FILE NO.: SCT-7006-12 CITATION: 2016 SCTC 3 DATE: 20160205 SPECIFIC CLAIMS TRIBUNAL TRIBUNAL DES REVENDICATIONS PARTICULIÈRES BETWEEN: ) ) AKISQ’NUK FIRST NATION ) ) Darwin Hanna, Adam Munnings and Katrina ) Harry, for the Claimant Claimant ) ) – and – ) ) HER MAJESTY THE QUEEN IN RIGHT ) OF CANADA ) As represented by the Minister of Indian ) Christa Hook, Deborah McIntosh and Brett Affairs and Northern Development ) Nash, for the Respondent ) ) Respondent ) ) ) ) ) HEARD: September 23-25, 2014 REASONS FOR DECISION Honourable Harry Slade, Chairperson NOTE: This document is subject to editorial revision before its reproduction in final form. Cases Cited: Manitoba Métis Federation Inc v Canada (AG), 2013 SCC 14, [2013] 1 SCR 623; Kitselas First Nation v Her Majesty the Queen in Right of Canada, 2013 SCTC 1; Canada v Kitselas First Nation, 2014 FCA 150, [2014] 4 CNLR 6; Wewaykum Indian Band v Canada, 2002 SCC 79, [2002] 4 SCR 245; Guerin v R, [1984] 2 SCR 335, 13 DLR (4th) 321; Ross River Dena Council Band v Canada, 2002 SCC 54, [2002] 2 SCR 816; Tsilhqot’in Nation v British Columbia, 2014 SCC 44, [2014] 2 SCR 257; Alberta v Elder Advocates of Alberta Society, 2011 SCC 24, [2011] 2 SCR 261; Haida Nation v British Columbia (Minister of Forests), 2004 SCC 73, [2004] 3 SCR 511. Statutes and Regulations Cited: Specific Claims Tribunal Act, SC 2008, c 22, ss 14, 22. British Columbia Terms of Union, 1871, a 11, 13. Royal Proclamation, 1763. British North America Act, 1867, ss 91, 109. British Columbia Indian Lands Settlement Act SC 1920, c 51, Preamble, ss 2, 3. Authors Cited: Robert E Cail, Land, Man, and the Law, The Disposal of Crown Lands in British Columbia, 1871-1913 (The University of British Columbia, 1974). Cole Harris, Making Native Space, Colonialism, Resistance, and Reserves in British Columbia (University of British Columbia Press, 2002). E Brian Titley, A Narrow Vision, Duncan Campbell Scott and the Administration of Indian Affairs in Canada (University of British Columbia Press Vancouver, 1969). The Canadian Oxford Dictionary, sub verbo “final”. Donovan W M Waters, Waters’ Law of Trusts in Canada, 4th ed (Toronto: Carswell, 2012). 2 TABLE OF CONTENTS I. THE CLAIM ........................................................................................................................... 5 II. PROCEDURAL HISTORY.................................................................................................... 5 III. HISTORICAL OVERVIEW .................................................................................................. 6 IV. HISTORICAL SCOPE OF THE CLAIM............................................................................... 8 V. BACKGROUND .................................................................................................................. 12 A. COLONIAL POLICY, THE ROYAL PROCLAMATION, 1763 .................................... 12 1. The Dominion and the Numbered Treaties ................................................................... 12 2. Treaties in the Colony of British Columbia .................................................................. 12 3. Priority of Interests in the Colonial Period ................................................................... 13 4. Confederation and Article 13 ........................................................................................ 15 B. ARTICLE 13 AND THE “LIBERAL” POLICY OF THE COLONY .............................. 16 1. Federal Expectations, 1871 ........................................................................................... 16 2. The Joint Indian Reserve Commission ......................................................................... 21 3. Comment ....................................................................................................................... 22 4. The Commissioners ...................................................................................................... 23 5. Allotment of IR 3 .......................................................................................................... 24 6. Completion of the Work of the Commission; Outstanding Issues ............................... 25 C. FINALITY ........................................................................................................................ 26 1. 1871-1912: When is “Final” Final? .............................................................................. 26 a) The Joint Indian Reserve Commission ..................................................................... 26 b) The McKenna-McBride Agreement ......................................................................... 27 c) Comment ................................................................................................................... 27 2. Finality, Round 2 .......................................................................................................... 28 3. Proceedings of MMC, Reductions and Additions to Reserves ..................................... 33 4. The Additional Land ..................................................................................................... 33 5. The Survey Land, and the Addition .............................................................................. 34 6. Disposing of the Promised Consent to Reserve Reductions ......................................... 35 a) Comment on Disposal of Indian Consent ................................................................. 37 7. True Intent and Purpose of the Agreement, and Government Prerogatives ................. 37 a) Comment on Shifting Purposes ................................................................................ 38 8. Finality, Round 3: Ditchburn Clark Review ................................................................. 39 a) Comment on Federal Capitulation ............................................................................ 42 9. Finality Achieved .......................................................................................................... 43 VI. INDIGENOUS PERSPECTIVE ........................................................................................... 43 A. RESERVES, AND TRADITIONAL USE AND OCCUPATION .................................... 43 B. KNOWLEDGE OF THE LAW ......................................................................................... 44 C. THE ASSURANCE OF FINALITY ................................................................................. 45 D. KNOWLEDGE OF DISALLOWANCE OF THE ADDITION ........................................ 46 VII. POSITIONS OF THE PARTIES ...................................................................................... 48 3 A. CLAIMANT (FIRST NATION) ....................................................................................... 48 B. RESPONDENT (CROWN) .............................................................................................. 48 VIII. ISSUES ............................................................................................................................. 50 IX. ANALYSIS ........................................................................................................................... 50 A. WEWAYKUM AND FIDUCIARY DUTY ..................................................................... 50 1. Cognizable Interest ....................................................................................................... 51 a) Recognition of Current Use ...................................................................................... 51 b) Prior Occupation ....................................................................................................... 52 c) Conclusion ................................................................................................................ 53 2. Discretionary Control.................................................................................................... 53 3. The Test of “Ordinary Diligence” ................................................................................. 54 4. Conclusion .................................................................................................................... 55 B. AFTER WEWAYKUM ...................................................................................................... 55 1. Distinguishing Facts...................................................................................................... 55 2. Undertaking of Loyalty, Forsaking all Others .............................................................. 56 C. HONOUR OF THE CROWN ........................................................................................... 56 1. Reserve Creation in British Columbia .......................................................................... 58 a) Context, Purpose, and the Promise ........................................................................... 58 2. Duty of Diligence .......................................................................................................... 59 3. Diligent Fulfillment ...................................................................................................... 60 a) Temporal Aspect ....................................................................................................... 61 b) Diligence as to Quality and Quantity ........................................................................ 62 c) Diligent Fulfillment and the Crown, Canada ............................................................ 62 4. The Broken Promise