation. DSO-Designated Sahtu Organization. Beneficiary only land claim institutions. ‘D’evelopment- denotes the multifaceted complex of economic, social, and political change that characterizes Western society, industrialisation, and capitalism (Bone 2009: 2). EA-Environmental Assessment. EIR-Environmental Impact Review. ENR-Department of Environment and Natural Resources. The GNWT department responsible for renewable resource and forestry management. GNWT-Government of Northwest Territories. IPG- Institutions of Public Government implemented per the land claim MVLWB-Mackenzie Valley Land and Water Board MVRB-Mackenzie Valley Review Board MVRMA-Mackenzie Valley Resource Management Act NWLC-Norman Wells Land Corporation NWT-Northwest Territories NWTSRB-Northwest Territories Surface Rights Board Oil and/or Gas Play-A group of oil & gas prospects in the same region under the same geological conditions. Resource Development: Any non-renewable subsurface resource economic activity. This includes the exploration, development, and production of oil, gas, and minerals. viii RRC-Renewable Resources Council.