Best Practices For First Nation Involvement in Environmental-Assessments-Report PDF

BestPractices
ForFirstNationInvolvement
InEnvironmentalAssessmentReviews
OfDevelopmentProjectsIn
BritishColumbia
by
ElmarPlateandMalcolmFoy
LGLLimited,environmentalresearchassociates
and
RickKrehbiel
FirstNationsEnvironmentalAssessmentTechnicalWorkingGroup
Areportto:
NewRelationshipTrust
Suite1008100ParkRoyal
WestVancouver,BC
V7T1A2
July21,2009
EXECUTIVE SUMMARY
Thepracticeofenvironmentalassessment(EA)inBCisguidedbytheBCEnvironmental
AssessmentActandtheCanadianEnvironmentalAssessmentAct,andtheiraccompanying
regulationsandguidelines.WhilethesetwoActsclearlydescribetheEAprocesses,they
donotprescribeclearlyhowFirstNationsshouldbeinvolved.Withcaselawon
aboriginalrightswithrespecttolandandresourcesrapidlyevolvinginBC,the
governmentsofCanadaandBChavecomealongwayinrecentyearsinincludingFirst
NationsinEAreviewprocesses.Nonetheless,inthisatmosphereoflegaluncertainty
withoutprescribedandagreeduponrolesforFirstNationsinvolvement,manyFirst
NationsarefrustratedintheircurrentroleinEAreviewofproposedProjectsthatoccur
ontheirterritoriesandthatsodirectlyaffecttheirrightsandinterests.Thesefrustrations
include,butarecertainlynotlimitedto:
unsatisfactoryaspectsoftheenvironmentalassessmentprocess,e.g.thewayin
whichTermsofReferencearedevelopedandused;
legislatedtimelinesforvariousstepsintheenvironmentalassessmentprocess
thatarentconsistentwithFirstNationdecisionmakingprocesses;
aninabilityoftheenvironmentalassessmentprocess,oranunwillingnessofpublic
governmentsorProponents,tomeaningfullyconsidermanyvaluesofimportance
toFirstNations;
lackofclarityandconsistencyonhowthesignificanceofProjecteffectsis
determined;
anunsatisfactorycumulativeeffectsprocess,thatdoesnotproperlytakeinto
accountimpactsofalltypesofdevelopmentthathaveoccurredinthepast;
anunsatisfactoryroleforFirstNationsindecisionmaking;
unsatisfactoryfundingmechanismsandinsufficientlevelsoffundingfor
meaningfulparticipationinenvironmentalassessmentreviewprocesses;and
someProjectproponentswhoareunenlightenedaboutFirstNationrightsand
interests,orwhomerelyseeFirstNationparticipationasanotherobstacleto
overcomeinthepursuitoftheirProject.
Asaninauguraltask,theNewRelationshipTrust(NRT)travelledacrossBCtoidentify
issuesofcommonconcerntoFirstNationsthatneededtobeaddressed.TheroleofFirst
NationsintheEAprocesswasidentifiedasonetopicofseriousandcommonconcern.In
response,theNRTcommissionedthisstudytosummarizeBestPracticesforthe
involvementofFirstNationsintheEAprocess.BestPracticesweredefinedinthe
RequestforProposalas:
methodologies,strategies,procedures,practicesand/orprocessesthat
consistentlyproducesuccessfulresults.
BestPracticesforFirstNationInvolvementinEAReviews
Pagei
IndevelopingtheseBestPractices,weusedthreeprimarysourcesofinformation:1)
interviewswiththosewhoareinvolvedinEAreviewonbehalfofFirstNations,including
FirstNationmembersandadvisorstoFirstNations,aswellassomegovernment
personnel;2)casestudiesofthreeEAprocessesinBritishColumbia;and3)other
backgroundresearch.WealsocalledonourownexperienceandexpertiseinEA,bothas
practitionersofEA,andasadvisorstoFirstNationsinEAreviewsandonotherlandand
resourceissues.
InTable1welist75proposedBestPracticesforengagementofFirstNationsintheEA
reviewprocessinBritishColumbia.ForeachBestPracticeweidentifywhichofthe
primaryPartiestoEAinBritishColumbia(Canada,BritishColumbia,Proponents,orFirst
Nations)havetheprimaryresponsibilityforimplementingtheBestPractice,andwhether
itisaBestPracticethatcanbeimplementedunderexistingcircumstances(i.e.,now)or
whetheritisaPracticethatwilltakesometimetoimplement(i.e.,future).Rationalefor
eachproposedBestPracticeisprovidedinSection5ofthemainbodyofthereport.
WebelievethattheBestPracticesreportedhereinarerelevantformostFirstNationsin
BC.However,weareawarethatmostFirstNationsthatareintreatynegotiationswishto
preservetheabilitytopasstheirownlawswithrespecttoenvironmentalassessment,as
firstachievedbytheNIsgaaintheirtreaty.IfaFirstNationputsintoeffectitsownlaws
onenvironmentalassessment,someoftheseproposedBestPracticesmaynolongerbe
relevant.
TheBestPracticesrecommendedinTable1shouldbeusedtogetherwiththetoolkitthat
hasbeendevelopedbytheFirstNationsEnvironmentalAssessmentTechnicalWorking
GrouptoassistFirstNationsintheirparticipationinEAprocessesinBritishColumbia.
Pageii
Table1.SummaryofProposedBestPracticesforFirstNationInvolvement
inEnvironmentalAssessmentReviews.
BP# BestPractice
ABORIGINALANDTREATYRIGHTS,ANDCONSULTATION
1
CanadaandBritishColumbiamustensurethattheir
environmentalassessmentlegislation,policies,and
guidelinesreflecttheconstantlyevolvinglawofthe
landwithrespecttoAboriginalandTreatyrights.
2
TheBCEnvironmentalAssessmentActshouldbe
amendedtospecifyanddefinetheinclusionofFirst
Nationsintheenvironmentalassessmentprocess,
consistentwithrecentcaselawinrespectof
aboriginalrightsandtitle.
3
Asafirststepinengaginginanenvironmental
assessmentreviewprocess,aFirstNationshould
communicateinwritingtoCanada,British
Columbia,andtheProponentaclearassertionofits
rightsandinterests,includingtitlewhere
appropriate,intheProjectarea.
4
AProponentshouldbewellinformedaboutthelaw
ofthelandregardingaboriginalrightsandtitle
beforeapproachingaFirstNationaboutapotential
ProjectinthatFirstNationsterritory.
5
Section27oftheBCEnvironmentalAssessmentAct,
regardingenvironmentalassessmentagreements
withotherjurisdictions,shouldbeamendedto
includeFirstNationsasjurisdictions.
6
AffectedFirstNationsshouldbeconsideredto
includeboththoseFirstNationsinwhose
territoriesaproposedProjectislocatedandthose
FirstNationsthatareindirectlyaffectedbythe
Project.
7
TofulfillitsfiduciaryobligationstoFirstNations,
Canadashouldtakeamoreactiverolein
environmentalassessmentsinBritishColumbia
giventhatmostprojectsinBCwillbelocatedwithin
theterritoriesofoneormoreFirstNations.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
BC;Canada
Now
BC
Future
FN
Now
Proponent
Now
BC
Future
All
Now
Canada
Now
Pageiii
BP#
8
10
11
BestPractice
EachFirstNationshoulddesignitsown
consultationguidetoinformandinstructother
partiestotheenvironmentalassessmentreview
process.
Canada,BC,andproponentsmustacknowledgethe
governmentgovernmentrelationshipwithFirst
NationsandmustnotviewFirstNationsas
stakeholders.
Attheonsetofanenvironmentalassessment
process,affectedFirstNationsshouldbeconsulted
byprovincialandfederalgovernmentsinrespectof
potentialissuesrelatedtoaboriginalinterests,
rightsandtitle,andthefiduciaryobligationsof
governmentstoFirstNations.
ConsultationwithFirstNationsistheresponsibility
ofCanadaandBCandshouldnotbedelegatedto
ProjectProponents.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
FN
Now
Canada;BC;
Proponent
Now
BC;Canada
Now
BC;Canada;
FN
Now
RESTRUCTURINGBCENVIRONMENTALASSESSMENTOVERSIGHT
12
TheBCEnvironmentalAssessmentOfficeshouldbe BC
restructuredasanagency,politicallyand
functionallyindependentofBCGovernment
ministries.
13
TheBCEnvironmentalAssessmentOfficeshould
BC
continueitsinitiativetoestablishregionaloffices
whichwouldalloweasieraccessbyand
communicationwithFirstNations.
14
FirstNationsshouldberepresentedintheoversight BC
ofanewlydesignedandindependentBC
EnvironmentalAssessmentOffice.
15
Acommittee,includingFirstNationrepresentation, BC
shouldimmediatelybeformedtoexaminewaysto
maketheenvironmentalassessmentprocessmore
efficientandeffective.
Future
Now
Future
Future
Pageiv
BP#
16
17
BestPractice
ThenewlyformedEnvironmentalAssessment
Committeeshoulddecidewhetherandhowthe
forestryandtheoilandgasindustriesshouldbe
coveredbytheenvironmentalassessmentprocess
tobettercapture,mediateandregulatetheir
cumulativeeffectsonFirstNationsandthe
environment.
AstandingFirstNationsEnvironmentalAssessment
AdvisoryCommitteeshouldbecreatedtoprovide
ongoingadvicetotheBCEnvironmental
AssessmentOfficeonFirstNationissueswith
respecttoenvironmentalassessment.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
BC;Canada
Future
BC;FN
BUILDINGANDMAINTAININGGOODWORKINGRELATIONSHIPS
18
Proponentscanassistindevelopingagoodworking Proponent
relationshipwithFirstNationsbymeaningfully
involvingFirstNationsinallphasesofaProjects
planning,permitting,construction,operation,and
decommissioning.
19
Allpartiesengagedinanenvironmentalassessment All
reviewprocessshouldmakebesteffortstoutilize
thesamestaffthroughouttheprocesssothata
productiveworkingrelationshipcanbedeveloped
amongthevariousenvironmentalassessment
reviewentities.
20
Someenvironmentalassessmentreviewmeetings All
shouldbeheldinthecommunitiesofaffectedFirst
Nations.
FIRSTNATIONMANAGEMENTOFITSPARTICIPATIONINTHEEAPROCESS
21
EachFirstNationshoulddevelopitsownstrategic
FN
visioninrespectofdevelopmentinitsterritoryand
shouldusethisvisiontoguideitsparticipationin
environmentalassessment.
22
EachFirstNationshouldcompleteitsownlanduse FN
planningonitsterritorytogivedirectionto
environmentalassessmentandotherlandbased
processes.
Future
Now
Now
Now
Now
Now
Pagev
BP#
23
24
25
26
27
28
29
BestPractice
EachFirstNationshouldcompleteitsownterritory
basedsocial,economic,andculturalbaseline
studiestoinformandgivedirectionto
environmentalassessmentandotherprocesses.
EachFirstNationshoulddevelopitsownguidelines,
basedonitsspecificneeds,toinformproject
proponentsabouthowitwishestobeapproached
andengagedintheenvironmentalassessment
process.Thisshouldbeformalizedinan
EnvironmentalAssessmentParticipation
AgreementbetweentheFirstNationandthe
Proponent(seealsoBP#70).
FirstNationsshouldbeengagedearlyinthe
processbytheProponentinearlystagesofProject
planning,sothattheyhaveappropriateinputinthe
identificationofvaluedecosystemcomponents,the
scopingofgeographicandtemporalbounds,and
theplanningofbaselinestudies.
IfmorethanoneFirstNationisaffectedbya
Project,poolingofresourcesanddevelopmentand
communicationofcommonpositionsmaybe
helpfulinachievingastrongervoicein
environmentalassessmentreviews.
IfaFirstNationchoosestoengagelegalorother
consultingassistanceinparticipatinginan
environmentalassessmentreviewprocess,this
engagementshouldbeformalizedinacontractual
agreementincludinganappropriateScopeof
Work.
EachFirstNationshoulddevelopitsownlistof
criteriaagainstwhichitcanmeasuretheadequacy
ofenvironmentalassessmentsandtheimportance
andacceptabilityofpredictedProjectimpacts.
EachFirstNationshoulddevelopitsowninternal
communicationandcommunityfeedbackplanwith
respecttoenvironmentalassessmentspecifictoits
ownneeds.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
FN
Now
FN
Now
Proponent
Now
FN
Now
FN
Now
FN
Now
FN
Now
Pagevi
BP#
30
31
BestPractice
EachFirstNationshoulddevelopaneasily
accessiblelibraryofdocumentspertainingtoa
particularenvironmentalassessmentfortheuse
andbenefitofitsstaffandmembers.
FirstNationsstaffmemberswhohaveresponsibility
forenvironmentalassessmentshouldnotbethe
samestaffmemberswhohaveresponsibilityfor
developingeconomicagreementswiththe
Proponent(seealsoBP#71).
THEENVIRONMENTALASSESSMENTPROCESS
GeneralProcessIssuesandScoping
32
Commissionorpanelenvironmentalassessment
reviews,ascontemplatedinSection14oftheBC
EnvironmentalAssessmentAct,shouldbemore
frequentlyusedforcomplexormorecontentious
Projects.
33
Toachieveculturalrelevancy,alternative
environmentalassessmentprocessmodels
suggestedbyFirstNationsshouldbeconsidered.
34
Environmentalassessment,whetherundertheBC
EnvironmentalAssessmentActortheCanadian
EnvironmentalAssessmentAct,mustinclude
evaluationofProjecteffectsonallaspectsofthe
environmentincludingthebiological,chemical,
physical,social,heritage,cultural,spiritual,
economic,andhealthenvironments.
35
TermsofReferenceforanEnvironmental
AssessmentApplicationshouldbedevelopedin
consultationwithaffectedFirstNationsearlyinthe
environmentalassessmentprocess,aspartofa
scopingexerciseandinadvanceofbaselineor
otherfieldstudies,andshouldbespecifictothe
natureoftheproposedProjectandthelocal
environment.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
FN
Now
FN
Now
BC
Now
BC
Future
BC;
Proponent
Now
BC;
Proponent
Now
Pagevii
BP#
36
BestPractice
EnvironmentalAssessmentApplicationsshouldbe
concise,withamaximumpagelimitsetatthe
TermsofReferencestage,shouldfocusonthe
importantProjecteffects,theirmitigation,residual
effects,andthesignificanceoftheresidualeffects,
andshouldbewritteninnontechnicallanguage.
Backgroundstudiesshouldbeappendicestothe
EnvironmentalAssessmentApplication.Seealso
BP#37.
37
EnvironmentalAssessmentApplicationsshouldnot
serveasPermitApplications,andshouldnot
includethedetailedinformationthatisrequiredfor
permitting.
38
ImportantFirstNationvaluesmustbeconsidered
tobevaluedecosystemcomponents,whetherthey
arebiological,chemical,physical,economic,social,
cultural,spiritual,heritage,orhealthvalues.
TraditionalKnowledgeandTraditionalUseStudies
39
Traditionalknowledgeandinformationon
traditionalusemustbecollectedearlyinthe
processtoinformthedesignofother
environmentalassessmentrelatedstudies,and
mustbegiventhesameconsiderationasscientific
knowledgeinevaluatingpotentialeffectsofa
proposedProject.
40
AProponentshouldgiveaffectedFirstNationsthe
opportunitytoconducttraditionalknowledgeand
traditionalusestudiesforusebytheProponentin
theenvironmentalassessmentofaproposed
Project.
41
Priortothecollectionofanytraditionalknowledge
ortraditionaluseinformationaspartofan
environmentalassessment,aFirstNationanda
Proponentshouldformalizetheirunderstanding
abouttheownership,confidentiality,anduseof
thisinformationinalegallybindingagreement.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
BC;
Now
Proponent
Proponent;
BC
Now
Proponent
Now
FN;
Proponent
Now
FN;
Proponent
Now
FN;
Proponent
Now
Pageviii
BP# BestPractice
BaselineandOtherBackgroundStudies
42
Baselineandotherbackgroundstudiesmust
adheretoacceptablestandardsofdatacollection
andanalysis,andmustadequatelyconsider
traditionalknowledgeandspatialandtemporal
variationintheirdesign.
43
Multiyearfieldstudiesshouldallowforbetween
yearreviewandcommentbyFirstNationsoffield
seasonresultsbeforefinalizingplansforthe
subsequentyear.
44
FirstNationrepresentativesshouldbeincludedon
allfieldstudyteams.
45
Theresultsofbaselinestudiesshouldbe
summarizedandpresentedtoFirstNationsinclear,
nontechnicallanguage.
SignificanceofResidualEffects
46
InanEnvironmentalAssessmentApplication,the
methodsfordeterminingthesignificanceof
residualeffectsmustbeclearlydocumented,and
analysesofsignificanceshouldbedonein
consultationwithFirstNations.
47
Criteriaforevaluationofthesignificanceofresidual
environmentaleffectsshouldbereviewedand
standardizedtoensurethatthesustainabilityof
FirstNationsheritage,social,spiritual,andcultural
valuesareproperlyconsideredinenvironmental
assessment,alongwithbiological,chemical,and
physicalvalues.
CumulativeEffectsAssessment
48
Giventheineffectivenessofcumulativeeffects
assessmentasitispracticedtoday,onetaskforthe
committeerecommendedinBP#15shouldbeto
examinetheexistingcumulativeeffects
methodologyandmakerecommendationsforits
improvement.
49
Giventheirlongassociationwiththelandandits
resources,FirstNationsmustplayameaningfulrole
incumulativeeffectsassessment.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
Proponent
Now
Proponent
Now
Proponent;
FN
Proponent
Now
Now
All
Now
All
Future
All
Future
All
Now
Pageix
BP#
50
BestPractice
Thesignificanceofsomecumulativeeffectsmust
bemeasuredagainstpredeterminedthresholds
developedinlanduseplanning,regional
cumulativeeffectsassessment,orotherprocesses.
51
Oralevidenceofpastimpactsofdevelopment
Projectsmustbegivendueconsiderationinthe
assessmentofcumulativeeffects.
52
Remediationofenvironmentalproblemsfrompast
Projectsmayprovidemoreroomfor
development,andshouldbegivendue
considerationincumulativeeffectsassessment.
Commitments
53
AnEnvironmentalAssessmentApplicationmustlay
outcommitmentsmadebytheProponentand
publicgovernmentsinrespectofFirstNationsin
thedevelopment,operation,andpostoperation
phasesofaproposedProject,andthese
commitmentsmustbecarriedoverinto
EnvironmentalAssessmentCertificates,permits,or
otherauthorizations,orintoagreementsbetween
FirstNationsandpublicgovernments,orFirst
NationsandtheProponent,asappropriate.
54
TheBCEnvironmentalAssessmentOfficeshould
developasystemtotrackandenforcecompliance
ofthecommitmentsmadebytheProponentinan
EnvironmentalAssessmentApplicationand
subsequentpermitsorotherauthorizations,and
shouldannuallyreviewcompliancewithaffected
FirstNations.
55
Understandingsmadeoutsideoftheenvironmental
assessmentprocessbetweenaProponentanda
FirstNationshouldbecapturedinalegallybinding
agreement.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
All
Nowand
Future
All
Now
All
Now
Proponent;
BC;Canada
Now
BC
Now
Proponent;
FN
Now
Pagex
BP# BestPractice
DecisionMaking
56
FirstNationsshouldcommunicatetheirconcerns,
recommendations,anddecisiontotheBCand
federalMinistersindependentlyofBC
EnvironmentalAssessmentOfficeorCanadian
EnvironmentalAssessmentAgency
recommendations.
57
CanadaandBCmustacknowledgethatFirst
Nationshaveadecisionmakingroleaboutthe
environmentalacceptabilityofProjectswithintheir
territoriesandfindsuitablemechanismstogive
effecttothisrole.
58
TheBCEnvironmentalAssessmentOfficeCertificate
decisionmakingprocessshouldberedesignedto
betterconsiderandincorporatetheviewsand
decisionmakingroleofFirstNations,andshould
includeadisputeresolutionmechanismwhenthe
viewsofFirstNationsandpublicgovernmentsare
atodds.
59
EachFirstNationshoulddevelopitsownpolicies
andguidelinestoprovidedirectiononinternal
environmentalassessmentdecisionmaking.
60
FirstNationsmustbeallowedsufficienttime,
consistentwiththeirownprocessesofinternal
consultation,toallowforenvironmental
assessmentdecisionmaking.
MONITORINGANDFOLLOWUP
61
Anenvironmentalassessmentmustincludea
monitoringplanforallphasesoftheProjectthat
includesacommitmenttoengageFirstNation
monitors.
62
FirstNationmonitorsshouldbeindependent
contractorsoremployeesoftheFirstNationwith
obligationstoreporttheirmonitoringresults,
includinginfractions,totheProponent,topublic
governments,andtoaffectedFirstNations.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
FN
Now
Canada;BC
Nowand
Future
BC
Future
FN
Now
BC;Canada
Now
Proponent
Now
Proponent;
FN
Now
Pagexi
BP#
63
64
BestPractice
AProjectProponentshouldberesponsiblefor
fundingthetrainingandengagementofFirst
Nationmonitors.
Governmentregulatorsshould,inatimelymanner,
investigateFirstNationmonitorsreportsof
environmentalassessmentcommitmentor
permittinginfractionsand,ifnecessary,take
appropriateremedialactions.
REMEDIATIONOFUNANTICIPATEDADVERSEIMPACTS
65
Amechanism,separatefromandinadditiontothe
BCbondingmechanismcurrentlyinplaceformine
reclamation,shouldbedevelopedtocollectand
holdfinancialresourcesfromProjectproponents
forremediationofunanticipatedadverseProject
effects.
FINANCIALCAPACITYFORPARTICIPATIONINEA
66
Toavoidanyrealorperceivedconflictofinterest
issues,itisnotagoodpracticeforFirstNationsto
receivefundingdirectlyfromProponentsto
participateinenvironmentalassessmentprocesses.
67
FundingFirstNationparticipationinenvironmental
assessmentprocessesorinprocessesthatwill
facilitatefutureenvironmentalassessment
processes(suchasFirstNationsLandUsePlans,
SocioEconomicBaselineStudies,TraditionalUse
Studies)isprimarilytheresponsibilityof
governments.
68
FundingforFirstNationparticipationin
environmentalassessmentprocessesshouldbe
heldintrustfordistributiontoFirstNations.
69
FirstNationsmustbefundedinamountssufficient
tocoverthereasonablecostsoftheirparticipation
inenvironmentalassessmentprocesses.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
Proponent
Now
BC;Canada
Now
BC;Canada
Future
FN
Now
BC;Canada
Now
BC;Canada
Future
BC;Canada;
Proponent
Now
Pagexii
BP#
70
71
72
BestPractice
IntheinterimperiodbeforeGovernmentsdevelop
appropriatemechanismstoproperlyfundFirst
Nationparticipationintheenvironmental
assessmentprocess,ProponentsshouldfundFirst
NationparticipationthroughEnvironmental
AssessmentParticipationAgreementsnegotiated
withFirstNations(seealsoBP#24).
EnvironmentalAssessmentParticipation
Agreementsshouldnotbeconfusedwithor
combinedwithEconomicBenefitAgreements(see
alsoBP#31).
Intheabsenceofotherfundingmechanisms,First
Nationsshouldconsiderafeeforservice(personnel
timeplusexpenses)systemforinvoicingpublic
governmentsfortheirparticipationin
environmentalassessmentreviewprocesses.
Canbe
Implemented
Primary
Noworin
Responsibility
Future?
Proponent
Now
Proponent;
FN
Now
FN
Now
CAPACITYBUILDING
73
FirstNationsshoulddeveloptheirowncapacity
FN
buildingplanstoenhancetheirabilitiesto
effectivelyparticipateinenvironmentalassessment
processes.
74
FirstNationsshouldsupportandutilizetheservices FN
ofFirstNationorganizations,suchastheFirst
NationsEnvironmentalAssessmentTechnical
WorkingGroup(FNEATWG),thataremeantto
assistinbuildingFirstNationcapacityin
environmentalassessmentorothergovernance
functions.
75
ThegovernmentsofBCandCanadashouldfund
BC;Canada
environmentalassessmentcapacitybuildinginFirst
Nations.
Now
Now
Now
Pagexiii
TABLE OF CONTENTS
Page
EXECUTIVESUMMARY.......................................................................i
TABLEOFCONTENTS......................................................................xiv
LISTOFTABLES...............................................................................xvi
LISTOFFIGURES.............................................................................xvi
LISTOFAPPENDICES.......................................................................xvi
ACKNOWLEDGEMENTS..................................................................xvii
ABBREVIATIONSUSEDINREPORT................................................xviii
1.INTRODUCTION.............................................................................1
2.METHODS.....................................................................................3
2.1Interviews........................................................................................3
2.2CaseStudies.....................................................................................4
2.3OtherResearch................................................................................5
3.EXISTINGEAPROCESSES...............................................................6
3.1BCEnvironmentalAssessmentProcess...........................................6
3.2CanadianEnvironmentalAssessmentProcess.................................8
3.3BC/CanadaHarmonizationAgreement............................................9
3.4FirstNationasaProponent.............................................................9
4.RESULTSOFINTERVIEWSANDCASESTUDIES............................11
4.1SummaryofInterviewSentiments................................................11
4.2LessonsLearnedfromCaseStudies...............................................11
Pagexiv
Page
5.PROPOSEDBESTPRACTICESFORFIRSTNATION
PARTICIPATIONINEAPROCESS.............................................14
5.1AboriginalandTreatyRightsandConsultation..............................14
5.2RestructuringBCEnvironmentalAssessmentOversight...............19
5.3BuildingandMaintainingGoodWorkingRelationships................22
5.4FirstNationManagementofItsParticipationintheEAProcess...23
5.5TheEnvironmentalAssessmentProcess........................................27
5.5.1GeneralProcessIssuesandScoping...................................................28
5.5.2TraditionalKnowledgeandTraditionalUseStudies...........................31
5.5.3BaselineandOtherBackgroundStudies.............................................32
5.5.4SignificanceofResidualEffects...........................................................34
5.5.5CumulativeEffectsAssessment..........................................................35
5.5.6Commitments......................................................................................37
5.5.7DecisionMaking..................................................................................39
5.5.8MonitoringandFollowUp..................................................................41
5.5.9RemediationofUnanticipatedAdverseImpacts................................43
5.6FinancialCapacityforParticipationinEA......................................43
5.7CapacityBuilding...........................................................................46
6.RELATEDISSUES..........................................................................49
APPENDICES
AppendixASummaryofInformationAcquiredinInterviews
AppendixBCaseStudies
AppendixCEnvironmentalAssessmentintheCommonLaw
AppendixDUsefulWebsitesandotherSourcesofInformation
Pagexv
LIST OF TABLES
Table
1.
SummaryofProposedBestPracticesforFirstNationInvolvement
inEnvironmentalAssessmentReviews.
Page
iii
LIST OF FIGURES
Figure
1.
2.
Page
SimplifiedFlowChartoftheBCEAProcess.
SimplifiedFlowChartoftheCEAAProcess.
LIST OF APPENDICES
Appendix
A.
SummaryofInformationAcquiredinInterviews.
B.
CaseStudies.
C.
EnvironmentalAssessmentintheCommonLaw.
D.
UsefulWebsitesandOtherSourcesofInformation.
Pagexvi
ACKNOWLEDGEMENTS
Wewishtogratefullyacknowledgeandthankthemanypeoplewhocontributedtheir
perspectivesandideasinrespectofBestPracticesforFirstNationsinparticipatingin
environmentalassessmentreviewsofdevelopmentprojectsinBritishColumbia.
Thesecontributorsincluded:CollierAzak;MarcusBartley;DavidBelford;AlecChingee;
CherylChingee;GavinDirom;TamaraDokkie;ByngGiraud;MansellGriffin;ElkeLapka;
J.P.LaPlante;HaroldLeighton;LyellLetendre;TinaLetendre;NalaineMorin;HarryNyce;
TonyPearse;VerneSolonas;TerryTeegee;FredTolmie;JoeTruscott;GarryUllstrom;
MikeWesterlund;andGlenWilliams.Allofthesepeoplehavehadexperienceinthe
environmentalassessmentprocessinBritishColumbia,somefromtheperspectiveofFirst
Nationsorotheraboriginalgroupsorgovernments,somewhorepresentedproponentsof
projectsthatunderwentenvironmentalassessment,andsomewhomanagedthe
environmentalassessmentprocess.Weareextremelygratefulforallofthisinput.
Eventhoughtheinputofthesecontributorshashelpedimmenselyinframingideas
aroundBestPracticesforFirstNationsintheenvironmentalassessmentprocess,noneof
theideaspresentedhereincanbeattributedtoanyoneindividualorcontributor.The
authorstakefullresponsibilityfortheBestPracticessuggestedhereinandinany
deviationinideasforBestPracticessuggestedbyothercontributors.
WealsowishtothankLisaWebsterGibsonoftheFirstNationEnvironmentalAssessment
TechnicalWorkingGroup(FNEATWG)forinsightsheprovidedinearlydiscussionsonthis
project,andforhercoordinationofFNEATWGparticipation.
WearegratefulfortheassistanceofLGLstaffinproducingthisreport.BobBocking
reviewedanearlydraftandprovidedvaluableinput.KerryStrattonassistedinthe
productionofthereport.
Finally,wewishtothankMr.CliffFreginoftheNewRelationshipTrust(NRT)andMr.
DerekSagima,formerlyoftheNRT,forinitiating,funding,andmanagingthisprojectand
forprovidinguswithvaluabledirectionandadvicethroughouttheproject.
Pagexvii
ABBREVIATIONS USED IN REPORT
BC
BCEAO
BCEAAct
CEAA
CEAAct
EA
EAO
EIA
EIS
IA
NRT
TEK
TK
TUS
BritishColumbia
BritishColumbiaEnvironmentalAssessmentOffice
BritishColumbiaEnvironmentalAssessmentAct
CanadianEnvironmentalAssessmentAgency
CanadianEnvironmentalAssessmentAct
EnvironmentalAssessment
EnvironmentalAssessmentOffice
EnvironmentalImpactAssessment
EnvironmentalImpactStatement
ImpactAssessment
NewRelationshipTrust
TraditionalEcologicalKnowledge
TraditionalKnowledge
TraditionalUseStudy
Pagexviii
1.
INTRODUCTION
EIA(EnvironmentalImpactAssessment)andEIS(EnvironmentalImpact
Statement)practicesvaryfromstudytostudy,fromcountrytocountry,andbest
practiceisconstantlyevolving. 1
Asaninauguraltask,theNewRelationshipTrust(NRT) 2 travelledacrossBCtoidentify
issuesofcommonconcerntoFirstNationsthatneededtobeaddressed.FirstNations
involvementorlackofinvolvementintheEnvironmentalAssessment(EA)processwas
identifiedasonetopicofseriousandcommonconcern.Inresponse,theNRT
commissionedastudytosummarizeBestPracticesfortheinvolvementofFirstNationsin
theEAprocess.ThisreportsummarizestheBestPracticesthatresultedfromthiswork,
wherethedefinitionofBestPractices,asdefinedintheRequestforProposal,was:
methodologies,strategies,procedures,practicesand/orprocessesthat
consistentlyproducesuccessfulresults.
ThepracticeofEAinBCisguidedbytheBCEnvironmentalAssessmentAct 3 andthe
CanadianEnvironmentalAssessmentAct 4 ,andtheiraccompanyingregulationsand
guidelines.WhilethesetwoActsclearlydescribetheEAprocesses,theydonotprescribe
clearlyhowFirstNationsshouldbeinvolved.Withcaselawonaboriginalrightswith
respecttolandandresourcesrapidlyevolvinginBC,thegovernmentsofCanadaandBC
havecomealongwayinrecentyearsinincludingFirstNationsinEAreviewprocesses.
Nonetheless,inthisatmosphereoflegaluncertaintywithoutprescribedandagreedupon
rolesforFirstNationsinvolvement,manyFirstNationsarefrustratedintheircurrentrole
inEAreviewofproposedProjectsthatoccurontheirterritoriesandthatsodirectlyaffect
theirrightsandinterests.Thisbecomesaseriousfrustrationonlarge,complexProjects
withseriousenvironmentaleffects,asexpressedinoneofthepresentationsgivenduring
theBCFirstNationsMiningSummitinOctoberof2008inPrinceGeorge,BC:
TheinvolvementofFirstNationsintheEAprocessworkswellforprojectsthatdo
nothavemanyimpactsanditbreaksdownwhenaprojectbecomesmorecomplex
andmanyimpactsneedtobemitigated.
Inthisreport,wesuggestBestPracticesforameaningfulinvolvementofFirstNationsin
theEAprocess.ThesesuggestionshavebeenfoundedindiscussionwithseveralEA
practitioners,mostlyfromFirstNationsinBC,butalsofromgovernmentandindustry.
Glasson, John et al: Introduction to Environmental Impact Assessment: Principles and Procedures, Process,
Practice, and Prospects. Routledge, 1999, p. 7
2
http://www.newrelationshiptrust.ca/
3
http://www.qp.gov.bc.ca/statreg/stat/E/02043_01.htm
4
http://laws.justice.gc.ca/en/c-15.2/text.html
Page1
OurproposedBestPracticeshavealsobeeninformedbycasestudiesofactual
environmentalassessmentsandfromgeneralinformationreview.
WebelievethattheBestPracticesreportedhereinarerelevantformostFirstNationsin
BC.However,weareawarethatmostFirstNationsthatareintreatynegotiationswishto
preservetheabilitytopasstheirownlawswithrespecttoenvironmentalassessment,as
firstachievedbytheNIsgaaintheirtreaty.IfaFirstNationputsintoeffectitsownlaws
onenvironmentalassessment,someoftheseproposedBestPracticesmaynolongerbe
relevant.
Page2
2.
METHODS
Theinformationbaseforthisreportwasgatheredthroughdesktopstudiesofthe
existingliteratureandpublicinformationontheBCEnvironmentalAssessmentOffice
(BCEAO)andtheCanadianEnvironmentalAssessmentAgency(CEAA)websitesinaddition
totheprofessionalEAexperienceoftheauthorsandcolleagues.However,interviews
withcontributorsandcasestudiesofEAreviewexampleswerethemaininformation
sourcesforthisreport.
2.1
Interviews
Allpersonsinterviewedforthisreportwereaskedfortheirconsenttopublishthe
informationthattheyprovidedbeforetheinterviewbegan.Consentwasgivenunderthe
followingconditions:
Commentsmadewerenottobeconnectedtothenamesofspecificrespondents;
insteadalistofcontributorsisincludedintheAcknowledgements;
Thereportwastobeprecededbyapreamblethatclearlystatesthatnotall
contributorsagreewithallstatementsmadeinthereport(see
Acknowledgements);
Thecommentsmadeduringdiscussionsweretobesummarizedandemailed
backtotheintervieweesforreview;and
Afinaldraftofthereportwastobeprovidedtoallcontributorsforreviewand
commentbeforethefinalreportwaspublished.
Theauthorsofthisreporthadthechoicetoeitheruseaverystructuredapproachguided
bydetailedquestionsortosuggesttopicsandlettheinterviewprocesstakeitscourse
withinthetopics.AfterconsultingwithseveralFirstNationsEApractitioners,itwas
decidedthatthetopicguidedandmoreinformalapproachwasmoreculturally
appropriateandwouldlikelyresultinagreatervarietyofcomments.
Allbutoneoftheinterviewsforthisreportwereconductedfacetoface,mostlyonthe
territoriesofFirstNations.Duringeachinterviewallcommentswerewrittendownbythe
authorsofthisreportandlatersummarizedindigitalform.
Thetopicschosenfordiscussionwere:
DoyouthinktheharmonizedprovincialfederalEAprocessadequatelyinvolves
FirstNations?
Didyoufeelpreparedwhenyouengaged/willengageintheEAprocess?
Whatworked?Whatdidnot?Pleaseexplainusingexamples.
Timelines
Page3
Funding
Arm'slengthrelationshipwithaproponent
Consultation
Rightsandtitle
Territorialoverlap
Communication
UnderstandingoftheEAprocessanditsdeadlines
Consultants
Lawyers
Capacitybuilding
Informationexchangewithotherorganizations
Culturalappropriateness
Economicbenefits
Stakingandexploration
Technicaltips
Organizationofdata
GeneralsuggestionsforchangesoradditionstoexistingEApolicy.
ItwasalsomentionedbytheinterviewerintheinterviewsthattheNRTindicatedthat
thisreportwastobethefirststepinaprocessthataimedtostrengthenFirstNations
abilitiestobecomestrongerEAreviewparticipantsandthatadditionalfundingmightbe
availableinthefuture.Wethenaskedforsuggestionsonwherefuturefundingshould
flow.
2.2
Case Studies
InformationforthecasestudieswascollectedthroughinterviewswithparticipatingFirst
NationsandnonFirstNationEApractitionersandthroughthespecificcasestudy
informationontheBCEAOorotherwebsites.
Casestudiesinthisreportwereselectedbasedonthefollowingcriteria:
ThecasescoveredavarietyofexamplesofEAprocesses;
ThecasesinvolvedFirstNationsand/orproponentsthatwerewillingtodivulge
theirexperiencesandlessonslearnedfromtheproject;
AtleastonecasestudythatdemonstratedahighstandardofinvolvementofFirst
NationstothesatisfactionofboththeFirstNation(s)andtheProponent;
AtleastonecasestudythatdemonstratedabreakdownoftheEAprocessthat
ledtofrustrationofboththeFirstNationsandtheProponent;and
AtleastonecasestudythatwasinstrumentalinshapingtheCanadianorBCEA
process.
Page4
2.3
Other Research
Inadditiontotheinterviewsthatprovidedtheinformationbackboneforthisreport,we
researchedtheinternetforCanadianandinternationalEAbestpracticesuggestionsand
encouragedallintervieweestosuggestadditionalwritteninformationsources.Examples
ofthesewritteninformationsourceswereEAapplicationdocumentsaccessibleontheBC
EAOortheCEAAwebsites,internationalcasestudydescriptionsandpeerreviewed
publications.
Page5
3.
EXISTING EA PROCESSES
Inthefollowingsectionswesummarizethecurrentenvironmentalassessmentprocesses
inBritishColumbia.
3.1
BC Environmental Assessment Process
Figure1showsasimplifiedflowchartoftheBCEAprocessbasedontheBCEAAct.
DetailedinformationontheBCEAActandBCEAprocessispublicallyavailableonthe
BCEAOwebsiteinthefollowingdocuments:
TheBritishColumbiaEnvironmentalAssessmentAct 5
GuidetotheBritishColumbiaEnvironmentalAssessmentProcess 6
SupplementaryGuidetoFirstNations 7
SupplementaryGuidetoProponents 8
SupplementaryGuidetothePublic 9
ForanoverviewoftheEAprocessandEAtoolsforFirstNationsalsoseethe
FirstNationsEnvironmentalAssessmentToolkitpublishedbytheFirstNations
EnvironmentalAssessmentTechnicalWorkingGroup 10
Ingeneral,theBCEAprocessisinitiatedbyaProponentapproachingtheBCEAOwitha
requestforinformationtoidentifywhetheraplannedProjectneedstobereviewed
undertheBCEAAct.UsuallythisinformalapproachisfollowedbyawrittenProject
descriptionbytheProponentsubmittedtotheBCEAO.Atthistime,theBCEAOsuggests
thattheProponentapproachFirstNationsthatmaybeaffectedandinitiatediscussion
abouttheProjectanditsEA.ProjectsthattriggertheprovincialEAprocessarelistedin
theReviewableProjectsRegulation 11 .IfaprovincialEAisnecessaryaSection10Orderis
issuedtotheProponent,followedbyaSection11OrderthatoutlinestheEAreview
processforaparticularProjectindetail.TheProjectspecificEAprocessdescribedinthe
Section11Orderhasastandardizedformatbutcanbeveryprojectspecificandflexible.
Atthispoint,theBCEAOandtheProponentoftenenterintoconsultationagreements
withaffectedFirstNations.ATermsofReferenceforanEACertificateApplicationisthen
developedbytheProponentandsubmittedtotheBCEAOforreviewandapproval.First
NationsandthegeneralpublicaregiventheopportunitytocommentontheTermsof
Reference.Baselinefieldstudiesarethencarriedouttodeterminethestatusquoofthe
ecologicalandsocialcomponentsthatmaybeaffectedbytheProject.OncetheTermsof
http://www.eao.gov.bc.ca/guide/2003/final-guide1-2003.pdf
7
http://www.eao.gov.bc.ca/guide/2003/sections/sup-guide-fn.pdf
8
http://www.eao.gov.bc.ca/guide/2003/sections/sup-guide-prop.pdf
9
http://www.eao.gov.bc.ca/guide/2003/sections/sup-guide-pub.pdf
10
http://www.fneatwg.org/pdf/First_Nations_EA_Toolkit.pdf
11
http://www.qp.gov.bc.ca/statreg/reg/E/EnvAssess/370_2002.htm
6
Page6
Referencehavebeenapproved,anEACertificateApplicationiswrittenbytheProponent
andsubmittedtotheBCEAO.Withina30dayreviewperiod,theBCEAOdetermines
whethertheEACertificateApplicationiscompliantwiththeTermsofReferenceand,if
so,itwillbeacceptedfordetailedreviewovera180dayreviewperiod.Itiswithinthis
periodthatFirstNationsandthePubliccanprovidedetailedcommentontheEA
CertificateApplication.Attheendofthisperiod,theBCEAOpreparesanEnvironmental
AssessmentReportthatsummarizestheresultsoftheenvironmentalassessmentand
sendsthis,withrecommendations,totherelevantMinistersfordecisionmaking.The
Ministersthenhave45daystograntordenyanEACertificatetotheProponent.
Figure1.SimplifiedflowchartoftheBCEAprocess(Source:BCEAO,
Environmental
AssessmentOffice:FairnessandServiceCode 12 ).
12
http://www.eao.gov.bc.ca/pub/pdf/EAO_FairnessAndServiceCodeBooklet.pdf
Page7
3.2
Canadian Environmental Assessment Process
Figure2showsaflowchartofthedecisionmakingprocesstodeterminewhetherthe
CanadianEAActistriggeredandthemainstepsofthefederalEAprocess.Themain
stepsoftheprovincialandfederalEAprocessaresimilarandsincemostProjectsthatare
subjecttotheBCEAprocessarealsosubjecttothefederalEAprocess,theBCEAO
commonlytakestheleadinaharmonizedEAprocess(seeSection3.3).
Figure2.SimplifiedflowchartoftheCEAAprocess(Source:CEAAWebsite:
http://www.ceaa.gc.ca/010/basics_e.htm#1).
Page8
CEAAreviewistriggeredwhentheProponentisafederalagency,whentheproposed
Projectrequiresfederalfunding,whentheProjectislocatedonfederalland,orwhenthe
Projectrequiresfederalauthorizations.ExamplesofProjectsthattriggerthefederalEA
processareProjectsinNationalParks,nuclearProjects,ProjectsonFirstNations
reserves,andProjectsthataffectfishhabitat.Threeregulationsdefinewhetherornot
CEAActreviewistriggered:
theLawListRegulation 13
theInclusionListRegulation 14
theExclusionListRegulation 15
3.3
BC/Canada Harmonization Agreement
IfboththefederalandtheprovincialEAprocessesaretriggeredtheEAwillbecarriedout
asdescribedinthe2004CanadaBritishColumbiaAgreementonEnvironmental
AssessmentCooperation 16 .Environmentalassessmentsconductedunderthisagreement
arereferredtoasharmonizedEAs.Typically,largerprojectsinBCtriggeranassessment
undertheBCEAActandtheCEAActbuttheBCEAOwillnormallytaketheleadintheEA
process.CEAAcoordinatesfederalinputintoharmonizedEAs,andfederaldepartments
thatareofteninvolvedincludetheDepartmentofFisheriesandOceans,theDepartment
ofEnvironment,theDepartmentofHealth,theDepartmentofTransport,andthe
DepartmentofNaturalResources.Asaresultoftheharmonizedprocess,onlyoneTerms
ofReferenceandoneEAApplicationorreportforaProjectEAisproduced.
Moredetailedinformationonthefederal,provincialandharmonizedEAprocessesis
providedonthewebsitesoftheBCEAO 17 andtheCEAA 18 andintheFirstNationsEA
Toolkit 19 developedbytheFirstNationsEnvironmentalAssessmentWorkingGroup
(FNEATWG).
3.4
First Nations as a Proponent
FirstNationsareexpresslyrecognizedaspotentialProponentsofreviewableProjectsin
theBCEAActdefinitionofproponentandbynecessaryimplicationasaperson,body
orgovernmentthatproposesaprojectintheCEAAct.WhenaFirstNationactsasa
ProjectProponent,eitherindependentlyorinsomeformorbusinessarrangementwith
anotherparty,theFirstNationwillberesponsibleinthesamewayasanyother
13
http://www.ceaa.gc.ca/013/lawlist08_e.pdf
http://laws.justice.gc.ca/en/c-15.2/sor-94-637/index.html
15
http://laws.justice.gc.ca/en/c-15.2/sor-2007-108/index.html
16
http://www.eao.gov.bc.ca/pub/can-bc_agreement/can-bc-agree_mar1104.pdf
17
http://www.eao.gov.bc.ca/ea_process.html
18
http://www.ceaa.gc.ca/012/index_e.htm
19
14
Page9
ProponentforpreparingthenecessaryEACertificateApplication,studyreportsandother
documentation,andforconductingconsultationswiththepublicandotherFirstNations.
Page10
4.
RESULTS OF INTERVIEWS AND CASE STUDIES
Theresultsoftheinterviewsandcasestudiesconductedtogatherinformationforthe
developmentofBestPracticesarebrieflysummarizedinthefollowingsections.
4.1
Summary of Interview Sentiments
AdetailedsummaryofinterviewobservationsandsuggestionsisprovidedinAppendixA
ofthisreport.ItisclearfromtheinterviewsthatmanyFirstNationsarefrustratedin
theircurrentroleinEAreviewofproposedProjectsthatoccurontheirterritoriesand
thatsodirectlyaffecttheirrightsandinterests.Thesefrustrationsinclude,butare
certainlynotlimitedto:
unsatisfactoryaspectsoftheenvironmentalassessmentprocess,e.g.thewayin
whichTermsofReferencearedevelopedandused;
legislatedtimelinesforvariousstepsintheenvironmentalassessmentprocess
thatarentconsistentwithFirstNationdecisionmakingprocesses;
aninabilityoftheenvironmentalassessmentprocess,oranunwillingnessofpublic
governmentsorProponents,tomeaningfullyconsidermanyvaluesofimportance
toFirstNations;
lackofclarityandconsistencyonhowthesignificanceofProjecteffectsis
determined;
anunsatisfactorycumulativeeffectsprocess,thatdoesnotproperlytakeinto
accountimpactsofalltypesofdevelopmentthathaveoccurredinthepast;
anunsatisfactoryroleforFirstNationsindecisionmaking;
unsatisfactoryfundingmechanismsandinsufficientlevelsoffundingfor
meaningfulparticipationinenvironmentalassessmentreviewprocesses;and
someProjectproponentswhoareunenlightenedaboutFirstNationrightsand
interests,orwhomerelyseeFirstNationparticipationasanotherobstacleto
overcomeinthepursuitoftheirProject.
ManyofthesuggestionsmadeaboutBestPracticesbyinterviewrespondentshavebeen
capturedintheBestPracticesproposedinthisreport.However,nooneBestPracticecan
beattributedtoanyspecificrespondent,andtheauthorsareultimatelyresponsiblefor
theBestPracticesasproposedherein.
4.2
Summary of Lessons Learned from Case Studies
CasestudiesforthreeenvironmentalassessmentsarepresentedinAppendixB.Lessons
learnedfromtheseEAreviewsaresummarizedbrieflyinthissection.
Page11
PolarisMinerals:OrcaSandandGravelProject
TheOrcaSandandGravelProjectislocatedontheterritoryoftheNamgisFirstNation.
ThedetailsoftheOrcaSandandGravelCaseStudycanbefoundinAppendixB.
Importantinformationlearnedfromthiscasestudyincludedthefollowingpoints:
AwellpreparedFirstNationwillbeabletonegotiatefromastrongandinformed
perspective.
RelationshipbuildingbetweentherepresentativesofFirstNationsand
ProponentsbeforetheonsetoftheofficialEAprocesswillbuildtrust.
Legallybindingexplorationandaccessagreementsandtherecognitionoftime
limitedvetorightswillspeeduptheEAprocess.
FirstNationsshouldbeinvolvedintheEAscopingandTermsofReferencedrafting
processestomaketheEAprocessculturallysensitive.
TheapproachtoEAshouldbeflexibleandlocalneedsmightrequirethat
regulatorystandardsbeexceeded.
TheEAprocessneedstoemphasizeproceduralfairnessandrespectforFirst
Nations.
TheopportunitiestocreateeconomicdevelopmentfromaProjectforaFirst
Nationmustbecarefullyweighedagainstthelongtermenvironmentalimpactsof
theProject.
NorthgateMineralsCorporation:KemessNorthProject
TheproposedKemessProjectwaslocatedwithintheuseareasofthemembersofthe
TsayKehNay(KwadachaFirstNation;TaklaLakeFirstNation;andTsayKehDene).The
detailsoftheKemessNorthCaseStudycanbefoundinAppendixB.Keypiecesof
informationgainedfromthiscasestudyincludedthefollowingpoints:
Theculturallyinfluencedperceptionofriskmustbetakenseriously.
PositiveeconomiceffectsmustalwaysbeweighedagainstadverseeffectsonFirst
Nations.
Naturalandfishbearingwaterbodiesshouldnotbetailingsponds.
ContinuousandindepthcommunicationbetweenProponentsandFirstNationsis
necessary.
OralagreementsareperceivedtobelegallybindinginFirstNationstraditionsand
needtobeseenassuch.
PanelreviewswithFirstNationsparticipationcanmakeEAsculturallysensitive.
Detailedandlongterm(postclosure)Projectmonitoringandremediation
planningincollaborationwithFirstNationsisessentialfortheissuanceofanEA
Certificate.
Page12
ImperialOil,ShellCanada,ConocoPhilipsandExxonMobil:McKenzieValleyPipeline
Project
TheproposedMcKenzieValleygaspipelinewillaffecttherightsandinterestsofseveral
FirstNationsorMtisgroups:DehCho,Sahtu,Gwichin,Inuvialuit,Akaitcho,Dogrib,Salt
River,DeneThaFirstNations,andtheNorthSlaveMtisandSouthSlaveMtisAlliances.
ThedetailsoftheMcKenzieValleyPipelineCaseStudycanbefoundinAppendixB.Key
pointslearnedfromthisstudyinrelationtoEABestPracticesinclude:
Largetrustfundsthatprovideresourcestomitigatepotentialbiophysicaland
socioeconomicimpactswillbuildtrustinanEAprocess.
FirstNationsaspartialownersoflargeProjectsshouldtrytocreatealongterm
economiclegacyfortheirpeopleaspartoftheEAprocess.
TheactiveparticipationofmanyFirstNationsinalargescaleEAprocesscan
changepolicyandmaketheEAprocessmoreFirstNationssensitive.
Page13
5.
PROPOSED BEST PRACTICES FOR FIRST NATION

PARTICIPATION IN EA PROCESSES
InthefollowingsectionswepresentrecommendedBestPracticesforparticipationof
FirstNationsinEAreviewprocesseswithabriefexplanationoftherationalebehindtheir
recommendation.WeemphasizethattheseBestPracticesarerecommendationsofthe
authors,aftercarefullyconsideringinformationgatheredininterviews,fromcasestudies,
andfromotherresearchconductedduringthecourseofthestudy.Wehavealsoutilized
ourlengthyexperienceinpracticingEA,inassistingFirstNationstoparticipateinEA
processes,andinassistingFirstNationsintreatynegotiationsandotherprocessestohelp
shapetheBestPracticesproposedherein.Althoughtheinterviewsprovidedhighly
valuableinsightaboutthelimitationsofexistingpracticesinrespectofFirstNation
involvementinEA,andprovidedmanysuggestionsforBestPractices,itwouldbe
inappropriatetoattributeanysingleBestPracticerecommendedhereintoanyone
interviewee.
InthisSectionwerecommendanddescribethoseBestPracticesthataremostdirectly
relatedtotheenvironmentalassessmentprocess.However,manyotherissueswere
identifiedbyinterviewrespondentsorthroughcasestudiesorotherresearchthatwhile
notenvironmentalassessmentissuesperse,arenonethelessrelevanttoadiscussion
aboutimprovingFirstNationparticipationintheenvironmentalassessmentreview
process.TheserelatedissuesarebrieflydiscussedinSection6ofthisreport.
WeemphasizethattheBestPracticesrecommendedhereinarenotonhowtoconduct
anenvironmentalassessmentbuthowFirstNationscanmeaningfullyengagein
environmentalassessmentreviewanddecisionmakingprocesses.
AsummaryofproposedBestPracticesinrelationtoFirstNationparticipationinthe
environmentalassessmentprocessispresentedinTable1,intheExecutiveSummary.A
totalof75recommendationsforBestPracticesaremadeandcategorizedunder8general
topics.ForeachoftheseBestPractices,weprovideinthefollowingsectionsabrief
explanationoftherationaleusedtoproposethatBestPractice.Wealsoprovidean
indicationofthePartyorPartieswiththeprimaryresponsibilityforimplementingthe
BestPractice.
5.1
Aboriginal and Treaty Rights, and Consultation
InBritishColumbia,proposedProjectsthataresubjecttoenvironmentalassessment
oftenoccurintheterritoriesofFirstNationswhereaboriginalrightsandtitleissueshave
notbeenresolved.Whiletheenvironmentalassessmentisnottheforumtoresolve
theseissues,thenatureofadequateconsultationandaccommodationduring
environmentalassessment,asisrequiredtopreservethehonouroftheCrownorto
satisfyitsfiduciaryduty,remainsunclear.Thislackofclarityarisesbecausethereare
Page14
oftendifferingopinionsbetweentheCrownandasubjectFirstNationaboutthestrength
oftheFirstNationsrightsandtitleclaim(seeAppendixCforasummaryoftheCommon
LawinrespectofFirstNationparticipationinenvironmentalassessment).Oftenthese
differingopinionsresultindissatisfactiononthepartofFirstNationsintheirroleinthe
finaldecisionmakingaboutwhetherornotaproposedprojectshouldbegrantedan
EnvironmentalAssessmentCertificateorotherwisebeallowedtoproceed.
WepresentthefollowingBestPracticesinrespectoftheseissues.
BP#1:CanadaandBritishColumbiamustensurethattheirenvironmentalassessment
legislation,policies,andguidelinesreflecttheconstantlyevolvinglawofthelandwith
respecttoAboriginalandTreatyrights.
Thereisalonglagtimebetweentheissuanceofimportantcourtdecisionsabout
aboriginalrightsandtitleandtheapplicationofthatdecisionattheoperationallevelsof
publicgovernments.Whileitisunderstandablethatitwilltakesometimetoreflect
changesincaselawingovernmentlegislation,itisfrustratingforFirstNationswhenthe
lawofthelandisnotreflectedingovernmentsoperationalapproaches,particularlyif
delaysinreflectingthesechangesresultfromlengthyappealstohighercourts.We
believethatitispossibleforpublicgovernmentstochangetheirpoliciesandoperational
guidelinesfollowingcourtdecisionstobeconsistentwiththecurrentlawoftheland
muchmorequicklythaniscurrentlythecase.
Thepublicgovernments(BritishColumbiaandCanada,inthiscase)havethe
responsibilityforimplementingthisBestPractice.ItisaBestPracticethatcanbe
implementednow.
BP#2:TheBCEnvironmentalAssessmentActshouldbeamendedtospecifyanddefine
theinclusionofFirstNationsintheenvironmentalassessmentprocess,consistentwith
recentcaselawinrespectofaboriginalrightsandtitle.
Asclarifiedinseveralrecentcourtdecisions,FirstNationshaveaboriginalrights,including
perhapstitle,overmostofBritishColumbia.Eventhoughthenatureandextentofthese
rightsmaynotyethavebeendetermined,itisclearthatFirstNationsneedtobe
consultedandplayaroleinlandorresourcebasedplanningprocessessuchasthe
environmentalassessmentprocess.BCGovernmentpolicy,accordingtotheNew
Relationship,alsorecognizesthatFirstNationsmustplayameaningfulroleindecision
makingaboutlandsandresources.Asaresultwebelievethatitwouldbeusefulforthe
roleofFirstNationsintheEAprocesstobedefinedwithintheBCEnvironmental
AssessmentAct.
Page15
TheBCGovernmenthastheresponsibilityforimplementingthisBestPractice.ItisaBest
Practicethatwilltaketimetoimplement.
BP#3:Asafirststepinengaginginanenvironmentalassessmentreviewprocess,aFirst
NationshouldcommunicateinwritingtoCanada,BritishColumbia,andtheProponent
aclearassertionofitsrightsandinterests,includingtitlewhereappropriate,inthe
Projectarea.
FirstNationsmustdotheirpartincommunicatingtheirinterestsandconcernstotheBC
EAO,CEAA,andtheProjectProponent.AnimportantfirststepintheEAprocessisfora
FirstNationtomakeaclearwrittendeclarationofitsrightsandinterests,includingtitle
whereappropriate,intheProjectareaorintheareaaffectedbytheProject.Apartfrom
providingapapertrailshoulditberequired,thisBestPracticealsoputstheother
PartiestotheEAonnoticethatAboriginalrightswillbeimportantissuesduringthe
environmentalassessmentprocess.
FirstNationsareresponsibleforimplementingthisBestPractice.ThisisaBestPractice
thatcanbeimplementednow.
BP#4:AProponentshouldbewellinformedaboutthelawofthelandregarding
aboriginalrightsandtitlebeforeapproachingaFirstNationaboutapotentialProjectin
thatFirstNationsterritory.
Inafirstcontactsituation,itisfrustratingforaFirstNationtobeconfrontedbya
ProponentwithlittleornounderstandingabouttheFirstNationsofBritishColumbianor
oftheConstitutional,statutory,andcommonlawofthelandinrespectofFirstNation
rightsandinterests.ProponentsofproposedProjectsintheterritoriesofFirstNation(s)
mustexpendeffortineducatingthemselvesabouttheseissuesbeforeapproachingaFirst
NationabouttheirproposedProject.Notonlywillthishelptoestablishagoodworking
relationship,butitwillhelptofacilitatetheEAprocess.
ThisBestPracticeisaresponsibilityoftheProponent.ThisisaBestPracticethatcanbe
implementednow.
BP#5:Section27oftheBCEnvironmentalAssessmentAct,regardingenvironmental
assessmentagreementswithotherjurisdictions,shouldbeamendedtoincludeFirst
Nationsasjurisdictions.
FirstNationsareoftenfrustratedbythecookiecutterapproachtotheenvironmental
assessmentprocessinBCthatdoesnotproperlytakeintoaccountthespecific
Page16
requirementsofindividualFirstNations.TheproposedBestPracticewouldprovidea
legislativebasisandmakeiteasierfortheBCGovernmenttocustomizeanEAprocess
accordingtheneedsandcircumstancesofaparticularFirstNation.
ThisBestPracticeisaresponsibilityoftheBCGovernment.ItisaBestPracticethatwill
taketimetoimplement.
BP#6:AffectedFirstNationsshouldbeconsideredtoincludeboththoseFirstNations
inwhoseterritoriesaproposedProjectislocatedandthoseFirstNationsthatare
indirectlyaffectedbytheProject.
FirstNationsmaybeaffectedbyaProjectevenifitisnotontheirterritory.Anobvious
examplewouldbewhereaproposedProjectaffectsthequalityofsurfacewaterwhich
thenflowsdownstreamintotheterritoryofaFirstNation.Projectscanoftenalsoaffect
thesocioeconomicenvironmentofFirstNationsotherthantheFirstNationinwhose
territorytheProjectislocated.
ItistheresponsibilityofallthePartiestoensurethatallpotentiallyaffectedFirst
NationshavetheopportunitytoparticipatemeaningfullyinaProjectEA.Thereisno
reasonwhythisBestPracticecannotbeimplementednow.
BP#7:TofulfillitsfiduciaryobligationstoFirstNations,Canadashouldtakeamore
activeroleinenvironmentalassessmentsinBritishColumbiagiventhatmostprojectsin
BCwillbelocatedwithintheterritoriesofoneormoreFirstNations.
Asaconsequenceofthe2004harmonizationagreementbetweenCanadaandBritish
Columbia 20 ,theCEAAtakesabackseatinmostEAprocessesinBC.Commonly,onlyafew
federalministriesprovidefeedbackonaverynarrowscopeofissues.Examplesareinput
aboutfishstocksand/orhabitatbytheDepartmentofFisheriesandOceansorinputon
oceantransportationrequirementsbyTransportCanada.Beyondthesetypesofstatutory
obligations,webelievethatCanadahasafiduciaryobligationtoprotecttherightsand
interestsofFirstNationsand,untilFirstNationrightsandinterestsarereconciledthrough
treatiesorotherprocesses,shouldmaintainastrongpresenceinEAsinBritishColumbia.
CanadaisresponsibleforthisBestPractice.ThisBestPracticecouldbeimplemented
now.
20
http://www.ceaa.gc.ca/010/0001/0003/0001/0002/2004agreement_e.htm
Page17
BP#8:EachFirstNationshoulddesignitsownconsultationguidetoinformandinstruct
otherpartiestotheenvironmentalassessmentreviewprocess.
WhiletheBCandfederalgovernmentshavetheirownpoliciesandguidelinesregarding
ConsultationwithFirstNations,itisoftennotthecasethatindividualFirstNationshave
developedtheirownConsultationguidelines.ItwouldbehelpfulforallPartiesif,atthe
initiationofanEAforaProjectwithinaFirstNationsterritory,theFirstNationwereable
tohandovertotheProponent(andpublicgovernments)itsownspecificrequirements
formeaningfulConsultation.
ThisBestPracticeistheresponsibilityofFirstNations.ThisBestPracticecouldbe
implementednow.
BP#9:Canada,BC,andproponentsmustacknowledgethegovernmentgovernment
relationshipwithFirstNationsandmustnotviewFirstNationsasstakeholders.
BeingtaggedasastakeholderalongwiththeGuideOutfittersAssociationofBritish
Columbia,environmentalNGOs,theAssociationforMineralExplorationBritishColumbia,
etc.isaparticularfrustrationforFirstNations.FirstNationsaregovernments,withrights
andinterestsinrespectoflandandresourceuse,andtheymustbetreatedassuchinEA
processesthroughappropriategovernmentgovernmentprocesses.
Canada,BritishColumbia,andProponentsareallresponsibleforacknowledgingthatFirst
Nationsarenotstakeholdersbutaregovernmentswithrightsandinterestsabouthow
thelandandresourcesontheirterritorieswillbeused.ThisBestPracticecanbe
implementednow.
BP#10:Attheonsetofanenvironmentalassessmentprocess,affectedFirstNations
shouldbeconsultedbyprovincialandfederalgovernmentsinrespectofpotentialissues
relatedtoaboriginalinterests,rightsandtitle,andthefiduciaryobligationsof
governmentstoFirstNations.
Itwouldbeuseful,earlyintheEAprocess,fortheprovincialandfederalgovernmentsto
consultwithaffectedFirstNationsabouthowtheFirstNationswishtobeconsulted(see
alsoBP#8)andaboutpotentialissuesrelatedtoaboriginalrights,interestsandtitle.By
identifyingissuespertainingtoaboriginalrightsandinterestsearlyintheprocess,andby
workingoutacceptableConsultationprocesses,abetterworkingrelationshipwillensue
andpotentialproblemsdownthelineintheEAmightbeavoided.
BritishColumbiaandCanadahavetheprimaryresponsibilitieswithrespecttothisBest
Practice.ThisBestPracticecanbeimplementednow.
Page18
BP#11:ConsultationwithFirstNationsistheresponsibilityofCanadaandBCandshould
notbedelegatedtoProjectProponents.
ItisoftenafrustrationtoFirstNationsthattheresponsibilityforConsultationis
delegatedtoProponentswithoutconcurrenceofaffectedFirstNations.Thiscanbecome
aparticularproblemwhentheProponentisnotfullyeducatedaboutFirstNationsand
theirrightsandinterestsorwhentheProponentviewsFirstNationsasjustanother
impedimenttogettingapprovalfortheirProject.
TheimplementationofthisBestPracticeistheresponsibilityofCanada,BritishColumbia,
andFirstNations.ThisisaBestPracticethatcanbeimplementedrightaway.
5.2
Restructuring BC Environmental Assessment Oversight
ThereisastrongsentimentwithinFirstNations(andoutsideofFirstNations,aswell),
thatforEAtohavevalueasadecisionmakingtoolitmustbeundertakenoutsideofthe
publicgovernmentpoliticalframework,whereitcurrentlysitsinBC.TheBCEAOis
housedwithintheMinistryofEnvironment;italsoprovidesasummaryoftheProject
effects(theEnvironmentalAssessmentReport)totheMinisterofEnvironment(andthe
MinisterresponsibleforthattypeofProject)foradecisionregardingtheissuanceofan
EACertificate.AnEACertificateisrequiredbeforeaProjectcanproceed.
Thereisaperceptionthatthereispotentialinthisreportinganddecisionmaking
structuretobiasadecisionregardingtheacceptabilityofaProjectsenvironmental
effects.TheMinisterofEnvironmentoverseesandprovidesdirectiontotheBCEAO;he
orshealsoisoneofthetwoultimatedecisionmakers.ThereisconcernthataMinisterof
theEnvironment,throughhis/herroleindirectingtheBCEAOcould,forpoliticalreasons,
influencethecontentortoneofanEAReportpreparedbytheBCEAO.
ThereisalsoastrongsentimentthatFirstNations,whohaveconstitutionallyprotected
aboriginalrightsinrespectoflandandresources,shouldplayaroleintheoversightof
theBCEAOthatplayssuchapivotalroleinevaluatingtheeffectsofaProjectonthe
environmental,social,economic,andculturalenvironmentsofFirstNations.
BP#12:TheBCEnvironmentalAssessmentOfficeshouldberestructuredasanagency,
politicallyandfunctionallyindependentofBCGovernmentministries.
TheBCEAOishousedwithintheMinistryofEnvironment,andthecurrentBCEAAct
allowsprojectdirectorstoseekministerialinputthroughouttheEAprocess,leavingthe
perceptionthatministerialdirectioncaninfluencetheprocess.Thisdoesnotgive
Page19
confidencetoFirstNationswhodesireanunbiasedevaluationoftheeffectsofaProject
inaprocessthatisnotgoingtobeinfluencedbypolitics.
TheBCGovernmenthastheprimaryresponsibilityforimplementingthisBestPractice.
ThisBestPracticewilltaketimetoimplement.
BP#13:TheBCEnvironmentalAssessmentOfficeshouldcontinueitsinitiativeto
establishregionalofficeswhichwouldalloweasieraccessbyandcommunicationwith
FirstNations.
ItisourunderstandingthattheBCEAOisintheprocessofestablishingregionalreferral
officestofacilitateinformationexchangebetweenFirstNations,provincialandfederalEA
offices,andproponents.Theseofficeswillbeknowledgeableaboutlocalconditionsand
beinconstantcontactwithFirstNationsEApractitioners,tryingtobuildeffectiveworking
relationships.Webelievethatthisinitiativewillbehelpful.
TheBCGovernmentisalreadyimplementingthisBestPractice.
BP#14:FirstNationsshouldberepresentedintheoversightofanewlydesignedand
independentBCEnvironmentalAssessmentOffice.
Becausetheyhaveconstitutionallyprotectedrightsinrespectofthelandandresources
ofBC,FirstNationsrequireagreaterroleintheoversightoftheEAprocesstoensurethat
FirstNationconcernsareadequatelyevaluated.
TheBCGovernmenthastheprimaryresponsibilityforimplementingthisBestPractice.It
isaBestPracticethatwilltaketimetoimplement.
BP#15:Acommittee,includingFirstNationrepresentation,shouldbeformedto
examinewaystomaketheenvironmentalassessmentprocessmoreefficientand
effective.
TheBCEnvironmentalAssessmentProcesshasbecomeaverytimeconsumingprocess
thatiscostlytopublicgovernments,FirstNations,andtheProponents.Webelievethat
theprocesscouldbemademoreefficient,whileatthesametimeincreasingits
effectiveness.ItwouldbeusefulifacommitteeofEAexperts,includingFirstNation
representatives,bestrucktoexaminetheexistingEAprocessandmake
recommendationstothefederalandprovincialgovernmentstomaketheBCEAprocess
moreefficientandeffective.
Page20
ItisprimarilytheresponsibilityoftheBCGovernmenttoinitiatetheimplementationof
thisBestPractice.Itwilltaketimetoimplementit.
BP#16:ThenewlyformedEnvironmentalAssessmentCommitteeshoulddecidewhether
andhowtheforestryandtheoilandgasindustriesshouldbecoveredbythe
environmentalassessmentprocesstobettercapture,mediateandregulatetheir
cumulativeeffectsonFirstNationsandtheenvironment.
Therecanbelittledoubtthatforestryandoilandgasactivitieshaveresultedinmassive
changestothelandscapethathave,inadditiontotheirenvironmentaleffects,hadan
adverseeffectontheuseofthelandbyFirstNationspeople.Yetthesedevelopment
typesarenotsubjecttoEAinBC,butareregulatedsolelythroughpermittingprocesses.
Thishasallowedpiecemealdevelopmenttotakeplacewithoutadequateevaluationof
overallcumulativeeffectsofthesedevelopmenttypes.Neitheraretheadverseeffectsof
thesedevelopmenttypesproperlyevaluatedincumulativeeffectsassessmentsofother
developmenttypes.Itmaybetimetocapturesomeaspectsofthesedevelopmenttypes
underEA,andwerecommendthatthisbeexaminedbythecommitteerecommendedin
BP#15.
BCandCanadamustplayleadrolesinimplementingthisBestPractice.ThisBestPractice
willtaketimetoimplement.
BP#17:AstandingFirstNationsEnvironmentalAssessmentAdvisoryCommitteeshould
becreatedtoprovideongoingadvicetotheBCEnvironmentalAssessmentOfficeon
FirstNationissueswithrespecttoenvironmentalassessment.
InadditiontothemultipartyEAcommitteerecommendedinBP#15,astandingFirst
NationsAdvisoryCommitteeshouldbecreatedtoworkwiththeBCEAOtoprovide
ongoingadviceandrecommendationsregardingFirstNationspecificissuesinrespectof
theEAprocessandcontentiousProjectEAs.ThisCommitteewouldbeseparatefromthe
currentBCEAOAdvisoryCommitteewhichhasrepresentativesfromanumberof
stakeholders,aswellastheFirstNationEnvironmentalAssessmentTechnicalWorking
Group(FNEATWG).ThiswouldprovideFirstNationoversightinputtotheBCEAOthat
wouldbetterreflectagovernmentgovernmentrelationship.
TheBCGovernmentandFirstNationshavetheprimaryresponsibilityforimplementing
thisBestPractice.Itwilltaketimetoimplementit.
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5.3
Building and Maintaining Good Working Relationships
Acomfortableworkingrelationship,inwhichahighleveloftrustamongthePartiesis
established,cangoalongwaytomakingacomplexprocessproceedinaneffectiveand
efficientmanner.ThefollowingBestPracticesarerecommendedtohelpinbuildingand
maintaininggoodworkingrelationships.
BP#18:ProponentscanassistindevelopingagoodworkingrelationshipwithFirst
NationsbymeaningfullyinvolvingFirstNationsinallphasesofaProjectsplanning,
permitting,construction,operation,anddecommissioning.
ManyProjectsthataresubjecttoEAinBCarecomplex,takingmanyyearsofplanning
andpredevelopment(e.g.,miningexploration)beforetheyentertheEAprocess.A
ProponentshouldmeaningfullyinvolveFirstNationsintheseearlyplanningandpre
developmentphases,andshouldbepreparedtomakecommitmentstomeaningfully
involvethemindevelopment,operations,andclosureactivitiesiftheproposedProject
receivesanEACertificateandappropriatepermits.
TheimplementationofthisBestPracticeislargelytheresponsibilityoftheProponent.
ThisBestPracticecanbeimplementednow.
BP#19:Allpartiesengagedinanenvironmentalassessmentreviewprocessshould
makebesteffortstoutilizethesamestaffthroughouttheprocesssothataproductive
workingrelationshipcanbedevelopedamongthevariousenvironmentalassessment
reviewentities.
Effectivepersonpersonworkingrelationshipstaketimetodevelop.Forthisreason,all
PartiestoanEAshouldstrivetousethesamestaffmembers(aslongastheyarebeing
effective)throughouttheEAprocess.
AllPartiesareresponsibleforimplementingthisBestPractice,anditcanbeimplemented
now.
BP#20:Someenvironmentalassessmentreviewmeetingsshouldbeheldinthe
communitiesofaffectedFirstNations.
Forconveniencetomostparticipants,EAreviewmeetingsarecommonlyheldinlarger
centres,farfromtheProjectsiteandfarfromtheFirstNationcommunitiesthatareoften
closesttoandpotentiallyaffectedthemostbytheProject.Tobuildeffectiveworking
relationshipswithFirstNationsitwouldbeusefultohavesomeoftheseEAreview
Page22
meetingsintheFirstNationcommunities.ItwoulddemonstraterespectfortheFirst
NationsandwouldallowcommunitymemberstobecomebetterinformedabouttheEA
process,andaboutProjectspecificissuesandpotentialmitigationmeasures.
AllPartiesmustworktowardimplementingthisBestPractice,anditcanbeimplemented
now.
5.4
First Nation Management of Its Participation in the EA Process
FormanyFirstNationseffectiveengagementinEAreviewprocessescreatesalarge
demandontheiravailablegovernanceresources,includingfinancialresourcesandthe
timeofleadershipandtheirstaff.WesuggestthefollowingBestPracticestoimprove
efficienciesintheinternalmanagementofFirstNationsparticipationinthe
environmentalassessmentreviewprocess.
BP#21:EachFirstNationshoulddevelopitsownstrategicvisioninrespectof
developmentinitsterritoryandshouldusethisvisiontoguideitsparticipationin
ItisoftendifficultforaFirstNationtobeginanevaluationoftheacceptabilityofa
particularProjectbecauseithasnoguidancedocumentsthatcanprovideatleastgeneral
directiontoleadership.Onetypeofdocumentthatcanprovidegeneraldirectionisa
strategicvisionthatwouldlayouttheFirstNationsphilosophyaboutdevelopmentofthe
landandresourcesofitsterritory.Forinstance,oneFirstNationmightwelcomethe
economicadvantagesthatdevelopmentmightbring,whereasanotherFirstNationmight
putmoreemphasisonprotectingtraditionallandusevalues.Wewouldrecommendthat
eachFirstNationdevelopsuchastrategicvisiontoprovideaphilosophicalunderpinning
toguidereviewsofproposedProjectsinitsterritory.
FirstNationsareresponsibleforimplementingthisBestPractice,anditcanbe
implementednow.
BP#22:EachFirstNationshouldcompleteitsownlanduseplanningonitsterritoryto
givedirectiontoenvironmentalassessmentandotherlandbasedprocesses.
Oneofthemostusefultypesofdocumentforprovidinggeneralguidancetoleadership
aboutaproposedProjectisthelandandresourceuseplan.Initssimplestform,sucha
planwouldlayoutwheredevelopmentcanoccurandwhereitcantoccurbecauseof
environmentalorculturalsensitivities.Amorecomplexplanmightdelineateparticular
areaswheredevelopmentmightbeallowed:theconditionsunderwhichdevelopment
Page23
couldoccur;developmentlimits;environmentalthresholds;standardmitigation
measures;etc.WerecommendthatFirstNations,iftheyhavenotalreadydoneso,make
landandresourceuseplanningahighpriority.
FirstNationshavetheprimaryresponsibilityforimplementingthisBestPractice,although
theBCgovernmenthasanimportantroleinfundingthisworkandinhelpingtoreconcile
theseFirstNationplanswithlanduseplansdevelopedthroughBCgovernmentprocesses
(e.g.,LandandResourceManagementPlansLRMPs).ThisBestPracticecanbe
implementednow.
BP#23:EachFirstNationshouldcompleteitsownterritorybasedsocial,economic,and
culturalbaselinestudiestoinformandgivedirectiontoenvironmentalassessmentand
otherprocesses.
Inthepast,EAsinBritishColumbiahaveincludedsocioeconomicassessmentsthat
havebeen,forthemostpart,inadequatefromaFirstNationspointofview.Typically,
regionalstatisticsonemployment,theworkforce,health,socialissues,etc.arerolledup
toprovideabaselinefortheseassessments.Becausetheregionsoftenincludeatleast
onetownorcitywherenonaboriginalsdominatethepopulation,theparticularissues
facedbyasmallFirstNationareoftenlostintherollup.ItwouldbevaluableforFirst
Nationstoconducttheirownterritoryspecificsocial,economic,andculturalbaseline
studiesforuseinEAprocesses.Thesewouldneedtobeupdatedperiodically,sayevery5
years.
FirstNationshavetheprimaryresponsibilityforimplementingthisBestPractice,although
CanadaandBCmayplayimportantrolesinfundingthiswork.Thesebaselinestudies
couldbedonenow.
BP#24:EachFirstNationshoulddevelopitsownguidelines,basedonitsspecificneeds,
toinformprojectproponentsabouthowitwishestobeapproachedandengagedinthe
environmentalassessmentprocess.ThisshouldbeformalizedinanEnvironmental
AssessmentParticipationAgreementbetweentheFirstNationandtheProponent(see
alsoBP#70).
ProponentsareoftenunsureaboutwhatisexpectedofthemindealingwithFirst
Nations.ItwouldbeusefulifeachFirstNationcoulddevelopitsownguidelinesonhowit
wishedtobeapproachedandengagedintheEAprocess,andprovidetheseto
ProponentswhoarewishingtodevelopaProjectontheFirstNationsterritory.These
guidelinescouldincludeaCodeofConductthatwoulddescribeproperlyrespectful
waysinwhichProponentstaffwouldconductthemselveswhenworkingontheFirst
NationterritoryorwhendealingwithFirstNationrepresentatives.Itmightsometimesbe
Page24
advisabletosignanEnvironmentalAssessmentEngagementAgreementwiththe
Proponenttoformalizethesearrangements.
FirstNationshavetheprimaryresponsibilityforimplementingthisBestPractice,andit
couldbeimplementednow.
BP#25:FirstNationsshouldbeengagedearlyintheprocessbytheProponentinearly
stagesofProjectplanning,sothattheyhaveappropriateinputintheidentificationof
valuedecosystemcomponents,thescopingofgeographicandtemporalbounds,and
theplanningofbaselinestudies.
TheearlieraFirstNationcanbeengagedinanEAforaProject,themorelikelyitisthat
FirstNationissuescanbeadequatelyaddressedintheEA,andthelesslikelyitisthat
theseissueswillbecomecontentiousinlatterstagesoftheEA.
TheProponenthastheprimaryresponsibilityforimplementingthisBestPractice,andit
canbeimplementednow.
BP#26:IfmorethanoneFirstNationisaffectedbyaProject,poolingofresourcesand
developmentandcommunicationofcommonpositionsmaybehelpfulinachievinga
strongervoiceinenvironmentalassessmentreviews.
FormostFirstNations,meaningfulparticipationinEAreviewsplaceslargedemandson
thehumanresourcesoftheFirstNationandcostsagreatdeal.Itmaysometimesbe
advantageoustocooperatewithotheraffectedFirstNationsonEAreviewstolessen
theseburdensandtoachieveastrongervoiceattheEAtable.Ofcourse,thismaynot
alwaysbepossiblebecauseofdifferentphilosophicalapproachestodevelopmentorfor
otherreasons.
TheresponsibilityforimplementingthisBestPracticelieswithFirstNations,andtheBest
Practicecouldbeimplementednow.
BP#27:IfaFirstNationchoosestoengagelegalorotherconsultingassistancein
participatinginanenvironmentalassessmentreviewprocess,thisengagementshould
beformalizedinacontractualagreementincludinganappropriateScopeofWork.
ItisalwaysagoodpracticeforFirstNationstoformalizeagreementswithcontractors,
includingconsultantsandlawyers,inacontract.
Page25
TheprimaryresponsibilityforimplementingthisBestPracticelieswiththeFirstNation,
althoughcontractorsmayrequireformalengagementagreementsaswell.TheBest
Practicecanbeimplementednow.
BP#28:EachFirstNationshoulddevelopitsownlistofcriteriaagainstwhichitcan
measuretheadequacyofenvironmentalassessmentsandtheimportanceand
acceptabilityofpredictedProjectimpacts.
Theacceptabilityofadverseprojectimpactsisnormallyevaluatedthrougha
determinationofsignificanceinEAprocesses.Theseevaluationsareoftenvery
subjectiveandtheindicatorsusedinassessingsignificancearenotalwayseasily
applicabletotheissuesidentifiedbyFirstNations.EachFirstNationshoulddevelopits
ownsystemforevaluatingtheadequacyoftheenvironmentalassessmentandthe
significanceofadverseProjecteffects.
FirstNationsareresponsibleforimplementingthisBestPractice,anditcanbe
implementednow.
BP#29:EachFirstNationshoulddevelopitsowninternalcommunicationand
communityfeedbackplanwithrespecttoenvironmentalassessmentspecifictoitsown
needs.
ItisimportantthatFirstNationcommunitymembersarefullyinformedaboutthe
importantenvironmental,social,economic,andculturalissuesrelatedtoaProject,the
measuresbeingproposedtomitigateadverseimpacts,andthenatureofanyadverse
impactsthatremainaftermitigation.CommunicatingthisinformationthroughouttheEA
canbeademandingtask,particularlyifmorethanonecommunityisinvolved.EachFirst
Nationwillhaveitsownrequirementsforcommunityconsultation,anditsownpreferred
methodsofcommunicatinginformationandgettingfeedback.Thesemightincludethe
useofcommunitymeetingsandworkshops,regularupdatemeetingswithpolitical
leadership,communityadvisorygroups,elderscouncils,projectsitevisits,newsletters,
etc.ItisrecommendedthateachFirstNationdevelopitsowncommunicationand
communityfeedbackplantogivedirectiontothoseleadingtheFirstNationEA
participation.
TheresponsibilityfortheimplementationofthisBestPracticelieswithFirstNations,and
itcanbeimplementednow.
Page26
BP#30:EachFirstNationshoulddevelopaneasilyaccessiblelibraryofdocuments
pertainingtoaparticularenvironmentalassessmentfortheuseandbenefitofitsstaff
andmembers.
OneEAcangenerateamountainofdocuments.ThesecanincludeBCEnvironmental
AssessmentOfficeOrders,termsofreference,baselinestudies,theEnvironmental
AssessmentApplication,andassortedcorrespondence.Asamatterofefficiency,itis
advisabletoorganizethesedocumentsinawayinwhichtheycanreadilybeidentified
andaccessed.Thesedocumentsshouldbeavailableforuseofanystafforcommunity
member,withsafeguardsinplacetoensuretheintegrityofthelibraryofdocuments.In
somecircumstances,acomputerbasedlibraryofdocumentsmaybethemostefficient
waytomakedocumentsavailabletoawidenumberofpeopleandtoensuretheintegrity
ofthelibrary.
FirstNationshavetheresponsibilityforimplementingthisBestPractice,anditcanbe
implementednow.
BP#31:FirstNationsstaffmemberswhohaveresponsibilityforenvironmental
assessmentshouldnotbethesamestaffmemberswhohaveresponsibilityfor
developingeconomicagreementswiththeProponent(seealsoBP#71).
Thereisalwaysapotentialconflictwhenapersonwhoisresponsibleforeconomic
developmentalsohastheresponsibilityforleadinganenvironmentalassessmentreview.
Ontheeconomicdevelopmentside,hisorherjobistocreateeconomicopportunitiesfor
thecommunity,oftenthroughProjectsthatproceedafterbeingissuedanEnvironmental
AssessmentCertificate.OntheEAside,hisorherjobistoevaluatethewholerangeof
environmental,social,cultural,andeconomiceffects,bothpositiveandnegative,and
makeanunbiasedrecommendationtoleadershiponwhetherornotaProjectshouldbe
allowedtoproceed.Thesetaskscanbeinconflict,particularlywhenthepotential
economicreturntothecommunityfromtheProjectishigh,buttheenvironmental
consequencesoftheProjectaresevere.Itisgoodpracticetoseparatethesejobs.
FirstNationshavetheresponsibilityforimplementingthisBestPractice,anditcanbe
implementednow.
5.5
The Environmental Assessment Process
Inthefollowingsections,weproposeBestPracticesinrespectoftheexisting
environmentalassessmentprocessinBCunderseveralsubheadings.
Page27
5.5.1 General Process Issues and Scoping
ItisclearfromtheinterviewsconductedaspartofthisstudythatFirstNationsfeelthat
existingEAprocessesarelimitedintheirabilitytoaddressissuesofconcerntoFirst
Nations,andoftenprovideimpedimentstoFirstNationparticipation.ThefollowingBest
Practicesaresuggestedinthisregard.
BP#32:Commissionorpanelenvironmentalassessmentreviews,ascontemplatedin
Section14oftheBCEnvironmentalAssessmentAct,shouldbemorefrequentlyusedfor
complexormorecontentiousProjects.
PanelReviewswithFirstNationsrepresentationareperceivedtobemoreinclusiveof
localFirstNationsconcernsandthustobemoreculturallyadequate.Anopendiscussion
basedprocessisalsofamiliartomanyFirstNationsinBCsinceitresemblestheFirst
Nationsdiscussionanddecisionmakingprocessincommunitymeetings,orinmeetings
ofcouncilsorhereditarychiefs.
ThisBestPracticeisprimarilytheresponsibilityoftheProvince,anditcanbe
implementednow.
BP#33:Toachieveculturalrelevancy,alternativeenvironmentalassessmentprocess
modelssuggestedbyFirstNationsshouldbeconsidered.
Section27(3)(d)oftheBCEAActallowsforanagreementonthekindofEAprocessused
andthuscangiveFirstNationstheopportunitytonegotiateaprocessthatismore
applicabletotheirspecificsituations.AflexibleEAapproach,basedontheneedsofaFirst
Nation,willlikelyleadtomoremeaningfulparticipationofFirstNationsintheEAprocess.
BChastheprimaryresponsibilityforimplementingthisBestPractice,butitwilltaketime
toimplement.
BP#34:Environmentalassessment,whetherundertheBCEnvironmentalAssessment
ActortheCanadianEnvironmentalAssessmentAct,mustincludeevaluationofProject
effectsonallaspectsoftheenvironmentincludingthebiological,chemical,physical,
social,heritage,cultural,spiritual,economic,andhealthenvironments.
In2002,the1995BCEAActwasreplacedbyanewBCEAActthatdidnotreferencea
separateroleforFirstNationsintheEAreviewprocessanddidnotstipulatethatcultural
effectsbeconsidered.ThecurrentBCEAActweakenedthelegislatedroleofFirst
NationsintheEAprocessinthisrespect.AlthoughitisthecurrentpracticeoftheBCEAO
Page28
todesignprocessesthatconsiderthesekindsofeffects,thefactthattheobligationhas
beenremovedfromthelegislationisdiscouragingtoFirstNations.
TheimplementationofthisBestPracticeistheresponsibilityofBCandtheProponent.
TheBestPracticecanbeimplementednow.
BP#35:TermsofReferenceforanEnvironmentalAssessmentApplicationshouldbe
developedinconsultationwithaffectedFirstNationsearlyintheenvironmental
assessmentprocess,aspartofascopingexerciseandinadvanceofbaselineorother
fieldstudies,andshouldbespecifictothenatureoftheproposedProjectandthelocal
environment.
ThedevelopmentoftheTermsofReferenceforanEAreportshouldbeapivotal
milestoneoftheEAprocess.TheTermsofReferenceprovidesdirectiontotheProponent
ontherequiredcontentofanEAApplicationandProponentsoftenconsidertheTermsof
ReferencetobeanallinclusivelistofwhattheyneedtoincludeintheEAApplication.
Yet,incurrentpractice,theTermsofReferenceisoftennotcompleteduntilanEA
Applicationisabouttobesubmitted,longaftermostbaselinestudieshavebeeninitiated
andcompleted.Inaddition,TermsofReferenceoftenappeartobeconstructedfroma
generictemplateand,asaresult,oftendonotadequatelyaddressthespecificissuesof
theparticularProjectanditsenvironment,includingtheFirstNationssocial,cultural,
spiritual,andeconomicenvironments.IftheTermsofReferenceistoprovideadequate
directiontoaProponent,itmustbecompletedmuchearlierintheEAprocesswithFirst
Nationinput,beforebaselinestudiesareinitiated,particularlythosebaselinestudiesthat
focusonValuedEcosystemComponents.
BCandtheProponenthavetheprimaryresponsibilityinimplementingthisBestPractice.
Itcanbeimplementednow.
BP#36:EnvironmentalAssessmentApplicationsshouldbeconcise,withamaximum
pagelimitsetattheTermsofReferencestage,shouldfocusontheimportantProject
effects,theirmitigation,residualeffects,andthesignificanceoftheresidualeffects,and
shouldbewritteninnontechnicallanguage.Backgroundstudiesshouldbeappendices
totheEnvironmentalAssessmentApplication.SeealsoBP#37.
EAApplicationsarenowoftencomposedofthousandsofpagesofdetailedandrepetitive
information,someofitnecessaryforpermittingbutnotnecessarilyforenvironmental
assessment,thattendstoobscurethemainpurposeofenvironmentalassessment.This
oftenoverburdensthosewhoneedtoreviewtheApplication,includingFirstNationsEA
reviewers.ToaddressthisunnecessaryworkloadFirstNationsoftenhavetoseekthe
adviceofconsultantswhichaddsanotherlevelofcomplexitytoanoftenalready
Page29
overwhelmingEAparticipationprocess.WebelievethatthereisaneedtomaketheEA
Applicationamoreconcisedocumentthatfocusesontheprimaryelementsof
environmentalassessment,e.g.importantpredictedProjecteffects,mitigationmeasures,
residualeffects,andthesignificanceorimportanceoftheresidualeffects.(seealsoBP
#37).
TheimplementationofthisBestPracticeistheresponsibilityofBCandtheProponent.It
BP#37:EnvironmentalAssessmentApplicationsshouldnotserveasPermit
Applications,andshouldnotincludethedetailedinformationthatisrequiredfor
permitting.
OnereasonthatEAApplicationshavebecomesuchlongandunwieldydocumentsisthat
theynowtendtoincludedetailedinformationthatisnecessaryforpermittingbutnot
necessarilyforenvironmentalassessment.Whilethisisfavouredbysome(particularly
regulatoryagencies),itplacesaburdenontheenvironmentalassessmentprocessthat
shouldrightlybeplacedonthepermittingprocess.EAApplicationsshouldnotinclude
technicaldetailsandevaluationsthatareonlynecessaryatthepermittingstage.
TheBCGovernmentandtheProponentsharetheresponsibilityofimplementingthisBest
Practice.Itcanbeimplementednow.
BP#38:ImportantFirstNationvaluesmustbeconsideredtobevaluedecosystem
components,whethertheyarebiological,chemical,physical,economic,social,cultural,
spiritual,heritage,orhealthvalues.
ManyFirstNationvaluesaresocialorculturalorhealthrelated.Thesevaluessometimes
donotfiteasilyintotraditionalnotionsofvaluedecosystemcomponentsanditmaybe
challengingtoproperlyassesstheimpactsofaProjectonthesetypesofvalues.Asa
result,theyaresometimesgivenonlycursoryconsiderationintheEAprocessorare
sometimesleftoutalltogether.MorecareshouldbetakentoidentifyFirstNationvalued
ecosystemcomponentsandtorigorouslyassesstheimpactsofaProjectonthem.
WhiletheProponenthastheprimaryresponsibilityforthistask,FirstNationsmustplay
theirpartinidentifyingtheimportantvaluesthattheywishtoprotecttotheProponent.
ThisBestPracticecanbeimplementednow.
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5.5.2 Traditional Knowledge and Traditional Use Studies
Althoughgreatstrideshavebeenmadeinrecentyearsinrespectoftheutilizationof
traditionalknowledgeanduseinformationinmakingdecisionsaboutlandandresource
useandmanagement,thereremainbarriersinproperlyintegratingthisinformationinto
theenvironmentalassessmentprocess.TheBestPracticeslistedbelowaremeantto
addressthisissue.
BP#39:Traditionalknowledgeandinformationontraditionalusemustbecollected
earlyintheprocesstoinformthedesignofotherenvironmentalassessmentrelated
studies,andmustbegiventhesameconsiderationasscientificknowledgeinevaluating
potentialeffectsofaproposedProject.
Traditionalknowledgeandtraditionaluseinformationisofimportancebecauseit
identifiestheaspectsoftheenvironmentthatareofculturalimportancetoFirstNations,
i.e.thevaluedecosystemcomponentsfromaFirstNationspointofview.Itcan
thereforeprovidevaluabledirectionforothertypesofbaselinestudiesthatmightbe
required.Forinstance,ifmarmotsareculturallyimportanttoaFirstNation,thenfocused
scientificbaselineworkonmarmotpopulations,distribution,andhabitatmightbe
indicatedtoallowpredictionofenvironmentalimpactsonthisculturallyimportant
species.Forthisreason,thecollectionoftraditionalknowledgeanduseinformation
mustoccurearlyintheenvironmentalassessmentprocess,toassistinidentifyingafull
listofappropriatescientificbaselinestudies.Inaddition,thetraditionalknowledgeof
eldersandothermembersofaFirstNationmustbeconsidered,togetherwithscientific
information,inevaluatingtheenvironmentaleffectsofaProject.
BothProponentsandFirstNationsbearresponsibilitiesinimplementingthisBest
BP#40:AProponentshouldgiveaffectedFirstNationstheopportunitytoconduct
traditionalknowledgeandtraditionalusestudiesforusebytheProponentinthe
environmentalassessmentofaproposedProject.
MostFirstNationstaketheposition,appropriately,thattheyaretheownersoftheirown
traditionalknowledge,andthatsomeoftheirtraditionalknowledgeoruseinformation
needstoremainconfidential.ThereisoftenagreatdealofdiscomfortwithinaFirst
NationwhenaProponentretains,withouttheFirstNationsconcurrence,aconsulting
companytocollecttraditionalknowledgeanduseinformationaspartofthe
environmentalassessmentworkforaProject.TheProponentshould,instead,givethe
FirstNationtheopportunitytocollectitsowntraditionalknowledgeanduseinformation.
Insomecases,FirstNationsmaywishtoretainconsultantsoftheirchoosingtoassistin
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thecollectionanddocumentationofthisinformation.Ideally,inthefuture,eachFirst
Nationwillhavecollectedanddocumenteditsowntraditionalknowledgeanduse
informationsothatitcanquicklyprovidedirectiontoProponentswithnooronlyminimal
needforfurtherstudyorcollection.
WhileProponentshavetheprimaryresponsibilityforimplementingthisBestPractice,
FirstNationsmustbewillingtotakeontheresponsibilityofcollectingtheinformation.
BP#41:Priortothecollectionofanytraditionalknowledgeortraditionaluse
informationaspartofanenvironmentalassessment,aFirstNationandaProponent
shouldformalizetheirunderstandingabouttheownership,confidentiality,anduseof
thisinformationinalegallybindingagreement.
Traditionalknowledgeanduseinformationhasbeenabusedinthepast.Asexamples,
spawningstreamshavebeenfishedemptyortraditionalfishingspotshavebeentaken
overbycommercialorrecreationalfishinginterests.Pharmaceuticalcompanieshave
utilizedtraditionalknowledgeonthemedicinalpropertiesofplantstopointthewayfor
thedevelopmentofnewdrugsthatarethenpatentedbythepharmaceuticalcompany.
TopreventthisappropriationofaFirstNationstraditionalknowledgeanduse
information,andbeforeitisusedinanEAprocess,aFirstNationshouldinsistonhavinga
legallybindingagreementwiththeProponentwithrespecttotheownership,
confidentiality,anduseoftheFirstNationstraditionalknowledgeanduseinformation.
BothProponentsandFirstNationshaveresponsibilitiesforimplementingthisBest
Practice,anditcanbeimplementednow.
5.5.3 Baseline and Other Background Studies
WerecommendthefollowingBestPracticesinrelationtobaselineorotherbackground
studies.
BP#42:Baselineandotherbackgroundstudiesmustadheretoacceptablestandardsof
datacollectionandanalysis,andmustadequatelyconsidertraditionalknowledgeand
spatialandtemporalvariationintheirdesign.
Becauseoftimeandcostconstraints,EAbaselinestudiesinBritishColumbiaareoften
notdonewithsufficientstatisticalrigourtosatisfyscientificstandards.Thiscanbea
particularissuewhentryingtocomparepredictedenvironmentalimpactsofaProject
againstbaselineconditionsthatmaybehighlyvariableintimeorinspace.Forinstance,
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theuseofaProjectareabyaparticularspeciesofwildlifecannotbeadequately
characterizedwithoutseveralyearsofobservations.Traditionalknowledgecanoftenbe
helpfulindesigningscientificallyacceptablebaselinestudies,e.g.wildlifeorwildlife
habitatstudies,orinfillinginformationgapscausedbyinadequatescientificsamplingor
observation.
TheprimaryresponsibilityforimplementingthisBestPracticerestswiththeProponent.
BP#43:Multiyearfieldstudiesshouldallowforbetweenyearreviewandcommentby
FirstNationsoffieldseasonresultsbeforefinalizingplansforthesubsequentyear.
Inmultiyearfieldstudies,thereisanopportunitytoimprovestudydesignthrough
examinationofthepreviousyearsresultsbeforethesubsequentfieldseason.First
Nationsshouldbeinformedofthesepreliminaryresultsandprovidedtheopportunityto
suggestimprovementsforsubsequentyears.
AllPartiesinvolvedinanEAreviewhavesomeresponsibilityforimplementingthisBest
Practice,althoughtheProponentprobablyhastheprimaryresponsibility.TheBest
Practicecanbeimplementednow.
BP#44:FirstNationrepresentativesshouldbeincludedonallfieldstudyteams.
FirstNationconfidenceintheresultsofEAfieldstudiescanbestrengthenedwhenFirst
Nationsrepresentativeshavetheopportunitytoparticipateinfieldstudiesandbecome
familiarwiththefieldmethodologiesandresults.ItisalsoagoodpracticetoinvolveFirst
Nationrepresentativesinfieldstudiestobuildcapacitywithinthecommunityand,
possibly,toencourageFirstNationrepresentativestopursuehighereducationinthe
subjectarea.
BothProponentsandFirstNationshaveresponsibilitiesinrespectoftheimplementation
ofthisBestPractice.Itcanbeimplementednow.
BP#45:TheresultsofbaselinestudiesshouldbesummarizedandpresentedtoFirst
Nationsinclear,nontechnicallanguage.
Theresultsofbaselinestudiesshouldbecommunicatedtothemembershipofall
affectedFirstNations.Sincethemembershipwillconsistofindividualswithwidely
differingbackgroundsandlevelsofformaleducation,theresultsshouldbepresentedin
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clear,nontechnicallanguage.ThisholdsforotheraspectsoftheEAaswell,including
presentationsontheresultsoftheEA.
AProponentbearstheprimaryresponsibilityforimplementingthisBestPractice,andit
5.5.4 Significance of Residual Effects
Despitemanyattemptsandschemestoimproveobjectivityinthedeterminationof
significanceinenvironmentalassessmentprocesses,thedeterminationofthesignificance
orimportanceofanenvironmentaleffectremainsamurkyandsubjectiveprocessthatis
oftenuncleartoFirstNationsordoesnotproperlytakeintoaccountFirstNationvalues.
WeproposethefollowingBestPracticesinrespectofthisissue.
BP#46:InanEnvironmentalAssessmentApplication,themethodsfordeterminingthe
significanceofresidualeffectsmustbeclearlydocumented,andanalysesofsignificance
shouldbedoneinconsultationwithFirstNations.
EAcomesdowntoidentifyingthoseeffectsofaProjectthatwillremainafterallmeans
havebeenappliedtoreduceormitigatetheseeffects(i.e.,theresidualeffects),and
determiningtheimportanceorsignificanceoftheseresidualeffects.Insomeinstances,
significancecanbedeterminedbycomparingpredictedeffectstosomethresholdvalues,
e.g.predictedcontaminantconcentrationsinwateragainstallowablelevelsofthat
contaminantasestablishedinregulations.However,inmostcases,thecriteriafor
establishingsignificancearenotsoclearcutandcanbeverysubjectiveinnature.Inan
EA,itisimportantthatthemethodsfordeterminingsignificancehavebeenclearly
documented.ItisalsoimportantthatFirstNationshavetheopportunitytoparticipatein
thedevelopmentofthesemethodsfordeterminingsignificance,andintheirapplication
indeterminingsignificanceofresidualeffects.
AllPartiestoanEAreviewhavearoletoplayinimplementingthisBestPractice,andit
BP#47:Criteriaforevaluationofthesignificanceofresidualenvironmentaleffects
shouldbereviewedandstandardizedtoensurethatthesustainabilityofFirstNations
heritage,social,spiritual,andculturalvaluesareproperlyconsideredinenvironmental
assessment,alongwithbiological,chemical,andphysicalvalues.
FirstNationsareinthebestpositiontosetcriteriafortheevaluationofthesignificanceof
ProjecteffectsonFirstNationheritage,social,spiritualandculturalvalues.Itwouldbe
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advantageousforaFirstNationsgrouporcommitteetoreviewcriteriausedtodateand
tostandardizethesecriteriaforfutureEAs.
Again,allPartieshavearoletoplayinimplementingthisBestPractice.Butitwilltake
timetoimplement.
5.5.5 Cumulative Effects Assessment
ProbablyoneofthedominantconcernsofFirstNationsrelatestocumulativeeffects
assessment.BecauseaFirstNationscultureandwayoflifeissointegrallyconnected
withthelandanditsresources,itisfrustratingforFirstNationpeoplestoseecumulative
effectsassessmentbeingconstrainedsonarrowlytoexaminingtheeffectsofaparticular
Projectincombinationwithotherpast,orreasonablyforeseeableProjectsofasimilar
nature,whenitisoftenobvioustoFirstNationsthatthecombinedimpactsofpast
developmentofallkindshasdrasticallychangedthelandscapeandnaturalecosystemsof
theirterritoryandseverelylimitedtheirabilitytopracticetheircultureandtraditional
wayofliving.InadditiontoBP#16thefollowingBestPracticesaresuggested
BP#48:Giventheineffectivenessofcumulativeeffectsassessmentasitispracticed
today,onetaskforthecommitteerecommendedinBP#15shouldbetoexaminethe
existingcumulativeeffectsmethodologyandmakerecommendationsforits
improvement.
Althoughcumulativeeffectsassessmentisapotentiallyvaluabletooltousein
environmentalassessment,ithassofarbeenlargelyineffectiveinBC.Ataskforthe
committeerecommendedinBP#15shouldbetoexaminetheexistingcumulativeeffects
assessmentprocessandmakerecommendationsonhowitcanbeimproved.The
followingaspectsshouldbeincludedforconsiderationinthisreview:
whetheritisappropriatetoconductcumulativeeffectsassessmentaspartofa
ProjectEA,orwhetheritshouldbedonebygovernmentaspartofhigherlevel
landandresourceuseplanningexercises;
whetherornotregionalcumulativeeffectsassessmentwouldbemoreeffective
thanindividualProjectcumulativeeffectsassessments,orwhetherbothcanplay
arole;
howtodeterminelimits(thresholds)forvariousenvironmentaleffects,beyond
whichanindividualProjectseffectswouldbeunacceptable(seealsoBP#49);
shouldthescopeofcumulativeeffectsassessmentincludeconsiderationofthe
effectsofalldevelopmenttypes,notjustdevelopmentsofthesametypeasa
subjectProject;
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theappropriatetimetouseasthebaselineforevaluatingcumulativeeffects(e.g.
predevelopmentorcurrentsituation).
ItistheresponsibilityofallPartiestoenvironmentalreviewprocesses,aswellasothers
knowledgeableaboutEA,toimplementthisBestPractice.ThisBestPracticewilltake
timetoimplement.
BP#49:Giventheirlongassociationwiththelandanditsresources,FirstNationsmust
playameaningfulroleincumulativeeffectsassessment.
BecauseFirstNationshavesolongreliedonthelandanditsresources,theyareoftenin
thebestpositiontorecognizeandunderstandthecumulativeeffectsofmodern
development,includingcommercialandsportfishing,hunting,forestry,mining,oiland
gasdevelopment,landclearing,agriculture,transportationandutilityinfrastructure,and
urbandevelopment,ontheirlandsandontheirwayoflife.FirstNationsmusttherefore
bemeaningfullyinvolvedinregionalorprojectspecificcumulativeeffectsassessment.
AllPartiestoenvironmentalassessmentmustworktowardsimplementingthisBest
BP#50:Thesignificanceofsomecumulativeeffectsmustbemeasuredagainstpre
determinedthresholdsdevelopedinlanduseplanning,regionalcumulativeeffects
assessment,orotherprocesses.
Themainpointofcumulativeeffectsassessmentistodeterminewhetherornotthe
magnitudeofaparticularProjecteffect,whencombinedwithsimilareffectsfrompast
projectsandsimilareffectsfromotherreasonablylikelyprojectsinthefuture,surpasses
anacceptabilitylimitorthreshold.Althoughtheselimitsorthresholdsmayhavebeen
establishedforsomeparameters(e.g.,waterqualityobjectivesandcriteria),theyhave
notbeenformanyothers(e.g.,areaofcriticalhabitatforparticularwildlifespecies;social
andculturalparameters).Asaresult,cumulativeeffectsassessmentasitispracticed
today,isoftenineffectivebecausetherearenoacceptabilitythresholdsagainstwhichto
assesstheacceptabilityofmostadversecumulativeeffects.
AllPartiestoanenvironmentalassessmentreviewmustbeinvolvedinthe
implementationofthisBestPractice,anditcanbepartiallyimplementednow,where
appropriatethresholdsexist.Inothercases,however,itwilltaketimetodevelopthe
thresholds.
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BP#51:OralevidenceofpastimpactsofdevelopmentProjectsmustbegivendue
considerationintheassessmentofcumulativeeffects.
Justasoralevidencehasbecomeanacceptableformofevidenceinassessingaboriginal
rightsandtitleissues,itmustalsobeacceptedasavaluablesourceofinformationin
assessingcumulativeeffects.
AllPartiestoanEAreviewmustplayaroleinensuringtheimplementationofthisBest
BP#52:RemediationofenvironmentalproblemsfrompastProjectsmayprovidemore
roomfordevelopment,andshouldbegivendueconsiderationincumulativeeffects
assessment.
FirstNationsrecognizethattheadverseimpactsofsomeProjectscanbesuccessfully
remediatedovertime.Forinstance,roadscanoftenberemovedandtheroadcorridor
acceptablyremediated(e.g.,withremovalofstreamcrossingstructuresandsuitablere
vegetation)overtime.Thesuccessfulremediationofenvironmentaleffectsshouldbe
givencredit,effectivelyprovidingadditionalroomfordevelopmentincumulativeeffects
assessments.
AllPartiestoanenvironmentalassessmentreviewmustbeinvolvedinthe
implementationofthisBestPractice.Itcanbeimplementednow.
5.5.6 Commitments
ThegrantingofanEACertificateundertheBCEnvironmentalAssessmentActis
accompaniedbyalistoflegallyenforceablecommitmentstowhichaProponentmust
adhereorrisklosingtheCertificateandbeingorderedtostopworkontheProject.In
additiontotheseCertificatecommitments,aProponentoftenmakescommitmentsto
FirstNationsthatarenotcapturedintheCertificate.Theremaybenoappropriate
remediestoaFirstNationwhenaProponentfailstoliveuptothesetypesof
commitmentsintheabsenceofalegallybindingagreementbetweentheFirstNationand
theProponent.Anotherissueisthelackofanappropriatesystemtotrackandreportto
FirstNationsonthecomplianceofaProponenttocommitmentsmadeintheEA
Certificate.
ThefollowingBestPracticesareproposedinrelationtocommitmentsmadetoFirst
NationsduringtheEAprocess,eitherbyproponentsorbypublicgovernments.
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BP#53:AnEnvironmentalAssessmentApplicationmustlayoutcommitmentsmadeby
theProponentandpublicgovernmentsinrespectofFirstNationsinthedevelopment,
operation,andpostoperationphasesofaproposedProject,andthesecommitments
mustbecarriedoverintoEnvironmentalAssessmentCertificates,permits,orother
authorizations,orintoagreementsbetweenFirstNationsandpublicgovernments,or
FirstNationsandtheProponent,asappropriate.
WherethereisappropriatelegislativeorconstitutionalauthorityforinclusioninanEA
Certificate,commitmentsmadebyaProponentinrespectofFirstNationsissuesshould
belaidoutintheEnvironmentalAssessmentApplicationandcarriedoverintotheEA
Certificate,BCpermits,orfederalauthorizations.CommitmentsmadebyBCorCanada
toFirstNations,whilenotappropriateforinclusioninanEACertificate,shouldbe
formalizedthroughanagreementbetweenthegovernmentandtheFirstNation.
AProponenthastheprimaryresponsibilityofensuringthatallcommitmentsmadeto
FirstNationsarecapturedintheEAApplication,buttheBCgovernment(orCanada)has
theresponsibilityforensuringthatthesecommitmentsarecarriedoverintoPermits,
otherauthorizations,orotheragreements,asappropriate.ThisBestPracticecanbe
implementednow.
BP#54:TheBCEnvironmentalAssessmentOfficeshoulddevelopasystemtotrackand
enforcecomplianceofthecommitmentsmadebytheProponentinanEnvironmental
AssessmentApplicationandsubsequentpermitsorotherauthorizations,andshould
annuallyreviewcompliancewithaffectedFirstNations.
ItoftenappearstoFirstNationsthatthereislittleonthegroundmonitoringofa
ProponentscompliancetotheconditionssetoutinanEACertificate.Thisperception
mayoccur,inpart,becausethereisnoformalmechanisminplaceforreportingtoFirst
NationsaboutaProponentscompliancewithrespecttotheEACertificateconditions.
TheresponsibilityforimplementingthisBestPracticeliesprimarilywiththeBC
Government.Itcanbeimplementednow.
BP#55:Understandingsmadeoutsideoftheenvironmentalassessmentprocess
betweenaProponentandaFirstNationshouldbecapturedinalegallybinding
agreement.
SomecommitmentsmadebyaProponenttoaFirstNationmaybeofsuchanaturethat
theydonotfallwithinthelegislativeauthoritiesoftheBCorthefederalgovernments,
andthereforemaynotbeabletobeincludedasconditionsofanEACertificateorother
provincialorfederalauthorizations.Thesecommitmentsshouldbeformalizedinlegally
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bindingagreementsthatsetoutremediestoFirstNationsshouldtheProponentfallout
ofcompliancewithrespecttothesecommitments.
TheProponentandaffectedFirstNationsbothplayaroleinimplementingthisBest
Practice,anditcanbeimplementednow.
5.5.7 Decision Making
TheextenttowhichFirstNationshavebeenabletoparticipateindecisionmakingin
respectoftheissuanceofBCEACertificatesorfederalauthorizationsfollowingaCEAA
assessmentispresentlylimitedbythepositionofpublicgovernmentsthatthedecision
makingpowersofMinistersoftheCrowncannotbefettered.Thisisobviouslyinconflict
withthepositionofFirstNationsthattheyown,andhaveneversurrendered,theirlands
andresources,andthereforeshouldhavedecisionmakingpowersaboutdevelopmenton
theirterritories.
ThepassingofRecognitionlegislationasisbeingcontemplatedbytheBCgovernment
mayprovidetheimpetustodevelopmechanismsforshareddecisionmakingwhenitis
recognizedbytheBCGovernmentthatFirstNationshaverightsandtitlewithintheir
territories.
ThefollowingBestPracticesareproposedinrespectofdecisionmakinginthe
environmentalassessmentcontext.
BP#56:FirstNationsshouldcommunicatetheirconcerns,recommendations,and
decisiontotheBCandfederalMinistersindependentlyofBCEnvironmentalAssessment
OfficeorCanadianEnvironmentalAssessmentAgencyrecommendations.
ItisimportantthatFirstNationscommunicatetheiropinions,intheirownwords,abouta
Projectanditsenvironmentalassessmentdirectlytotheultimatedecisionmakers,rather
thanthroughthefilteroftheBCEAOortheCEAA.Thisbecomesevenmoreimportantif
aFirstNationsviewsarenotadequatelyreflectedintheBCorfederalrecommendation
documents,orwhereaFirstNationsconclusionsaboutthesignificanceofresidual
effectsoftheProjectdifferfromthoseofCanadaorBC.
FirstNationsareresponsiblefortheimplementationofthisBestPractice,anditcanbe
implementednow.
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BP#57:CanadaandBCmustacknowledgethatFirstNationshaveadecisionmaking
roleabouttheenvironmentalacceptabilityofProjectswithintheirterritoriesandfind
suitablemechanismstogiveeffecttothisrole.
EvenifoneacceptsthepropositionthatthedecisionmakingpowersofMinistersofthe
Crowncannotbefettered,mechanismscanbedevisedwherebyaMinistermustconsider
FirstNationrecommendations,mustenterintoadisputeresolutiontypeprocesswhere
his/heropiniondifferssignificantlyfromthatoftheFirstNation,andwherehe/she
ultimatelyissuesadecisioncontrarytothewishesoftheFirstNation,mustprovide
appropriatejustificationforthatdecision.
BritishColumbiaandCanadahavetheprimaryresponsibilityforimplementingthisBest
Practice.Itcanbepartiallyimplementednow,althoughfullimplementationmightnotbe
possibleuntilappropriateRecognitionlegislationispassedinBritishColumbia.
BP#58:TheBCEnvironmentalAssessmentOfficeCertificatedecisionmakingprocess
shouldberedesignedtobetterconsiderandincorporatetheviewsanddecisionmaking
roleofFirstNations,andshouldincludeadisputeresolutionmechanismwhentheviews
ofFirstNationsandpublicgovernmentsareatodds.
SeecommentaryonBP#57.ItistheresponsibilityoftheBCGovernmenttoimplement
thisBestPractice.Itwilltaketimetoimplement.
BP#59:EachFirstNationshoulddevelopitsownpoliciesandguidelinestoprovide
directiononinternalenvironmentalassessmentdecisionmaking.
Asinanycommunity,individualmembersofaFirstNationcommunityoftenhaveawide
varietyofviewsconcerningtheimpactsofaProjectandtheirsignificance.Toensurethat
allviewsaregivenappropriateconsiderationandthattheFirstNationleadership
adequatelycommunicatesthecollectivewillofthecommunitytotheProponentand
publicgovernments,aFirstNationshoulddevelopitsownpoliciesandguidelines
concerningenvironmentalassessmentreviewanddecisionmaking.Suchpoliciesand
guidelinesshouldincludeconsiderationsofhowtoeducatecommunitymembersabout
theprojectanditseffects,howbesttodeterminethegeneralopinionofthecommunity,
andthebalancebetweenenvironmentalprotectionandeconomicdevelopment
objectives.Thesepoliciesandguidelinesshouldbeshapedbythegovernancesystem
usedbytheFirstNation,anditsgeneralphilosophyaboutlandandresourceuse.
TheimplementationofthisBestPracticeisaFirstNationsresponsibility,anditcantake
placenow.
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BP#60:FirstNationsmustbeallowedsufficienttime,consistentwiththeirown
processesofinternalconsultation,toallowforenvironmentalassessmentdecision
making.
TimelineslegislatedforvariousstepsoftheEAprocessdonotalwaysworkforFirst
Nationsbecauseoftheirowninternaldecisionmakingprocessesthatareoftenbasedon
traditionalwaysofmakingdecisions.Tomakeeffectivedecisions,FirstNationsmustalso
spendasignificantamountoftimeandeffortineducatingtheirmembersaboutthe
Project,itsenvironmentaleffects,andpotentialmitigationmeasuresbeforeinformed
decisionscanbemadeabouttheacceptabilityoftheProject.
TheprimaryresponsibilityfortheimplementationofthisBestPracticelieswiththepublic
governments.ThisBestPracticecanbeimplementednow.
5.5.8 Monitoring and Follow-Up
BecausemanytypesofresourcedevelopmenttakeplaceinremoteareasoftheProvince,
populatedprimarilybyFirstNationspeople,itistheFirstNationsthatmustlivewiththe
longtermaftereffectsofaProject.ItisthereforenotsurprisingthatFirstNationshavea
greatinterestinthelongtermmonitoringoftheeffectsofaProject.ThefollowingBest
Practicesareproposedinrespectofmonitoringandfollowupactivities.
BP#61:Anenvironmentalassessmentmustincludeamonitoringplanforallphasesof
theProjectthatincludesacommitmenttoengageFirstNationmonitors.
Asiscurrentlyrequiredbyprovincialandfederallegislation,environmentalassessment
applicationsmustincludefollowupplansthatincludeamonitoringcomponent.Wherea
FirstNationsrightsandinterestsarebeingadverselyaffectedbyaProject,itis
appropriatethatmembersoftheFirstNationbehiredasenvironmentalmonitors.
AProponenthastheprimaryresponsibilityforimplementingthisBestPractice,anditcan
beimplementednow.
BP#62:FirstNationmonitorsshouldbeindependentcontractorsoremployeesofthe
FirstNationwithobligationstoreporttheirmonitoringresults,includinginfractions,to
theProponent,topublicgovernments,andtoaffectedFirstNations.
ItisnotagoodpracticeforFirstNationmonitorstobehireddirectlybytheProponentof
aprojectbecauseitcreatesaconflictofinterestsituation.Inthissituation,aFirstNation
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monitormightneedtoreportonaProponentsinfractionsornoncompliancewith
Permitconditionswhilecollectinghis/herpaychequefromthissameProponent.
AFirstNationmonitorshouldbeobligedtoreporthis/hermonitoringresults,including
infractions,directlytoappropriategovernmentministriesoragenciesandallaffected
FirstNations,aswellastheProponent.ApartfromensuringthatallPartiesareinformed
inatimelymanneraboutmonitoringresults,includinginfractions,thisBestPractice
wouldremoveanydiscretionaryabilityofaFirstNationmonitortoavoidreportingon
infractionsunderovertormoresubtlepressurefromaProponentoritsemployees.
TheimplementationofthisBestPracticeisprimarilytheresponsibilityoftheProponent
andaffectedFirstNations.TheBestPracticecanbeimplementednow.
BP#63:AProjectProponentshouldberesponsibleforfundingthetrainingand
engagementofFirstNationmonitors.
ItisappropriatethatprojectproponentsprovideappropriatetrainingtotheFirstNation
monitors.ItisalsoappropriatethatprojectproponentscoverthecostofengagingFirst
Nationmonitorsbut,asdiscussedinthecommentaryonBP#62,thefundingtoengage
FirstNationmonitorsshouldflowtotheFirstNationtohiretheFirstNationmonitors.
Becauseprojectsoftenoccurinremotelocationswherethenearestcommunitiesare
FirstNationcommunities,thehiringofFirstNationmembersasenvironmentalmonitors
willoftenmakeeconomicsense.Itisalsoofadvantagetopublicgovernments,
consideringtheirpersonnelconstraints,tobeabletorelyonlocallybasedresidentsto
providemonitoringinformationfromoftenveryremotepartsoftheProvince.
AProponenthastheprimaryresponsibilityforimplementingthisBestPractice,anditcan
beimplementednow.
BP#64:Governmentregulatorsshould,inatimelymanner,investigateFirstNation
monitorsreportsofenvironmentalassessmentcommitmentorpermittinginfractions
and,ifnecessary,takeappropriateremedialactions.
ThereislittlepointtoprovidingonthegroundFirstNationmonitorsifgovernment
regulatorsdonotfollowuponinfractionsinatimelymanner.
TheimplementationofthisBestPracticeisprimarilytheresponsibilityofgovernment
regulators,andimplementationcantakeplacenow.
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5.5.9 Remediation of Unanticipated Adverse Impacts
AcommonconcernforFirstNationswasthat,withtheexceptionofmines,therewasno
potofmoneysetasidetoremediateadverseeffectsofaProjectshouldtheyexpress
themselvesinthefuturewhentheProponenthaslongdisappeared.Inrelationtothis,
wesuggestthefollowingBestPractice:
BP#65:Amechanism,separatefromandinadditiontotheBCbondingmechanism
currentlyinplaceforminereclamation,shouldbedevelopedtocollectandhold
financialresourcesfromProjectproponentsforremediationofunanticipatedadverse
Projecteffects.
ThisBestPracticemightbestbeimplementedonacollectivebasis,wherebyafeeis
collectedfromeachProponent,theamountofthefeedependingonthesizeandnature
oftheProject.Thesefees,collectedfromProponentsofallprojects,wouldbeheldin
trusttoprovideafundingsourcetoremediateenvironmentaleffectsthatshowupinthe
futureincircumstanceswherethereisnolongeraresponsibleownertoshoulderthe
responsibilityoftheremediation.Thiswouldprobablyrequirelegislativechange.
TheimplementationofthisBestPracticeisprimarilytheresponsibilityofBCandCanada.
Implementationwilltaketime.
5.6
Financial Capacity for Participation in EA
Ingeneral,FirstNationsdonotreceiveregularfundingfromeitherCanadaorBritish
Columbiatofinancelandandresourcegovernanceactivities.EAreview,asitispracticed
todayinBritishColumbia,isacomplex,lengthy,andexpensiveprocess.AffectedFirst
NationsmustbeproperlyfinancedtoparticipatemeaningfullyinEAprocessesinways
thatdonotfettertheirabilitytoprovidetheirownuncompromisedviewsofEAresults
andtheadvisabilityofproceedingwithProjects.ThefollowingBestPracticesare
proposedinrelationtothisissue.
BP#66:Toavoidanyrealorperceivedconflictofinterestissues,itisnotagoodpractice
forFirstNationstoreceivefundingdirectlyfromProponentstoparticipatein
environmentalassessmentprocesses.
TheacceptanceoffundingdirectlyfromaProponenttoparticipateintheenvironmental
assessmentprocessforitsprojectcompromisesaFirstNationsabilitytoconductafair
andunbiasedevaluationoftheenvironmentaleffectsoftheProject.Itisdifficulttooffer
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opinionscontrarytotheProponentsopinionswhenyouaredependentontheProponent
topayforthecostsofyourparticipation.
FirstNationshavetheprimaryresponsibilityforimplementingthisBestPractice,but
CanadaandBCmustplaythedominantrolesindevelopingalternatefunding
mechanisms.TheBestPracticecanbeimplementednow.
BP#67:FundingFirstNationparticipationinenvironmentalassessmentprocessesorin
processesthatwillfacilitatefutureenvironmentalassessmentprocesses(suchasFirst
NationsLandUsePlans,SocioEconomicBaselineStudies,TraditionalUseStudies)is
primarilytheresponsibilityofgovernments.
Webelievethatitistheresponsibilityofgovernmenttofundconsultationcosts,andthat
participationinenvironmentalassessmentprocessesisfundamentallyabout
consultation.Thisisalsotrueofregionalstudiesthatprecedeandalloweffective
participationinenvironmentalassessment.Theseregionalstudiesincludelanduseplans,
socioeconomicbaselinestudies,traditionalusestudies,regionalcumulativeeffects
studies,etc.Wealsobelievethatitispossibleforpublicgovernmentstorecovertheir
costsoffundingFirstNationparticipationinenvironmentalassessmentsfrom
Proponents.
BCandCanadahavetheprimaryresponsibilityforimplementingthisBestPractice,andit
cantakeplacenow.
BP#68:FundingforFirstNationparticipationinenvironmentalassessmentprocesses
shouldbeheldintrustfordistributiontoFirstNations.
ItwouldbepreferableiffundingwerecollectedfromProponentsandheldintrustto
supportaFirstNationsparticipationintheEAprocess.Thiscouldbedonebypublic
governments(orotherorganizations)onacollectivebasiswherebyfundingforFirst
NationsparticipationinallEAprocesseswascollectedfromProponentsandheldina
collectivetrust.
ThisBestPracticeprovidesanexampleofhowfundingmightflowfromProponents
throughpublicgovernmentstoFirstNationsforparticipationinEAprocessesinaway
thatminimizesanyundueinfluenceofProponentsonFirstNations,oranysenseof
obligationonthepartofFirstNationstoProponents.Theresponsibilityforimplementing
theBestPracticeliesprimarilywithBCorCanada.Itwilltaketimetoputintoplaceanew
fundingsystem,includingtrustarrangementsforholdingfundsforFirstNations.
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BP#69:FirstNationsmustbefundedinamountssufficienttocoverthereasonablecosts
oftheirparticipationinenvironmentalassessmentprocesses.
Toparticipatemeaningfullyinanenvironmentalassessment,aFirstNationmustbe
fundedatalevelthatrealisticallyreflectsthesizeandcomplexityoftheProject.A
reasonablecostforFirstNationparticipationinanenvironmentalassessmentprocess
couldbedeterminedbyafundingcommittee(oftheTrust,iffollowingthemodel
describedinBP#68)onwhichFirstNationshavefairrepresentation.
WeexpectthattheresponsibilityofimplementingthisBestPracticewouldfalltothe
membersofatrustfundingcommitteewhichwould,presumablyincluderepresentatives
ofpublicgovernments,FirstNations,anddevelopmentproponents.Theprinciple
describedbytheBestPracticecanbeimplementednow.
BP#70:IntheinterimperiodbeforeGovernmentsdevelopappropriatemechanismsto
properlyfundFirstNationparticipationintheenvironmentalassessmentprocess,
ProponentsshouldfundFirstNationparticipationthroughEnvironmentalAssessment
ParticipationAgreementsnegotiatedwithFirstNations(seealsoBP#24).
IfaFirstNationisforcedtoacceptfundingdirectlyfromaProponentforparticipationin
theEAreviewofaProject,forinstanceintheperiodbeforeotherfundingmechanisms
canbedevelopedasdiscussedabove,thetermsofthatacceptanceshouldclearlybelaid
outinalegallybindingagreement.FromaFirstNationspointofview,itisimportantto
makeitclear,aspartoftheagreement,thattheacceptanceoffundingfromthe
ProponentbytheFirstNationdoesnotimplyFirstNationagreementwithconclusions
madeintheEAApplicationorFirstNationconsentoftheProject.
TheProponenthastheprimaryresponsibilityintheimplementationofthisBestPractice,
anditcanbeimplementednow.
BP#71:EnvironmentalAssessmentParticipationAgreementsshouldnotbeconfused
withorcombinedwithEconomicBenefitAgreements(seealsoBP#31).
AnagreementbetweenaProponentandaFirstNationfortheProponenttoprovide
fundingtotheFirstNationtoparticipateintheEAreviewoftheProponentsproposed
Projectisnot,andshouldnotbeconfusedwithaneconomicbenefitagreement.An
agreementtoprovidefundingforaFirstNationtoparticipateintheEAreviewofa
proposedProjectisanagreementtocompensatetheFirstNationforitscostsincurredin
participatingintheEAreview.Aneconomicbenefitsagreementcantakemanyforms,
butmayincludethetrainingandhiringofFirstNationsmembers,thepurchaseof
servicesfromFirstNationcompanies,equityownershipintheProject,resourcerevenue
Page45
sharing,etc.ThenegotiationofeconomicagreementswithaProponentisafunctionof
theFirstNationseconomicdevelopmentdepartment.ThenegotiationofanEA
ParticipationAgreementisagovernancefunctionofaFirstNationslandandresources
department.EconomicagreementsshouldnotbeconcludeduntilaFirstNationhas
madeadeterminationthattheProjectshouldbeallowedtoproceed,orotherwiseuntil
anEACertificatehasbeenissueddespitetheobjectionsoftheFirstNation.
BothFirstNationsandProponentsmustrecognizetheprincipledescribedinthisBest
Practice,andthereisnoimpedimenttoitbeingdonenow.
BP#72:Intheabsenceofotherfundingmechanisms,FirstNationsshouldconsiderafee
forservice(personneltimeplusexpenses)systemforinvoicingpublicgovernmentsfor
theirparticipationinenvironmentalassessmentreviewprocesses.
IfaFirstNationhasnotbeenabletoattainadequatefundingtoallowmeaningful
participationinanEAprocess,andcontinuestoparticipateatitsowncost,itshouldtrack
andinvoiceBCorCanadaforitscosts,includingpersonneltimeandexpenses.While
thereisnoguaranteethat,intheabsenceofanagreement,publicgovernmentswould
paytheseinvoices,theFirstNationwouldatleastestablishapapertrailthatmighthelp
tofightapoliticalbattletoestablishafairfundingmechanismforFirstNation
participationinEAreviews.
FirstNationshavetheresponsibilityforimplementingthisBestPractice.Itcanbe
implementednow.
5.7
CapacityBuilding
ManyFirstNationshaveonlysmallnumbersofmemberswhohaveboththeeducational
orexperientialbackground,andtheinterest,inparticipatinginthegovernanceactivities
oftheFirstNation.ToeffectivelyandmeaningfullyengageinEAreviews,apersonmust
haveafairlybroadlevelofknowledgeinawidevarietyofsubjectareas,andmustbein
tunewiththedirectionprovidedbyleadershipandintheFirstNationsphilosophy,
policies,guidelines,etc.FormanyFirstNations,thesetypesofrequirementsconstitute
significantcapacitychallenges.Inthefollowingsections,weproposesomeBestPractices
withrespecttocapacitybuilding.
Page46
BP#73:FirstNationsshoulddeveloptheirowncapacitybuildingplanstoenhancetheir
abilitiestoeffectivelyparticipateinenvironmentalassessmentprocesses.
ItwouldbeadvantageousforFirstNationstodeveloptheirowncapacitybuildingplansso
thattheycaneffectivelyparticipateinenvironmentalassessmentprocesses.Thismay
involveconsiderationof,amongotherthings:
howandatwhatleveltheFirstNationwishestoparticipateinEAreview
processes;
identificationandhiringofMemberswithappropriateeducationorexperience
andinterest;
encouragingschoolageyouthtopursuehighereducationinsubjectareasthat
wouldbringparticularvaluetonaturalresourcemanagement,includingEA
participation;
identificationofpersonneltrainingneedsintheshorttermandoverthelong
term;
identificationofsuitabletrainingmechanisms(e.g.,courses,mentorships,job
shadowing,etc.)andsourcesoftraining(e.g.collegesoruniversities,online
courses;governments;organizationssuchasFNEATWG;conferencesand
workshops;consultants;etc.);
thedevelopmentoflongtermfundingmechanismssothatpersonnel,oncehired,
canberetainedinapermanentcapacity;
agreementswithgovernmentsorproponentswithrespecttocapacitybuilding;
and
successionplanningsothatthereisalwayssomeonepreparedtomoveintoa
positionwhenrequired.
TheimplementationofthisBestPracticeisprimarilytheresponsibilityofFirstNations,
anditcantakeplacenow.
BP#74:FirstNationsshouldsupportandutilizetheservicesofFirstNation
organizations,suchastheFirstNationsEnvironmentalAssessmentTechnicalWorking
Group(FNEATWG),thataremeanttoassistinbuildingFirstNationcapacityin
environmentalassessmentorothergovernancefunctions.
FirstNationssometimesdonottakeadvantageofexistingorganizationsormechanisms
thatarealreadyinplacetoassistinbuildingcapacityinenvironmentalassessmentor
othergovernancepractices.Thisissometimesbecauseofalimitedcapacitytoidentify
andkeeptrackofallthefundingandassistanceprogramsavailabletoFirstNations.
TheimplementationofthisBestPracticeisprimarilytheresponsibilityofFirstNations.
Page47
BP#75:ThegovernmentsofBCandCanadashouldfundenvironmentalassessment
capacitybuildinginFirstNations.
GovernmentshavearesponsibilitytoFirstNationstoassisttheminbecomingself
sufficient.Partofthisresponsibilityincludesthebuildingofgovernancecapacity,
includinggovernanceinrelationtolandandresourcematters,includingeffectiveand
meaningfulparticipationinenvironmentalassessmentprocesses.ThegovernmentsofBC
andCanadashouldworkwithorganizationslikeFNEATWGandtheNewRelationship
TrusttoidentifymechanismstoenhanceFirstNationcapacitybuildingwithrespectto
environmentalassessment,andtoprovidefundingtosupporttheimplementationof
suchmechanisms.
TheimplementationofthisBestPracticeisprimarilytheresponsibilityofpublic
governments.Implementationcantakeplacenow.
Page48
6.
RELATED ISSUES
IntheinterviewsusedtoassistindevelopingtheBestPracticesreportedherein,
respondentsoftenidentifiedissuesthatwerenotspecificallyEAissues.Includedamong
theseitemswere:
theneedforprovingaboriginaltitleandneedtoresolveterritoryoverlapissues
withneighbouringFirstNations;
theneedforamendmentstononEAlegislationsuchastheMetalMiningEffluent
RegulationoftheFisheriesAct;
theneedforotherdevelopmenttypes,suchasforestryandoilandgas
development,tobeevaluatedthroughEAs(seeBP#16,however);
themonitoringandremediationofenvironmentalimpactscausedby
developmentprojectsthatwereinitiatedandcloseddownpriortoany
requirementforEAreview;
theneedforFirstNationledlanduseplanning;
engagementofFirstNationswithprojectProponentsinrespectofpre
developmentstagesofplanningaProject(e.g.,mineralexploration);
mineralclaimsstakingandoilandgaslandsales;
theroleofFirstNationsinvariouspermittingprocesses;and
importantitemstonegotiatewithProjectproponentsineconomicbenefits
agreements.
AlthoughwefeltitwasbeyondthescopeofthisstudytodevelopBestPracticesin
relationtotheseissuesinmostinstances,wehavereportedontheminmoredetailin
SectionA3ofAppendixA.
Page49
Page50
APPENDIXA
SUMMARYOFINFORMATION
ACQUIREDININTERVIEWS
by
ElmarPlateandMalcolmFoy
LGLLimited
environmentalresearchassociates
A1. INTRODUCTIONANDBACKGROUND
AsbackgroundtoidentifyingBestPracticesforparticipationofFirstNationsin
environmentalassessment(EA)reviewsinBritishColumbia,weutilizedfourmainsources
ofinformation:
Informationgainedininterviewsfromthecomments,suggestions,andideasofa
numberofpeopleinvolvedintheEAprocessinBC;
CasestudiesofafewselectedEAprocesses;
ThegeneralliteratureontheinvolvementofaboriginalpeoplesinEAreviews;and
Theknowledgeoftheauthorsgainedfrommanyyearsofexperiencein
conductingenvironmentalassessments,inassistingFirstNationstoparticipatein
EAreviews,andinassistingFirstNationsinavarietyofothercapacitiesincluding
treatynegotiationsandotherlandandresourcematters.
InthefollowingAppendix,wepresentasummaryoftheinformationgainedinthe
interviewprocess.Thisismeanttobeasummaryofinformationgatheredinthe
interviewsanddoesnotnecessarilyreflecttheviewsofallthoseinterviewed,nordoesit
necessarilyrepresenttheviewsoftheauthors.
Allpersonsinterviewedforthisreportwereaskedfortheirconsenttopublishthe
informationthattheyprovidedbeforetheinterviewbegan.Consentwasgivenunderthe
followingconditions:
commentsmadearenotconnectedtonames.Insteadagenerallistof
contributorsprecedesthereport;
thereportisprecededbyapreamblethatclearlystatesthatnotallcontributors
agreewithallofthestatementsmadeinthisreport;
thecommentsmadeduringdiscussionsaresummarizedandemailedbacktothe
intervieweesforrevision;and
afinaldraftofthereportisprovidedtoallcontributorsforreviewandcomment
beforethefinalreportispublished.
Wehavesummarizedtheresultsoftheinterviewsintwomainsections.InSectionC2,
wesummarizediscussionpointsthataredirectlyrelatedtoparticipationinthe
environmentalassessmentprocess.InSectionC3,wesummarizediscussionpointson
otherissuesthatarelessdirectlyrelatedtoenvironmentalassessment.
Appendix A Summary of Information Acquired in Interviews
Page A1
A2. SUMMARYOFINTERVIEWCOMMENTSPERTAININGTOEA
Inthefollowingsections,interviewcommentsaresummarizedunderseveralEAtopics.
A2.1 AboriginalandTreatyRights,andConsultation
ThereisoftendifferingopinionbetweenFirstNationsandtheBCandfederal
governmentsonwhatconstitutesadequateConsultationinthecontextofenvironmental
assessment,givenFirstNationsconstitutionallyprotectedrightsandtheconstantly
evolvingcommonlawwithrespecttoAboriginalrightsandtitle(seealsoAppendixC).
Importantpointsraisedduringthestudyinterviewsincludedthefollowing:
FirstNationsneedtoberecognizedasgovernments,ratherthanstakeholders,in
theEAprocess;
Followingfromthefirstpoint,aFirstNationshouldhaveavetorightovera
Projectonitsterritoryifthereissufficientevidencethatnoworinthefuture
ecological,social,economic,orculturalvaluesmaybeadverselyaffectedtoa
degreethatisnotacceptabletotheFirstNation;
theFirstNationvetoshouldbebasedonatransparentprocessthatconsidersthe
majorityopinionofitspopulation;
strictcriteriaandguidelinesshouldbedevelopedandusedtoavoidtheabuseof
thevetorighttogainother,nonrelatedobjectives;
thedefinitionofjurisdictionasusedinSection27(3)oftheBCEAActshouldbe
amendedtoincludeFirstNationswithtreatyorassertedaboriginalrightsovera
landbase(i.e.,itsterritoryortreatysettlementarea)inBC;thiswouldgiveFirst
NationsagreaterabilitytonegotiateEAprocessesmoreapplicabletotheir
specificsituations,thusencouraginggreaterparticipationofFirstNationsinthe
EAprocess;
asaresultofthe2004harmonizationagreementbetweenCanadaandBritish
Columbia 21 ,thefederalgovernmentgenerallytakesabackseatinmostEA
reviewsinBC;
apartfrominvolvementinEAreviewsasaresultofspecificjurisdictional
responsibilities(e.g.,fishandfishhabitat),CanadashouldbeinvolvedinallEA
reviewsinBCtopreservetheCrownshonourandsatisfyitsfiduciarydutiesin
respectofFirstNations;
ConsultationaspartoftheEAprocessshouldbebetweentheprovincialand
federalgovernmentsandFirstNationgovernmentsandshouldnotbeoffloaded
toProponentsasiscurrentlypracticed;
21
http://www.ceaa.gc.ca/010/0001/0003/0001/0002/2004agreement_e.htm
Page A2
clarityandcertaintythatattractsinvestmentiscreatedwhenProponentsenter
intoaprocesswhereConsultationandtheaffirmationofaboriginalrightsandtitle
havebeencarriedout;
forengagementinEA,governmentsshouldproceedontheassumptionthatFirst
Nationshaverightsandtitleovertheirclaimedterritories;
mostProjectswillinterferewithformerorcurrentculturalusessuchasresiding,
hunting,fishing,gatheringandtravellingfromonelocationtoanother;and
ifmorethanoneFirstNationassertrightsintheareaofaProject,Proponents
needtodealwithalltheseFirstNationswithoutjudgmentaboutthestrengthof
theassertions.
A2.2 LegislativeConcernsandProposedChanges
SomeofthoseinterviewedidentifiedtheCarrierSekaniTribalCouncil 22 critiqueofthe
2002BCEAOActasbeinganimportantdocumentforthisstudy.Inthiscritique,Carrier
SekaniTribalCouncilconcludedthatthe2002BCEAAct,ascomparedtotheprevious
Act,weakenedtheroleofFirstNationsintheenvironmentalassessmentprocessesinthe
followingways:
thecurrentActdoesnotcontainpreviousprovisionsthatreferencedaseparate
roleforFirstNationsintheEAreviewprocess;
thepre2002legislationrequiredthatrepresentativesofanyFirstNationwhose
territoryincludedthesiteofaProjectorwasinthevicinityofaProject,be
membersofaProjectCommitteestruckforthepurposeofprovidingtheEAO
withadviceandrecommendationsduringtheEAreview.InthecurrentAct,there
isnomandatoryprovisionforFirstNationinclusioninEAprocesses,norany
requirementthatFirstNationsinterestsbeconsidered;
thepre2002Actprovidedforthethorough,timelyandintegratedassessmentof
theenvironmental,economic,social,cultural,heritageandhealtheffectsof
reviewableprojects,andthedefinitionofeffectincludedculturalandheritage
effects.InthecurrentAct,thereisnodefinitionofeffectnordirectiononwhat
typeofimpactsmustbeconsideredinanassessmentofaProject;
inthepre2002Act,anApplicationforanEACertificatewasrequiredtodescribe
informationdistributionandconsultationactivitiesundertakenbytheProponent
withaFirstNationandasummaryoftheFirstNation'sconcerns;
InthecurrentAct,alldecisionsregardingscopingandmethodsofassessmentare
atthediscretionoftheBCEAO;
thecurrentBCEAActshouldreinstatetheobligationtoformProjectCommittees
withFirstNationinclusion;
thewordingculturaleffectsshouldagainbeincludedasonebenchmarkagainst
whichtomeasureProjectimpacts;
22
http://www.cstc.bc.ca/downloads/EAO%20Critique.pdf
Page A3
theestablishmentofFirstNationmonitoringpositionsshouldbecomealegislated
partoftheBCEAAct;and
theinvolvementofFirstNationsinallstagesoftheEAprocessshouldbe
legislated.
Twoadditionalpointsrelatedtolegislationweremadeduringtheinterviews:
theBCEAOasoflatetakesthepositionthatunlessFirstNationsaresatisfiedwith
anEAprocessanditsoutcome,aprojectisunlikelytoproceedwithoutrevisions.
Thiscommonpracticeneedstobeprescribedinlegislation;and
theConsultationprocessneedstobeclarifiedandprescribedintheBCEAAct.
A2.3 RestructuringBCEAOversight
Intervieweesoftenexpressedconcernaboutthepotentialforpoliticalinterferenceinthe
existingBCEAOprocess,particularlyinlightofthepressureongovernmentstomaximize
economicdevelopment.SomealsobelievedthattherewastoolittleinputfromFirst
NationsinchangingtheEAprocesstobetteraccommodateFirstNationswaysofdoing
things.Specificpointraisedbyintervieweesincluded:
thecurrentprocessishousedintheMinistryofEnvironment,andthecurrentBC
EAActallowsProjectDirectorstoseekMinisterialinputthroughouttheprocess.
Eventhoughthismaynotoccurveryoften,itdoesnotinstillconfidenceinFirst
NationswhodesireanEAprocessfreeofpoliticalinterference.
apoliticallyindependentauthoritythatdoesnotreporttoaMinister,possiblya
nonpartisanparliamentarysubcommitteecomposedofrepresentativesgenerally
trustedbyFirstNations,shouldleadtheEAprocess;
neutralitycouldalsobeensuredthroughtheuseofEAPanelreviewsandPanel
recommendations.WhiletheoptionofPanelreviewsisexplicitlymentionedin
theBCEAAct,ithasbeenrarelyused.Itshouldberoutinelyusedforbigger
projectswithhighpotentialforadverseimpacts.
itwasfeltworthwhiletomaintainthecurrentAdvisoryCommittee(with
representativesfromabroadvarietyoflabour,health,industrial,business,
environmental,legal,tourism,recreation,trade,andmunicipalgovernment
associations,aswellasFNEATWG)thatperiodicallyprovidesadvicetotheBCEAO
ontheenvironmentalassessmentprocess;and
itwasalsofeltworthwhiletoestablish,basedonagovernmenttogovernment
relationship,aFNAdvisoryCommitteetotheBCEAOthatalsoincluded
representativesfromCEAA.
A2.4 BuildingandMaintainingGoodWorkingRelationships
Itisclearfrompastexperiencethatafairevaluationoftheenvironmentaleffectsofa
ProjectcanbefacilitatedifthereisagoodworkingrelationshipamongalltheParties,
Page A4
includingFirstNations,toanEAreview.Anumberofpointsweremadebyinterviewees
inrelationtothis:
FirstNationssupportofaProject,gainedthroughamutuallyrespectfulworking
relationshipandafairevaluationoftheenvironmentalimplicationsofaProject,
canbeavaluablemarketingandpublicrelationstoolforaProponent.Itis
worthwhileforaProponenttoputeffortintofosteringagoodworking
relationshipwithFirstNations;
Thedevelopmentofaprofessionalrelationshipofmutualtrustbetweena
ProponentandaFirstNationthroughtheEAreviewofoneProjectwillassistina
morecooperativeapproachtofuturesustainableProjectsthatwill,inturn,help
toattractinvestment;
aProponentshouldnotapproachaFirstNationwithanattitudeofgoingthrough
themotionstoacquireinasshortatimeperiodaspossibleafavourableEA
decision,butrathershouldapproachaFirstNationasagovernmentwithlandand
otherrightswithwhomitwishestodevelopamutuallybeneficialandlonglasting
workingrelationship;
ProponentorFirstNationorgovernmentcontactperson(s)should,ifpossible,be
maintainedthroughouttheEA;changesincontactperson(s)willrequiretimefor
relationshipbuilding;
ifthereisachangeintheProponentduringanEAprocess,asaresultofamerger
oracquisition,thenewProponentshouldbewellbriefedonthestatusoftheEA
andassociatedagreementswithandcommitmentstoFirstNations.
A2.5 FirstNationManagementofitsParticipationintheEAProcess
ForeffectiveengagementinthereviewofEAsofProjectsintheirterritories,FirstNations
musttakecontroloftheirengagementthrough:1)thedevelopmentofappropriatepolicy
andguidelinesthatwillgivedirectiontotheirparticipationinEA;2)throughthe
developmentofappropriateplanningandbackgrounddocumentsthatwillinformEAs
andprovidecriteriaformeasuringtheadequacyofEAsandtheacceptabilityofaProjects
predictedimpacts;and3)throughanumberofotherinternalinitiativesand
arrangementsthatwillfacilitateeffectiveengagementinEAreviews.
Importantpointsinthisregardthatwerecommunicatedduringtheinterviewsincluded
thefollowing:
toavoidpotentialconflictsofinterest,differententitieswithinaFirstNation
shoulddealwitheconomicandenvironmentalassessmentissues;
theleadershipofFirstNationsshouldstrictlymanagelandusedecisionsandthus
provideclearguidelinesforeconomicdevelopmentsthroughLandUsePlansor
othermeasures;
Page A5
thefollowingstatementmadeinaninterviewsummarizeswellaprevalentFirst
Nationperspective:"Takecareofthelandfirstandthenitwilltakecareofyou
everafter;
acodeofconductaspartofanengagementagreementshouldbedeveloped
byaFirstNationtoprovideguidancetoaProponentonhowtoapproachand
workwiththeFirstNationinaprofessionalandculturallysensitivemanner(see
alsoRelatedIssues,SectionPage49,MainReport).Itemstoconsiderin
developingsuchcodesoragreementsinclude:
o initialmeetingsbetweenaProponentandaFirstNationshouldbefaceto
faceandaProponentshouldbeforthcomingwithinformation,including
worstcasescenarios.Honestyiskeytoinitiatingagoodworking
relationship;
o agoodwayforaProponenttodevelopagoodrelationshipwith
communitymembersistocombinepresentationswithacommunityfeast;
o communityPresentationsshouldbemadeinaculturallysensitiveway
usingnontechnicallanguageandotherguidancefromleadership;
o proponentsshouldlistenwellandtakealllocalconcernsintoaccount;
o awrittensummaryofameetingthatclearlyaddressesoratleastinitially
mentionsallFirstNations'concernswillbuildtrust;
o aProponentshouldworkwithaFirstNationtodesignanEAprocessthat
meaningfullyengagestheFirstNationinallstagesoftheEAprocess;and
o uponinvitation,andafteragreeingtoabidebyacodeofconduct,the
ProponentshouldmaintainapresenceonthelandoftheFirstNationto
buildtrustandacomfortableworkingrelationship.
IfFirstNationsfeelthattheirconcernshavenotbeenaddressedproperlyinthe
EAprocess,theyshouldfeelfreetopresenttheirdissentingopiniontothe
relevantMinisters;
thereisstrengthinnumbersanditmaybeusefulforFirstNations,whose
overlappingterritoriesincludeaProjectarea,tocooperateintheirparticipation
inEAprocessesandinthecommunicationofcommonpositions;
theworkoftechnicalorlegaladvisorsshouldbeguidedbycontractual
agreementsthatspecifydutiesandmethodsofcommunication;
advisorsareexpectedtobuildprofessionalrelationshipswithFirstNationsbased
onhonestyandtrust,inpartbyspendingtimetobecomeknowledgeableabout
thecommunitieswithwhichtheyareworking;
itmightbeusefulforaFirstNationenteringintoitsfirstEAprocesstoget
recommendationsfromotherFirstNationswithEAexperienceaboutsuitable
technicaladvisors;
externaladvisorsmustbepreventedfrompushingtheirownagendas;
toprepareforparticipationinanEAprocess,aFirstNationmaywishtodevelopa
legalstrategythatincludesthefollowingaspects:
o determinetheroleoflawyersandthepointatwhichtheiradviceis
needed;
Page A6
o ideally,lawyersshouldbestaffmembersofalandplanningortreaty
negotiatingoffice.Suchlongtermrelationshipscanbuildtrust;
o lawyerswhoareonstaffshouldkeepinformedaboutrecentcaselawin
respectofaboriginalrightsandtitle;and
o theroleofexternallawyersshouldideallyberestrictedtothedraftingof
complexcontractsbetweenaProponentandaFirstNation,(e.g.,impact
benefit,revenuesharingorlongtermmonitoringagreements).
SomesuggestionspertainingtotheFirstNationreviewoftheApplicationforanEA
Certificateweremadeduringtheinterviews:
theEAApplicationshouldinitiallybereviewedquicklybyFirstNationstodecide
whetherexternalexpertiseisrequiredtoconductafulldetailedreview;
theEAApplicationshouldbemeasuredagainsttheparameterslaidoutinanyFirst
Nationpolicyorguidelines,includingLandUsePlans;
theBCMinistryofEnvironmentprovidesgoodinformationonnonmigratoryfish
andsteelheadaswellasonwildlife.Thisinformationmaybevaluablein
evaluatingpotentialimpactsofaproposedprojectonfishandwildlife;and
itishelpfultobuildawellorganizedandeasilyaccessiblelibraryofallinformation
gatheredinanEAprocess.
A2.6 TheEAProcess
CommentsandobservationsmadeduringtheinterviewsabouttheEAprocessitselfare
presentedbelowunderseveralsubheadings.
A2.6.1 GeneralProcessIssuesandScoping
AcommonissueraisedintheinterviewswastheneedforFirstNationstobe
meaningfullyinvolvedinearlystagesoftheEAprocess,indevelopingtheSection11
OrderandindevelopingtheTermsofReferenceforanEA.Thiswasconsidered
necessaryinordertoensurethatFirstNationvalueswereadequatelyintegratedintoand
consideredintheEAprocess.Specificpointsraisedintheinterviewsincludedthe
following:
EAApplicationsneedtobecomemoreProjectspecific,andnotfollowthecookie
cutterapproachthatiscurrentlyused;
EAApplicationsaretoolong;theyshouldberestrictedto200pages;
EAApplicationsshouldnotprovidetheleveloftechnicaldetailnecessaryfor
permitting;theEAApplicationisaplanninganddecisionmakingtool,nota
permittingtool;
instead,theEAApplicationshouldfocusonthemostimportantpotentialProject
impactsandhowtomitigateorcompensateforthem;
Page A7
FirstNationsneedtoparticipateinscopingearlyintheEAprocesstoensurethat
theirvaluesareproperlyconsideredintheEA;
spiritualandculturalvaluesshouldbeconsideredinthescopingprocessalong
withvaluedecosystemandvaluedsocioeconomiccomponents;
nobaselinestudiesshouldbecarriedoutbeforetheTermsofReferenceforthe
wholeEAreporthavebeendevelopedincollaborationwithFirstNations;and
justlikeallotherdocumentsthatneedtobereviewedbyFirstNations,theTerms
ofReferenceshouldbespecifictothelocalconditionsandwrittenineasily
understandableEnglishratherthancutandpastedfromatemplate.
A2.6.2 TraditionalKnowledgeandTraditionalUseStudies
Manyintervieweesemphasizedtheneedtousetraditionalknowledge,alongwith
westernscience,inEAs.Morespecifically:
traditionalknowledgeandusestudiesneedtobefundedbyBCand/orCanadaas
partofEAs;and
moreefficiently,territorywidetraditionalknowledgeandusestudiescouldbe
doneoutsidetheEAprocesstoinformfutureEAprocesses.
A2.6.3 BaselineStudies
ThefollowingcommentsorobservationsweremadeinrelationtotheneedforFirst
Nationinvolvementinthebaselineinvestigationsthatarecommonlydonetoinformand
supporttheEAApplication:
baselinestudiesshouldbeconductedfollowingconsultationwithFirstNations
andnotbeforeFirstNationshavebeenengagedintoconsultationasisthe
currentpractice;
FirstNationmembersshouldbepartofthebaselinestudiesteam;
allresultsfrombaselinestudiesshouldbeimmediatelyreportedtoFirstNations;
theresultsfrombaselinestudiesshouldbepresentedinshort,easily
understandablesummariestoFirstNations;
mostbaselinestudiesshouldincludefieldinvestigations,andnotrelytotallyon
existinginformation;and
thedesignofbaselinestudiesshouldbediscussedwithFirstNationsandgenerally
bebrokenupintotwoseasonstoallowforfeedbackbetweenthetwofield
seasonstoaddressinformationgapsorotherwisetorefocusstudiesas
necessary.
A2.6.4 Social,EconomicandCulturalAssessment
Social,economicandculturaleffectsaresometimesconsideredasenvironmental
effectswhenthetermenvironmentalisbeingusedinitsbroadsense.However,these
typesofeffectswarrantsomedifferentconsiderationsthanthetypesofeffectsonthe
ecologicalaspectsoftheenvironment.
Page A8
Interviewparticipantsadvancedthefollowingcommentsandsuggestionsinregardto
social,economicandculturalassessment:
ideally,social,economic,andculturalassessmentshouldbecarriedasbaseline
studiesinconcertwithFirstNationsLandUseplanningoutsideoftheEAprocess,
sothatgoalsandobjectivescanbeformulatedtoinformsubsequentEAs;
fundingfortheexecutionofbaselinesocial,economic,andculturalassessments
ofallFirstNationsinBCshouldbeprovidedbytheBCgovernment;
thesebaselineassessmentsshouldpresentthecurrentandthedesiredsocial,
economic,andculturalstatesofaFirstNation;
thesebaselineassessmentswillprovideaProponentwithanunderstandingofthe
social,economic,andculturalconditionsandgoalsofaFirstNationwhen
consideringaProjectfortheFirstNationsterritory;and
theexistenceofbaselinesocial,economic,andculturalassessmentswillhelpto
expeditetheEAprocessandallowforabetterunderstandingbetweenFirst
Nationsandproponents.
Someconsiderationsregardingculturalassessment,pertinenttothisstudy,aresuggested
inanarticleentitledCulturalResourceManagementandEAonReserve:AWetsuweten
CaseStudy 23 :
effectsofaProjectonculturalaspectsoftheenvironmentneedtobeexaminedas
carefullyaseffectsonthenaturalandgeophysicalaspectsoftheenvironment;
anyEAthatisconductedonReserveshouldincludeamandatoryand
comprehensivearchaeologicalimpactassessment;
termsofreference,scopingorotherEAguidancedocumentsmustbeconsidered
thestartingpointfordevelopmentonreservelands;
archaeologistsneedtobecomemoreinvolvedintheenvironmentalimpact
assessmentprocess;
becauseindigenouspopulationshavebeenmarginalized,theyrequireincreased
culturalsensitivityindealingwithculturalresources;
naturalandculturalresourcemanagementmustbeintegratedequallyduringthe
EAprocesstoallowforbetterinformedandholisticinterpretationsofimpactsto
reservelands;and
forpurposesofcommunityconsultation,thetermcommunityneedstobe
definedandmadeinclusiveofthehereditaryaspectofmanycommunities.
A2.6.5 SignificanceofResidualEffects
Itwasclearfromtheinterviewsthatthecriteriausedtodeterminethesignificanceof
adverseenvironmentalimpactswerenotalwaysclearlyunderstoodorparticularly
meaningfultoFirstNations,asindicatedbythefollowingcomments:
thecriteriaforassessingthesignificanceofanimpactneedtobeclearly
documentedinanApplication;
23
International Association for Impact Assessment BC Chapter, Vol. 1, Issue 2, 2005, p. 2
Page A9
FirstNationswouldliketheopportunitytodotheirownevaluationofsignificance
basedontheirowncriteria;and
theBCEAActneedstobeamendedbyasustainabilitytest,thatsetsoutspecific
criteriatomeasuresustainabilityforallhighlyvaluedecological,socialandcultural
componentsthatmaybeaffectedbyaproject.
A2.6.6 CumulativeEffectsAssessment
Thefollowingpointsweremadeintheinterviewsinrespecttocumulativeeffects
assessment(CEA):
CEAaspracticedaspartofBCEA,isinadequate;
CEAdoesnottakeintoaccountpastdisturbanceofthelandthathasleft,insome
cases,onlysmallfractionsofterritoriesavailableforculturalactivitiessuchas
subsistencehuntingandfishing;
CEAsshouldconsiderallproposedfutureprojectsanddeducttheareapotentially
impactedbyfuturedevelopmentsfromtheareaoflandavailablefor
development;
CEAsshouldbeconductedinclosecollaborationwithFirstNationstoconsiderall
ofthesmallchangesthathavebeencausedbypastdevelopmentandthatare
commonlyonlynoticedbylocallandusers;
oralevidenceofpastimpactsneedstobefullyacceptedintheassessmentof
cumulativeeffectsaspertheDelgamuukwvs.Canada,1997 24 decision;
oralevidenceortraditionalknowledge(TK),whensupportedbywesternscientific
data,couldprovideeffectiveinputforCEA;
sustainability,asafeaturethatCEA,mustnotonlytakeintoaccountquantitative
ecologicalmeasures(e.g.,wildlifepopulationsize),butmustalsoconsiderother
moreculturallyrelatedmeasures(e.g.,wildlifecontaminantlevels);
CEAcouldbemademoremeaningfulifatrustfundwereputinplacetoallow
mitigationofforeseeablecumulativeadverseimpactsfromanumberofProjects;
asanexample,suchfundingcouldbeusedtocleanuphydrocarbon
contaminationinaharbourusedbyoiltankerstoloadordeliveroil;
onceathresholdareaoflandhasbeendisturbed,newdevelopmentshouldonly
occuronceotherProjectshavebeencompletelyremediatedandareaoutofthe
disturbedlandaccounthasbeenfreedup;and
periodicregionalenvironmentalassessmentsofalldevelopmentfordefined
regionsareneededtoproviderealisticevaluationsofcumulativeeffects.This
shouldbeafunctionofgovernments(ratherthanProponents).
A2.6.7 InternalFirstNationDecisionMaking
WithrecognitionthatdifferentFirstNationswillhavedifferentpracticesandapproaches
tointernaldecisionmaking,somesuggestionsweremadeintheinterviewprocessinthis
regard:
24
http://csc.lexum.umontreal.ca/en/1997/1997rcs3-1010/1997rcs3-1010.html
Page A10
goodinternalcommunicationchannelsshouldbeestablished;
regularcommunitymeetingsarenecessary;
allEAinformationshouldbeprovidedinplain,nontechnicallanguage;
effortshouldbemadetoinviteandtransportelderstomeetings;
eldersandotherdecisionmakersshouldvisitthesiteofaproposedProjectto
refreshtheirmemoriesoftraditionalusewhilestandingontheland;
thereshouldbesufficientfundingtoensuretheparticipationofallFirstNation
decisionmakersintheEAdecisionmakingprocess;and
aproponentshouldalwaysallowaFirstNationtomakedecisionsinacomfortable
environmentinitsterritory,withouttheProponentbeingpresent.
A2.6.8 MonitoringandFollowUp
Intervieweesmadeanumberofobservationsandsuggestionsinrespecttomonitoring
andfollowup:
theinvolvementofFirstNationsinProjectandreclamationmonitoringshouldbe
describedintheEAApplication;
aFirstNationsinvolvementinmonitoringshouldbenegotiatedandformalizedin
acontractbytheFirstNationandtheProponentbeforeanEACertificateisissued
totheProponent;
aproponentthatfundsandencouragestheparticipationofFirstNationmembers
inthemonitoringofallProjectactivitiesonthelandwillbemetwithlesssuspicion
andwillachieveabetterworkingrelationshipwiththeFirstNation;
ifirregularitiesaredetected,FirstNationsmonitorsshouldbeabletotrigger
auditsbytheresponsiblegovernmentauthorities;
governmentauthoritiesthatarecontactedbyFirstNationstocarryoutaudits
shoulddosowithinareasonabletimeframeandwithoutwarningtothe
Proponent;
fundingforFirstNationsmonitoringpositionsshouldbeprovidedbyproponents;
whetherthemonitoringpositionsarefulltimeorparttimeshouldbedependent
onthesizeandmonitoringrequirementsofaProject;
FirstNationsmonitorsshouldberetaineduntilallreclamationrequirementshave
beenfulfilled;and
FirstNationsshouldmakeuseofprogramssuchastheNationalFirstNations
EnvironmentalContaminantsProgram 25 (initiatedbytheAssemblyofFirstNations
andtheEnvironmentalResearchDivisionoftheFirstNationandInuitHealth
Branch,HealthCanada)toassistinmonitoringspecificProjecteffects.
A2.6.9 MitigationofUnanticipatedAdverseImpacts
Intheinterviews,participantsexpressedconcernaboutthepotentialforfuture
environmentalimpactswhentheProponentisnolongerinplacetomitigatethese
25
http://www.afn.ca/cmslib/general/fund.pdf
Page A11
impacts.Inadditiontothebondingmechanismcurrentlyinplacetodealwithfuture
minerelatedenvironmentalissues,someintervieweessuggestedthat:
amoregeneralRemediationFundbeestablishedandheldintrusttomitigate
futureadverseimpactsfromProjects.DuringtheEAprocess,andbeforeanEA
Certificatewasgranted,theParties,includingFirstNations,wouldnegotiatethe
amounttobecontributedtotheRemediationFundbasedonthenatureandsize
oftheProjectandthelikelihoodofitresultinginseriousenvironmentaleffects
afterclosureordecommissioning.
A2.6.10
FinancialCapacityforParticipationInEA
MeaningfulparticipationofaFirstNationthroughallstagesofatypicalBCEAO
environmentalassessmentiscostly,andmostFirstNationsinBCarenotregularlyfunded
toparticipateinConsultationprocessesaboutlandandresourcematters.Inthe
interviews,severalobservationsweremadeaboutfundingforFirstNationstoallowtheir
meaningfulengagementinEAreviews:
afeeforservicesystemcouldbeestablishedbyFirstNations,inwhichlabour
costsplusexpenseswouldbebilledtoBCEAO.BCEAOcouldthenrecoverthese
costsfromtheProponentand/orCEAA;
anEAfundingagreementcouldbenegotiatedbetweentheFirstNationand
BCEAOthatwoulddefinethetermsoftheFirstNationsparticipationintheEA;
policyisneededtoformalizetheprincipleinwhichtheProponentisresponsible
fortheofcostofFirstNationparticipationintheEAprocess;
thecontributionoftheProponentforFirstNationparticipationshouldreflectthe
size,potentialimpactandcomplexityoftheproposedproject;
FirstNationsEAparticipationfundsforaProjectcouldbepaidbyeachproponent
intoatrustfundthatisunderthecontrolofanindependentorganizationorthe
BCEAO.ThisorganizationwouldhavetheresponsibilityofflowingfundingtoFirst
Nations,establishinganarm'slengthrelationshipbetweenaproponentandthe
FirstNation;
fundingforFirstNationparticipationinanEAshouldneverbethoughttoimply
approvaloftheProject;aFirstNationwillmakeitsdecisionontheacceptabilityof
theProjectbasedonresultsoftheEAandotherconsiderations;
fundingthatallowedformeaningfulcontributionofFirstNationstocomplexEA
processesinthepastwasintheorderof$300,000$600,000;
EAparticipationagreementsshouldnotbecombinedwitheconomicagreements;
tolowercostsforFirstNationsunderthecurrentlowfundingapproachtakenby
theBCEAO,mostprojectmeetingsshouldbeheldinoneofthecommunitiesof
theparticipatingFirstNations;and
theprovisionofadequatefundingforFirstNationparticipationinanEAreview
willresultinamoreefficientandtimelyreviewprocess.
Page A12
A2.6.11
CapacityBuilding
Duringtheinterviews,thefollowingcommentsandsuggestionswereadvancedinrespect
ofcapacitybuilding:
needtodevelopEAcapacityinallFirstNationsorestablishandadequatelyfunda
technicaladvisorygroup(suchasFNEATWG)trustedbyFirstNationsthatcanhelp
FirstNationscommunitieswithlittleEAcapacitytocontroltheprocessintheir
territory;
capacitydevelopmentisalongtermgoal.Postsecondaryeducationisonewayto
buildEAcapacity,anotherandoftenmorerealisticapproachmaybethe
involvementofcommunitymembersintheEAprocess,initiallyunderthe
guidanceofaninternalorexternalEApractitionerandlaterindependently.
Experienceisjustasvaluableassecondaryeducationandcanoftenbegained
withoutleavinghomeandfamilyinaculturallycomfortableenvironment;
agoodfirststeptocapacitybuildingistheinvolvementofthecommunityinthe
landuseplanningprocessinadvanceofEAparticipation;
inthemeantime,theBCEAOneedstoproperlyfundFirstNationstoparticipatein
EAreviewssothattheycanhiretheprofessionalexpertisetheyrequireontheir
ownterms;
FirstNationsshouldmakeitarequirementforconsultantstosharetheir
knowledgeoftheEAprocessinfacetofacemeetingsandworkshopstobuild
practicalknowledge;
NorthernLightsCollege,NorthwestCommunityCollegeandUniversityof
NorthernBChaveinthepastprovidedgoodpreparatorycoursesaboutmining
andotherindustrialsectors;itishopedtheywillcontinuetodosointhefuture;
FirstNationsarelikelytobesupportiveofProjectsthat:1)areenvironmentally
sustainable;and2)canprovideemploymentfortheirmembership.Awelltrained
andeducatedmembershipthatislocallyavailableforhireisattractiveto
Proponents,andcanservetoattractothereconomicdevelopment;
basicscienceandmathskillsarenecessaryforeffectivereviewofEAs,andshould
begivenmoreemphasisinschoolswithhighpercentagesofaboriginalstudents;
specificcoursesshouldbeofferedtoprepareFirstNations'memberstoengagein
theEAprocess.ExampleswouldbecoursesonGISandotherdatabases,andthe
draftingofagreements;and
highschoolstudentsshouldbeintroducedtoFirstNationsNaturalResource
departmentsthroughsummerstudentprograms.Oncetalentedandmotivated
studentshavebeenidentifiedtheyshouldreceivescholarshipstoencouragethem
topursuepostsecondaryeducation.
Page A13
A3. SUMMARYOFINTERVIEWSONNONEAISSUES
Duringtheinterviews,participantsoftenmadecommentsorsuggestionsonissuesthat
arenotdirectlyrelatedtoEA,butthatnonethelesshaveabearingonthewayEAis
practicedorthewayinwhichFirstNationsareinvolvedinEAinBritishColumbia.These
commentsandsuggestionsaresummarizedunderseveraltopicheadingsinthefollowing
sections.
A3.1 AboriginalRightsandTitle
Astrengthofclaimanalysisisoftenusedbygovernmentstodeterminethedegreeof
ConsultationwithFirstNationsthatisrequiredinrespectoflandandresourcematters,
includingproposeddevelopmentprojects.Inrespectofthis,twosuggestionswere
advancedduringtheinterviewsthatarenotspecificallyEArelated:
provestrongtitletoallclaimedlandtoprovideastrongervoiceinfutureEA
processes;and
inviteneighbouringFirstNationstoalsoaffirmtheirtitletotheirlandsand
negotiateandresolveoverlapissues.
A3.2 SuggestedChangesinLegislationotherthantheEAAct
Section5(1)oftheMetalMiningEffluentRegulation(MMER) 26 undertheFisheriesAct
states:
DespiteSection4,theowneroroperatorofaminemaydepositorpermitthe
depositofwasterockoraneffluentthatcontainsanyconcentrationofa
deleterioussubstanceandthatisofanypHintoatailingsimpoundmentareathat
iseither
(a)awaterorplacesetoutinSchedule2;or
(b)adisposalareathatisconfinedbyanthropogenicornaturalstructures
orbyboth,otherthanadisposalareathatis,orispartof,anaturalwater
bodythatisfrequentedbyfish.
ItwasclearfromthissectionoftheregulationthattheintentofMMERistodiscourage
andlimitthedepositionofminewasteinnaturalfishbearingwaters,asindicatedbythe
fairlyonerousproceduretopermitsuchuse,i.e.revisingtheRegulationtolistthe
proposedwaterbodyunderSchedule2ofMMER.
26
Metal Mining Effluent Regulations, SOR/2002-222, Canada Gazette Part II, Vol. 136, No. 13 as amended
by Regulations Amending the Metal Mining Effluent Regulations, SOR/2006-239, Canada Gazette Part II,
Vol. 140, No. 21.
Page A14
Someinterviewparticipantsfeltthat:
theMMERoftheFisheriesActshouldbeamendedtoremovetheabilityto
designateanaturalwaterbodyasatailingsimpoundmentbylistingitinSchedule
2oftheMMER.
A3.3 DevelopmentTypesPresentlyExcludedfromEA
Severalparticipantsintheinterviewsexpressedconcernsaboutdevelopmenttypesthat
arepresentlyexcludedfromtheEAprocess,specificallytimberharvestingandoilandgas
development.Bothofthesedevelopmenttypesresultinmassiveimpactsonthe
landscapeandnaturalecosystems,andtotheabilityofFirstNationstopractice
traditionaluseactivitieswithintheirterritories.
SeveralintervieweesfeltthattheForestandRangePracticesAct 27 ,underwhichforestry
iscurrentlyregulated,givesprioritytotimbersupplyoverenvironmentalprotectionand
doesnotproperlyconsiderthecumulativeeffectsoftimberharvestingactivities.
Intervieweesmadethefollowingspecificcommentsinrelationtoforestrydevelopment:
BCshouldcertifytheloggingindustrythroughanEAorasimilarprocessthat
involvesmeaningfulConsultationwithFirstNations;
cumulativeimpactassessmentsoverthewholerangeofecosystemsthatmaybe
connectedtoalargenumberofcutblocksshouldbeconducted;
asintheEAprocess,pastandfuturelogginginanareashouldbeconsideredto
assessthecumulativeimpacts;
ifecosystemscannotberestoredtotheiroriginalstate,mitigationand
compensationmeasuresshouldbethesubjectofmeaningfulnegotiationswith
FirstNations;and
thewholevarietyofspeciesandecosystemsdisturbedthroughloggingshouldbe
consideredinreforestationandotherrestorationactivities.Currentlytraditional
medicinalorfoodplantsarenotconsideredinsilviculturalplans.
Similarly,someintervieweesfeltthatthecumulativeeffectsofoilandgasdevelopment
werenotbeingproperlyaccountedforinthecurrentOilandGasCommissionregulatory
regime.
A3.4 ImpactsofPreEAProjects
Concernwasexpressedbytheintervieweesinrelationtotheeffectsofmany
developmentprojects,particularlyminingprojectsthatwereeitherinitiatedor
completedbeforethe1995enactmentoftheBCEAAct.Someintervieweesfeltthat:
theenvironmentalimpactsoftheseprojectsshouldberemediatedbeforenew
projectsinthesameareaareconsidered;and
27
http://www.for.gov.bc.ca/tasb/legsregs/frpa/frparegs/forplanprac/fppr.htm#section47
Page A15
inmanycasesenvironmentalimpactmonitoringofthesepreEAprocessprojects
needstobefundedtodetermineappropriateremedialactions.
TheseactionswouldhelptobuildtrustwithFirstNations,particularlyintheir
considerationofnewdevelopmentprojects.
A3.5 LandUsePlanning
AlthoughnotpartoftheEAprocess,landuseplanningcanprovidetargetsandobjectives
againstwhichthesignificanceofProjectimpactscanbeassessed.MostFirstNationsEA
practitionersfeltthattheprovincialLandandResourceManagementPlanning(LRMP)
processdidnotconsiderFirstNationsrightsandtitleadequately,andthattheresulting
plansarethereforenotsuitableforuseinEAevaluations.Thefollowingsuggestionsand
commentswereadvancedbyintervieweeswithrespecttolanduseplanning:
aFirstNationsledlanduseplanningprocessisneededtoproperlyaddressand
incorporatecharacteristicsofaboriginalrightsandtitleasdefinedbycurrentcase
law(seeKrehbiel 28 2008);
thislanduseplanningshouldbefundedbytheprovincialandfederal
governments(andpossiblyrecoveredfromindustrythroughrevenuetaxation);
FirstNationsLandUsePlanswillhelpto:1)createthecertaintythatattracts
investment;2)avoidlitigation,and3)achieveefficienciesintheEAprocess;
intheFirstNationsLandUsePlans,territoryspecificareasoflandtomaintain
naturalprocessesandtraditionalactivitiesofculturalvalueshouldbeidentified
forallFirstNationsterritoriesinBC;
thedevelopmentofaFirstNationLandUsePlanshouldutilizebothtraditional
knowledgeandwesternsciencebasedinformation,andshouldbebasedon
clearlydefinedpriorities;
baselinestudieswouldbecarriedouttogeoreferencehighlyvaluedcultural
activityandotherimportantareas;
GIStechnologyshouldbeusedtoarchive,analyse,andmapinformationgathered
inthebaselinestudies;accesstoGISinformationneedstoberestrictedtoprevent
releaseofsensitiveinformationanditspossiblemisuse;
TheLandUsePlanningprocessneedstofirstidentifyalltitleholders(e.g.,
hereditaryHouseChiefs)andtheculturalinterestswithintheirterritories(often
Houseterritories).Examplesofculturalinterestsarediversebutofteninclude
fishing,trapping,huntingandgathering.Thelocationsofthesepastorpresent
activitiescanformthebonesofaFirstNationsLandUsePlan;
protectionplansforculturallyimportantareasshouldbedevelopedaspartofthe
overallLandUsePlan;
28
Krehbiel,Richard(2008.TheChangingLegalLandscapeforAboriginalLandUsePlanninginCanada.Plan
CanadaSummer2008onlinesupplement:
http://www.cipicu.ca/web/la/en/fi/8f77899f36324883af9833224dfbfcf0/get_file.asp
Page A16
protectionplanswillalsoidentifyvaluedwildlifespecieshabitat,fishbearingand
fishingstreamsandgatheringareas;theseareascouldprovidedirectionfor
baselinestudiesaspartoffutureEAprocesses;
TheLandUsePlanwillalsoidentifycorridorstoconnecthighlyvaluedareasofand
prescribewhichkindoflanduseswillbeallowedinthesecorridors;
aspartoftheprotectionplans,areasofhighpriorityforprotectionwillbeset
asideasspecialmanagementareas;someoftheseareasmaybedesignatedas
beingofflimitfromanykindofindustrialdevelopment;
WaterManagementAreasshouldalsobeaddressedinFirstNationLandUsePlans
toprotectwaterqualityandusesfromthecumulativeeffectsofvarioustypesof
development;
aFirstNationsLandUsePlanshouldalsoidentifyareaswherepastdevelopment
hasresultedinunacceptableenvironmentalimpacts;and
atleastuntiltreatiesarenegotiated,FirstNationsLandUsePlansneedtobe
recognizedashigherlevelplanningtoolsbytheprovincialandfederal
governments.
A3.6 InterimAccessAgreements
Someinterviewparticipantssuggestedtheuseofaninterimaccessagreementtolay
outunderstandingsbetweenaProponentandaFirstNationwhentheProponentfirst
contemplatesaProjectwithintheFirstNationssterritory.Suchanagreementcanhelp
toprovideclarityandestablishtrustbetweenaFirstNationandaProponentandthusset
atoneofmutualrespectasagoodbaseforsubsequentcollaborations.Ingeneral,an
interimaccessagreementcansetoutthetermsandconditionsfortheProponent's
activitiesintheFirstNationsterritory.
Inthecaseofaminingproject,theagreementshouldideallybemadebeforestakingor
anyexploratoryactivityhastakenplace.Theagreementwouldthensetoutthetermsfor
mineralstaking,exploration,andwhathappensinthesubsequentstagesofdevelopinga
property.TheagreementshouldalsostatetheProponentscommitments,shouldthe
ProjectadvancefromtheexplorationtotheProjectdevelopmentstage,to:1)provide
fundingfortheFirstNationtoparticipateintheEAprocess;2)implementenvironmental
protectionmeasures;and3)provideeconomicbenefitstotheFirstNation.
Thefollowinglistisprovidedasanexampleoftheelementsorunderstandingsthatcould
beformalizedinaninterimaccessagreementformineralexplorationonaFirstNations
territory:
theProponentisaguestontheterritory;
aFirstNationhastherighttorefuseentrytoanyorpartsofitsterritory;itisvery
importantthataProponentrespectthisandbehaveaccordingly;
assurancesthataFirstNationwillbeproperlyinformedaboutallrelevantaspects
oftheproject;
Page A17
amechanismthatprovidesfortoplevelcommunicationbetweenthePartiesas
necessary,alongwithamechanismtoresolveanydisputes;
commitmentsthattheProponentwillrespecttheinterestsoftheFirstNation
whileconductingthework;
commitmentthattheProponentwillpayforFirstNationsengagementinthe
negotiationoftheAgreementand,ifrequestedbytheFirstNation,willadvancea
sizeablepaymenttowardsthesecosts;
commitmentthattheFirstNationwilllayoutitsapproachtoworkingwiththe
Proponent,andwillaccountforallfundsreceivedfromtheProponentand
expendedinrelationtotheProject;
a'withoutprejudice'clausethatmakesitclearthatthesigningoftheaccess
agreementdoesnotprejudicetheFirstNationsabilitytoultimatelysayNoto
Projectdevelopmentafterdueconsiderationofenvironmentaleffectsandother
matters;
acommitmentfromtheProponenttosatisfyanyspecificenvironmental
protectionormonitoringconditionsdesiredornegotiatedbyaFirstNation;
acommitmentbytheProponenttoadheretoBestPracticesoftheindustrywith
respecttoenvironmentalprotection,tocomplywithexistingenvironmentallaws
andregulations,andtoproperlyexecutethetermsoftheagreement;
acommitmentbytheProponenttoprovideresourcesrequiredbytheFNtofulfill
anyobligationsetoutintheagreement,andtoconducttheworknecessaryto
reviewandunderstandtheenvironmentalandcommunityimplicationsofthe
proposedactivity;
acommitmentbytheProponenttoallocatethefundsnecessarytoeffectively
implementitsobligationsundertheagreement;and
acommitmentbytheProponent,andamechanism,tonegotiatelongertermand
morecomprehensiveagreementsintheeventthatadvanceddevelopmentwork
and/orcommercialproductionbecomesarealityattheendoftheinitial
explorationperiod.
A3.7 OnlineMineralClaimStakingandOilandGasLandSales
AllFirstNationsEApractitionersinterviewedfeltstronglythattheBConlinemineral
stakingsystemcalledMineralTitlesOnline 29 unfairlycreatesthirdpartyrightsonFirst
NationterritorieswithoutanyConsultationwithaffectedFirstNations,andshouldbe
replacedbyasystemthatrequiresconsentfromanaffectedFirstNation.Manyinterview
partnersalsofelttheneedtotesttheexistingsysteminthecourtsforitsinfringementof
FirstNationsrightsandtitlewithoutConsultation.Thesameistruefortheminingandoil
andgasindustrieslandsaleprocessesinwhichthirdpartyrightsarecreatedwithout
adequateConsultationwithFirstNations.
29
http://www.mtonline.gov.bc.ca/
Page A18
Thefollowingrecommendationsweremadebyinterviewees:
beforemineralstakingisdone,FirstNationsmustbeconsulted;
FirstNationsrightsandtitleshouldberespected,includingtherighttoreject
stakingorexploratoryactivityontheirterritories;
stakingwiththeconsentofaFirstNationwillbethestarttoarespectful
professionalrelationshipbetweenaProponentandaFirstNation;and
seekingtheconsentofaffectedFirstNationstostakingorexploratoryactivitywill
allowaProponenttojudgethelevelofFirstNationsupportfortheproposed
Project.
Manyintervieweesvoicedtheconcernthatexplorationhasbecomeabigindustrythatin
manycasesisdetachedfromtheactualminingofaresource.Theexploratoryactivity
exposesresourcesthatarethenofferedtothehighestbidder.Whiletheminingindustry
mustundergoafullEAtheexplorationindustrydoesnot.Theexplorationandmining
industriesshouldberegulatedbythesameEAprocessandberegulatedtobeequally
responsivetoFirstNations'concerns.
A3.8 ReferralsandPermitting
OnceaProjectreceivesitsEnvironmentalAssessmentCertificate,itmustthenapplyfor
theappropriatepermitsfromtheregulatoryagencies.Whilesomeamountoffundingis
nowgenerallyavailableforparticipationofFirstNationsinEAprocesses,suchfundingis
notcommonlyavailabletomeaningfullyparticipateinthepermittingprocess.
Duringtheinterviews,itwassuggestedthat:
fundingtoFirstNationsneedstobeprovidedforthepermitting,monitoringand
remediationphasesofeachproject.Aswithallotherfundingarrangements,
detailsofthistypeofparticipationfundingshouldbeformalizedinwritten
agreements.
A3.9 BenefitSharingAgreements
Whilevarioustypesofeconomicorbenefitsharingagreementsmightbenegotiated
betweenaProponentandaFirstNationwhileanEAinrespectoftheProponentsProject
isinprogress,thesetypesofagreementsarenotpartoftheEAprocess.TheBCEAO
FairnessandServiceCodestates:
TheEAOencouragesproponentstoexplorebenefitsharingagreementswithFirst
Nationswherethepartiesconsiderthattobeintheirmutualinterest.TheEAOwill
consideranyinformationitreceivesregardingsuchagreementswhenassessing
theimpactsofaproposedproject.However,suchagreementsarenotconsidered
preconditionstothecompletionofthereviewprocessortoadecisionby
ministers.
Page A19
Participantsintheinterviewprocessmadethefollowingobservations;
aFirstNationeconomicdevelopmententityshouldhavetheresponsibilityfor
negotiatingeconomicarrangementswithaProponent;
insuchnegotiations,theFirstNationeconomicdevelopmententityshouldbe
guidedbyastrictsetofrulessetoutbyFirstNationleadershiporitsBoardof
Directorsifapplicable;
ifnotalreadydoneaspartofgeneralpolicydevelopment,aFirstNationmaywish
toconsultcommunitymembersabouthowrevenuefromaneconomicagreement
inrespectofaspecificProjectwillbeadministeredandused;
aFirstNationcommunityandleadershipmaywishtoconsiderusingsomeofthe
revenuefromeconomicagreementstobuildothereconomicventures,for
instancethepurchaseofmachineryinaconstructioncompany;
appropriateexpertiseshouldbeusedtodraftlegallysoundeconomicagreements
tothecontractstonegotiatefromalegallysoundbasis;
economicagreementsneedtodraftedtosurvivechangesinProponentoverthe
lifetimeofaproject,aswellaschangesintheFirstNationsgovernment;
jointventureagreements,inwhichtheFirstNationhasanequitystakeinthe
Project,shouldbeconsideredasonetypeofeconomicarrangementbetweena
ProponentandaFirstNation.Thistypeofarrangementmaypermitmore
involvementofFirstNationpersonnelinthedaytodayactivitiesanddecision
makingofthejointventure,andmayhelptobuildcapacityandconfidencein
respectofbusinessenterprises;
whenapplicable,economicagreementsshouldgivetheFirstNationtherightof
firstrefusaltobidoncontractsinrespectofaProject,wheretheFirstNationhas
demonstratedithastheabilitytosatisfytherequirementsofthecontract;and
successfulengagementinsucheconomicventures,andappropriateutilizationof
revenuegainedfromtheeconomicventures,canassistaFirstNationin
diversifyingitseconomy,helpingtoavoidboomandbustcycles.
Page A20
APPENDIXB
CASESTUDIES
by
ElmarPlate andRickKrehbiel2
LGLLimited
environmentalresearchassociates
and
2
UniversityofNorthernBritishColumbia
B1. NAMGISFIRSTNATIONANDPOLARISMINERALS:ORCA
SAND&GRAVEL;SETTINGASTANDARDFORAMEANINGFULEA
COLLABORATION
B1.1 BackgroundFacts
NamgisMembershipandLocation:TheNamgisFirstNationconsistsofapproximately
750Namgiscitizensonreserveand500offreserve.TheNamgisreservesandthe
traditionalandclaimedterritoriesarelocatedinthevicinityofAlertBayonCormorant
IslandacrossfromPortMcNeilonthenortheastcoastofVancouverIsland(seefollowing
Map).
MapoflocationofAlertBay(redarrow)onCormorantIslandandtheOrcaQuarry3.8kmwestofPort
McNeill(Source:SuperNaturalBCwebsite)
NamgisInternalEACapacity:6Namgisstaffmembersparttime;2administrative
persons,1financialperson,1professionalforester,1fisheriescoordinator,1treaty
negotiator:ContactPersonforthisspecificEAProcess:GarryUllstrom
ExternalEACapacity,hiredforthespecificEAProcess:1lawyer,1EAprocess
consultantpaidforbytheproponent
ProponentSizeandHeadquarterLocation:PolarisMineralsCorporation,Vancouver,BC,
ContactPersonforthisspecificEAProcess:MarcoRomeroCEO,MikeWesterlund
WhatmakesthisEAProcessspecial?TheopenmindednessoftheNamgisFirstNation
wasmetwiththepersonalinterestoftheCEOoftheproponentcompanytopatiently
listen,learn,consult,mitigateandcompensate.TheNamgisFirstNationbecamea12%
partnerintheOrcaSandandGravelEnterprise.
Appendix B - Case Studies
Page B1
B1.2 RecentHistoryoftheNamgisFirstNation
Manydetailsaboutthiscasestudywerereportedina2008CentreforIndigenous
EnvironmentalResources(CIER)report,whichbeattheauthorsofthisreporttoshowcase
theOrcaSandandGravelEAasstandardsetting.Theauthorsofthisreportconfirmed
withtwoNamgisEATeammembersthattheCIER(2008)reportadequatelyrepresented
theOrcaSandandGravelEAprocessanditwasrecommendedtousetheinformation
unchangedforthisreport.
OrcaQuarrylocated3.8kmwestofPortMcNeillontheNorthwestCoastofVancouverIsland.
Page B2
TheNamgisterritoryiscomprisedofCormorantIsland,severalothersmallislandsand
extendsontoVancouverIslandincludingthemouthoftheNimpkishRiver.TheNamgis
havebeensuccessfulindevelopingthesocialinfrastructureoftheircommunityoverthe
past20years.ThesmallcommunityofAlertBayhasitsownschool,ahealthcentre,a
dentalcentreandmanyculturalgatheringpoints.AspartoftheBCtreatyprocess,
NamgisFirstNationisdevelopingabioregionalatlasandalanduseplanforitsterritory.
B1.3 ProjectDetails
TheORCAsandandgravelprojectconsistsofagravelmine,processingplant,andmarine
shiploadingterminal(seefigureabove).Theprocessingplantandstockpilesare
connectedviaa1.7kmconveyorbeltsystemwiththeshiploaderfacility.Thequarrycan
produceupto6.6MilliontonesofsandandgravelperyearmainlyfortheCalifornia
market.ThequarryislocatedinthevicinityofthesalmonbearingCluxeweRiverand
Abalonerearingsitesintheocean.
B1.4 EAProcessOverview
TheenvironmentalassessmentoftheprojectofficiallycommencedonAug.10,2004with
thecomprehensivestudyacceptedonNov.10,2005.TheEAprocesswasharmonized
betweentheBCEAOandthefederalMinistriesofTransport,DepartmentofFisheriesand
OceansandIndianandNorthernAffairsCanada.
B1.5 FirstNationandProponentInvolvementinEAProcess
PreBCEAOCEAAProcess
AspartoftheB.C.treatyprocesstheNamgisFirstNationestablishedanelevenmember
naturalresourceandeconomicdevelopmentandplanningteambeforetheywere
approachedbyPolarisMinerals.Asaresult,theNamgisFirstNationwasintheprocessof
landuseplanningthatproducedamappingschemetodefineimportantcultural
areasandthosedeemedsuitableforeconomicdevelopmentbeforeanEAprocess.In
addition,EcoTrustCanadaassistedinmarinemonitoringandmappingontheNamgis
territory.Therefore,NamgisFirstNationfeltthattheywerewellpreparedtobecomea
contributortotheEAprocessthatresultedintheOrcaSandandGravelproject.
B1.6 ApproachbytheProponent:DraftinganExplorationAgreementandNegotiating
aVetoRight
Beforetheprojectdesignstageandapproximately3yearsbeforethestartoftheofficial
EAprocess,PolarisMinerals,theproponent,askedtheNamgisFirstNationforpermission
toexploreontheirterritoriesandmanifestedtheirintentionsinthedraftingofan
explorationandaccessagreement.Thisprocessinvolvedtheidentificationandprotection
ofvaluessuchastraditionaluseareas.
Page B3
TheNamgisFirstNationwasalsoensuredthattheywererespectedastheoriginalowners
ofthelandandaccordingly,vetopowerovertheprojectwasgiventotheNamgisFirst
Nationuptotheconceptualstage.Thisrelationshipbuildingprocessalsobuilta
considerableamountoftrust,whichallowedforanopenandrespectfulenvironmental
assessmentprocess(CIER2008).
B1.7 BCEAOCEAAProcessStage
Communication
Communityinvolvementwasamajorcomponentofthisenvironmentalassessment
process.ThediscussionoftheNamgisFirstNationsvisionofsustainabilityfortheregion
wasdiscussedinpublicmeetingswherethemembershipwasabletoexpresstheir
concerns(e.g.fishandfishhabitathealth,impactstoriverandgroundwater).Polaris
Mineralsrespondedbypresentingpossiblemitigationmeasuresandstudyresultsin
responseatsubsequentmeetingsintheNamgislonghouse.Communicationwasclear,
transparent,andavailable.Plainlanguagepresentationsweregiven,andtranslations
weremadeintothelocallanguage(CIER2008).
TermsorReference
TheNamgisFirstNationwasinvolvedindraftingtheTermsofReferencefortheEA
processandreport.Inaddition,theNamgisFirstNationhadasayinthechoiceEA
consultantsandproposeditsownmitigationmeasuresfortheproject(CIER2008).
CapacityBuilding
NamgisdevelopedaninternalEAteamsupplementedwithspecialistswhoprovided
criticalexpertisetheNamgisdidnotpossess.Theclosecollaborationbetweeninternal
andhiredcapacitykeptthecontroloftheEAprocesswithintheNamgisterritoryand
ensuredtheconstantincorporationofindigenousvalues.TheNamgisFirstNationalso
receivedfundingfromtheproponenttoundertakeatraditionalusestudyspecifictothe
proposedOrcaSandandGravelarea.ThehiredEAprocessconsultantoversawthe
hiringofsubconsultantsandspecialistsforpeerreviewofallEAprocessesand
documents(CIER2008).
B1.8 ImpactBenefitAgreement
AspartoftheImpactBenefitAgreement,50%ofallpositionsinthequarrywereoffered
toFirstNationsemployeesfollowingacomprehensivetrainingprogramthatcovered
betweenthreetofiveyears.ThetrainingwascofundedbyPolarisMineralsandthe
NamgisFirstNation.AjointPersonnelCommitteewasestablishedtooverseeallhiring
(CIER2008).
Page B4
B1.9 PostBCEAOCEAAStage
Monitoring
TheNamgisFirstNationreceivedfundingforanongoingmonitoringprogramtoassess
potentialchangesinsalmonspawningandabalonehabitatinprojectadjacentcreeksand
reefs.Namgisnegotiatedtheoptionofslowingorstoppingproductionduringcritical
ecosystemperiods,suchasthesalmonspawningrun,ifeffectsweredetected.All
concernsaboutperceivedandprojectrelatedchangesinthemonitoredecosystemsare
broughttotheattentionoftheOrcaSandandGravelboardofdirectors,whichincludes
NamgisFirstNationmemberGeorgeSpeck.
TheprojectalsoparticipatesintheGlobalReportingInitiative 30 thatsetsinternational
standardsforthetransparencyofreportingontheeconomic,environmental,andsocial
performanceoftheproject(CIER2008).
DecommissioningandReclamation
SitereclamationwasthoroughlyplannedbytheNamgisFirstNationandPolarisMinerals.
ItwasmadetheChairmanoftheBoardsresponsibilitytoensurereclamationis
completedtothesatisfactionofallpartiesinvolved.Thechairmanoftheboardisa
hereditaryNamgischief.Examplesforspecialreclamationprovisionsarethestorageand
reuseoftheoriginalsoilsfoundintheareaandprogressivereclamationthroughoutthe
lifetimeofthequarry.
B1.10 AssessmentofInvolvementofNamgisFirstNation
TheORCASandandGravelProjectsetsastandardformeaningfulparticipationofa
FirstNationinanenvironmentalassessmentprocess.Italsoshowsthatmeaningful
participationisdesirablenotonlyforaFirstNationbutalsotheproponentandthe
regulatoryagencies.TheEAprocesswasprecededbyathreeyearrelationshipbuilding
exercisebetweentheNamgisFirstNationandPolarisMinerals.Thisprocesswasnot
guidedbyanyregulatoryagency.ThecompletionoftheEAprocesswasswiftand
mutuallysupported.
B1.11 ExamplesofBestEAPracticesintheOrcaSandandGravelCaseStudy
ThefollowingBestPracticesfortheinvolvementofFirstNationsintotheEAprocesscan
bederivedfromthiscasestudy:
Aabalone,harlequinduckandsalmonareexamplesofspeciesthatwere
identifiedasculturallysignificanttotheNamgisFirstNation;
toprotectthesesspecies,extensivestudiesfundedbyPolarisMineralsandcarried
outbytheNamgisFirstNationwereundertaken;
MarcoRomero,theCEOofPolarisMineralsdevelopedapersonalinterestinthe
studiestopreservethespeciesofculturalsignificance;
30
http://www.globalreporting.org/AboutGRI/WhatWeDo/
Page B5
NamgisFirstNationEAparticipantspointedoutthatthedirectcollaboration
betweenPolarisMineralsandNamgiskepttheinvolvementofregulatoryagencies
minimal.Thusfrustrationsbornoutthelackoffundingcomingfromregulatory
agenciesorthepushingoftheprocessintopredeterminedshapedidnotplaya
roleinthisEA.Flexibilityintheapproachtoproblemsolvingandthesettingof
standardsthatsupersededthestandardssetbyregulatoryagenciesmadethisEA
processsiteandpeoplespecificandledtoaperceptionofproceduralfairnessand
respect;
theinvolvementoftheNamgisandtheirchosenconsultantsintothedraftingof
theTermsofReferencefortheEAprocessautomaticallymadetheEAprocess
culturallyappropriatebyincludinglocalcommunityvalues;
theNamgisFirstNationchosethescopeandmethodoftheirparticipation
throughouttheEAprocess;
thenegotiationsoutsideoftheEAprocessdirectlyledthenegotiationofa12%
Namgisownership,arevenuesharingagreementandthetrainingand
employmentofmanyNamgiscitizens;and
indirectly,thefundsthatbecomeavailabletotheNamgisthroughthese
arrangementswillalsoleadtoeconomicdiversificationofthecommunityand
overalleconomicempowerment.
B2
KEMESSNORTH:AMININGEAWITHNEGATIVEOUTCOME
B2.1 FirstNationinvolved
Theprojectreviewinvolvedfouraboriginalgroupswhoassertedrightsintheproject
area:TseyKehDene,TaklaLake,Kwadacha,andtheGitxsanHouseofNiiKyap.InAprilof
2006thefirstthreegroupsseparatedandwerethereaftercollectivelyreferredtoasthe
TseKehNay.Theybecamethefocusofaboriginalparticipationandoppositiontothe
projectandreceivedstrongsupportfromtheFirstNationsSummit,theCarrierSekani
TribalCouncilandotherFirstNationsintheregion.Furtheroppositioncamefromthe
nonaboriginalenvironmentalcommunity,includingMiningWatchCanadaandtheDavid
SuzukiFoundation.TheFirstNationswerealsosupportedbyvariousresearchefforts
fromstudentsattheUniversityofNorthernBritishColumbia.
B2.2 ProjectProponentandProjectDescription
NorthgateMineralsCorporationoperatesanexistinggoldandcopperminewhichis
projectedtocloseinlate2008.Themineislocated250kmnortheastofSmithersand450
kmnorthwestofPrinceGeorge.Northgateproposedtoconstruct,operateand
decommissionasecondmine,knownasKemessNorthapproximatelysixkmnorthofthe
existingmine.Theprojectincludeddevelopmentofanewopenpit,modificationofthe
existingmill,andrelatedinfrastructure.Itwouldresultinmillingcapacityattheoperating
Page B6
Kemessminebeingincreasedfromthecurrent55,000tonnesperdaytoupto120,000
tonnesperday.
B2.3 EAHistory
FisheriesandOceansCanadaannouncedonJune1,2004thataharmonized
comprehensivestudywouldbeinitiated.Theprojectwasreferredtoajointfederal
provincialreviewpanelonMarch14,2005attheMinistersrequest,supportedbythe
MinistersofTransportandNaturalResourcesCanada.Thejointpanelwasappointedon
May19,2005andsubmitteditsfinalreporttothefederalandprovincialenvironment
ministersonSeptember17,2007recommendingthattheprojectnotproceed.
B2.4 DescriptionofapproachbyandtoFirstNations
Duetodisagreementswiththefederalandprovincialgovernmentsabout
accommodationandconsultation,decisionmaking,thedevelopmentofanappropriate
parallelforumforconsultationandaccommodationonpotentialinfringementsof
Aboriginalrightsandtitle,andparticipantfunding,theTseKehNayparticipatedonly
intermittentlyandunderprotestintheenvironmentalassessmentprocess.
AboriginaloppositiontotheprojectcametofocusprimarilyonAmazay(alsoknownas
Duncan)Lake,whichwouldhavebeenusedforacidrockandtailingsstorageifthe
projecthadproceeded.Thevaluedecosystemcomponentsattributedtothelakeand
surroundingareaincludedfisheriesandwildlifevalues,waterquality,riskofdamfailure,
andeffectsonarchaeologicalandtraditionalusesites.Althoughtheweightattachedto
eachvariedbetweenthemembersofTseKehNay,astrongculturalandspiritual
connectionthatwascommontoallranthroughouttheseecosystemcomponents.
Althoughtherewereinitialimpactbenefitnegotiations,relationswiththeproponent
werepubliclyverystrained,andcontinuedtodeteriorateaftertheassessmentwas
complete.
B2.5 Outcome
InitsFinalJointReviewPanelReport:KemessNorthCopperGoldMineProject 31 theJoint
Panelmade33recommendations,number31ofwhichwasthattheprojectnotproceed
asproposed.InthePanelsview,theeconomicandsocialbenefitsprovidedbythe
Project,onbalance,areoutweighedbytherisksofsignificantadverseenvironmental,
socialandculturaleffects,someofwhichmaynotemergeuntilmanyyearsaftermining
operationscease.CanadaandBritishColumbiaacceptedtherecommendationonMarch
7,2008bywhichtimetheproponenthadalsorenouncedtheproject.
31
(http://www.ceaa-acee.gc.ca/050/documents_staticpost/cearref_3394/24441E.pdf )
Page B7
TheremainingPanelrecommendationswouldhaveappliedhadtheprojectbeen
approved.Ofthesethefollowingfouraredirectedataboriginalfollowupandtheprocess
itselfandmaythusbecastasBestPractices.
Recommendation#14:ThePanelrecommendsthat,iftheProjectisapproved,
Aboriginalgroupsbeconsultedinthefinaldesignofthefisheriescompensation
program.
Recommendation#30:ThePanelbelievesthatthereisapossibilityoflocating
morearchaeologicalevidencethroughfurthersurvey,includingpossiblyhuman
burialsites.IftheProjectisapproved,thePanelrecommendsthatadditional
archaeologicalsurveyworkbeimplementedpriortoProjectconstruction.
Recommendation#32:IftheProjectdoesproceed,substantiveeffortsshouldbe
madetofosteraworkingrelationshipbetweentheProponent,governmentand
potentiallyaffectedAboriginalgroups.ThePanelbelievesthatthisapproach
wouldincreaseopportunitiesfortheProjecttoprovideconsiderablymore
benefitstoAboriginalpeoplethantheyarelikelytorealizewithoutsuchaworking
relationship.
Recommendation#33:ThePanelbelievesthat,shouldtheProjectbeapproved,a
detailedandintegratedlongtermmonitoringplan,withbuiltinadaptive
managementmeasures,wouldbestmeetthelongtermpostclosure
managementneedsoftheProjectsite.ThePanelenvisagesanintegratedlong
termmonitoringandmaintenanceinitiativewhichaddresses:1)waterquality;2)
hydrologyandhydrogeology,includingseepageunderthedam;3)damandpit
slopestability;4)fisheriescompensation,includingfishtransplants;5),thenew
postclosureImpoundmentecosystem;and6)terrestrialwildlifemonitoring.
OneoftheUniversityofNorthernBritishColumbiastudies 32 undertakeninvolveda
masterscandidateexaminationofperceptionsofriskonthepartoftwooftheaboriginal
participantswithrespecttotheproposedproject.Numerousindividualinterviewswith
TseyKehDeneandTaklaLakemembersexaminedthepropositionthattheirperceptions
ofriskintheprojectwerebasedonculturalcharacteristics.Flowingfromthis
fundamentallyimportantcharacterizationofabasictaskinenvironmentalassessment,
thesuggestedBestPracticeisthat:
Riskassessmentandriskmanagementdecisionsinenvironmentalassessment
musttakeintoaccounttheculturebasedperceptionsofthosepotentially
affectedbytherisks.
32
Place, Jessica (2007). Expanding the Mine, Killing a Lake: A Case Study of First Nations Environmental
Values, Perceptions of Risk and Health: University of Northern British Columbia, Geography Department,
2007
Page B8
B3
MCKENZIEVALLEYPIPELINE
B3.1 ProjectDescription
TheMackenzieGasProject(MGP)wouldinvolvetheconstructionandoperationofthree
naturalgasfieldsintheMackenziedeltaincludingassociatedcollectionandprocessing
facilities.TheMcKenzieValleyPipelineprojectisaproposed1220kilometrenaturalgas
pipelinesystemalongtheMackenzieValleythatwoulddistributethegastoNorth
AmericanmarketsthroughaterminusinnorthernAlberta.Thestartdateforproduction
ismostrecentlyestimatedtobe2014.
Theentireprojectisexpectedtocostapproximately$16.2billion,withthepipelineitself
representingslightlylessthanhalfofthatinvestment.
B3.2 FirstNationInvolved
[NotethatthetermFirstNationisnotgenerallyusedoracceptedbyaboriginalpeoples
innorthernCanada]
TheprojectinvolvedaboriginalgroupsthatlivealongtheMackenzieValleyandin
adjacentregionsaffectedbytheproposedpipeline.TheseincludetheDehCho,Sahtu,
Gwichin,Inuvialuit,Akaitcho,Dogrib,SaltRiver,NorthSlaveMetisAlliance,SouthSlave
MetisAllianceandDeneThaFirstNation.Theseparticipatedvariouslyasproponents,
governmentsandopponentsasdetailedbelow.
B3.3 ProjectProponent
FourmajorCanadianoilandgascompaniesandagrouprepresentingtheaboriginal
peoplesofCanadasNorthwestTerritoriesarepartnersintheproposedMackenzieGas
Project.TheoilandgascompaniesareImperialOil,ShellCanada,ConocoPhilipsand
ExxonMobil.
TheAboriginalPipelineGroup(APG)wascreatedasabusinessin2000withaformal
resolutionthatexpressedthegoalstomaximizetheownershipandbenefitsinthe
MackenzieValleynaturalgaspipelineandtosupportgreaterindependenceandself
relianceamongAboriginalpeople.Tworelatedorganizationswereformedtoimplement
theagreement.
ThefirstwasaLimitedPartnershipstructuredtoholdtheAPGsfinancialinterestinthe
MackenzieValleyPipeline.Thepartnershipisownedprimarilybyorganizationsunderthe
directionoftheDehCho,Sahtu,GwichinandInuvialuitwithothersettlementareas
eligibletoparticipateatthediscretionoftheseprimaryowners.
Page B9
Thesecondorganizationwasanincorporationoftheindividualaboriginalpartnersasthe
generalpartnerinthelimitedpartnership.ThisMackenzieValleyAboriginalPipeline
CorporationenteredintoaMemorandumofUnderstandingwiththefourproducing
companiesinOctober2001,andinJune2003,becameafullparticipantintheProject
followingfundingandparticipationagreementsbetweenthefourproducers,theAPGand
TransCanadaPipeLinesLimited.
B3.4 DescriptionofApproachbyandtoFirstNations
Theapproachtoparticipationandenvironmentalassessmentparalleledtheapproachto
thebusinessopportunityanddependedheavilyonaboriginaljurisdictionundertreaties
andlandclaimsagreements.
TheAboriginalPipelineGroupwouldownthirtyfourpercent(34%)ofthePipeline.Gas
producerswouldpaytousethepipelineandanyprofitsremainingafterrepaying
financingandoperatingcostswouldbepaidasdividendstobeusedasdecidedbythe
peoplewhocompriseeachaboriginalgroup.Aneightpercentshareintheownershipof
thepipelinehasbeensetasideforotheraboriginalgroupslivingintheNorthwest
Territories.ThefinancialplanfortheMackenzieGasProjectformspartoftheNational
EnergyBoardapprovalprocess.
Theauthoritiesinvolvedintheenvironmentalassessmentandregulationoftheproposed
projectincludeIndianandNorthernAffairsCanada,theCanadianEnvironmental
AssessmentAgency,theNationalEnergyBoard,theMackenzieValleyEnvironmental
ImpactReviewBoard,theMackenzieValleyLandandWaterBoard,theGwichinLandand
WaterBoard,theSahtuLandandWaterBoard,theInuvialuitLandAdministrationOffice
andtheInuvialuitGameCouncil.TheDehChoFirstNationandtheGovernmentsofthe
YukonandNorthwestTerritorieshadobserverstatus.
TheseauthoritiesenteredintoaCooperationPlanin2002andaRegulatorsAgreementin
2004tocoordinatetheenvironmentalandregulatoryprocesses.Theenvironmental
assessmentwasconductedbyaJointReviewPanelappointedbytheMinisterof
EnvironmentCanada,theGwichin,Sahtu,DehChoandInuvialuit.Thepanelbegan
hearingsinFebruary2006andexpectstoconcludein2009.
Inthespringof2007,theDehChocalledonthegovernmentofCanadatoapprovethe
band'slanduseplanwhichproposedtosetaside60%ofitslandsasconservationareas
andopentherestfordevelopment.Canadadeclined,butdidagreetovarytheprocess,
whichcontinues.
In2006theDeneThaFirstNationreceivedajudgmentintheFederalCourtofCanada
challengingthefederalgovernmentsconsultationprocessregardingimpactsonDene
ThaterritoriesinnorthernAlbertaandtheNorthwestTerritories.InresponseMr.Tim
Page B10
ChristianwasappointedasChiefConsultationOfficertoaddressestheDeneTha'
concerns 33 .
TheGovernmentofCanadaalsoestablisheda$500millionMackenzieGasProject(MGP)
trustfundin2005.Thefundwouldprovideresourcesoveratenyearperiodtomanage
andmitigatesocioeconomicimpactsanticipatedtoresultfromthe(MGP),
B3.5 BestPractices
Theprojectiscurrentlystalledbyeconomicandindustrialrelationsconsiderations
outsidethecontroloftheaboriginalparticipants.TheJointReviewPanelexpectsto
completeitsenvironmentalassessmentin2009andtheNationalEnergyBoardwill
thereaftermakemajorregulatoryapprovaldecisions.Untiltheprojectultimately
proceedsorfails,itisdifficulttoconfirmBestPractices.However,asthisisthefirsttime
thatAboriginalgroupsinCanadaareinapositiontoparticipateasanownerinamajor,
multibilliondollarindustrialproject,itisclearlypossibletosuggestthatFirstNations
actinginconcertthroughformalizedbusinessalliancescanachievethepotentialfor
meaningfulsustainableeconomicdevelopmentintheirterritories.
Lookingtothepast,itisalsointerestingtoreflectonthefactthatapreviousversionof
thisprojectwasthesubjectofapublicinquirybyMr.JusticeThomasBergerin1977 34 .
Aboriginalpeoplethroughoutthestudyareaatthattimetookthefirmposition,which
Mr.JusticeBergerreflectedinthereport,thatdevelopmentshouldnotoccuruntilland
claimshadbeensettled.Thiswasessentiallycompletedintheperiodbeforethecurrent
projectwasadvanced.Secondly,theBergerprocessislargelycreditedwithformingthe
impetusfordevelopmentofafederalenvironmentalassessmentprocessinCanada.
Lookingtothefuture,itisimportanttonotethatEnbridgeInc.issuggestingthesame
modelmaybeavailabletotheapproximately51FirstNationswithterritoriesonthe
routeoftheirproposed1,150kmpipelinefromtheoilfieldsnearEdmontonAlbertato
KitimatBritishColumbia.
B4
INTERNATIONALBESTPRACTICESGUIDELINESFORTHE
INVOLVEMENTOFABORIGINALPEOPLESINTOTHEEAPROCESS
EnvironmentalAssessmenthasbecomeaninternationallyacceptedpolicyinstrument
thatisnecessaryforsustainabledevelopment.TheCanadianandBritishColumbia
processesarehighlyrespectedinternationally,butthatisnottosaythatwecannotlearn
33
([2007]1C.N.L.R.1(F.C.T.D.))
Berger, Thomas R. (1977)Northern Frontier, Northern Homeland - The Report of the MacKenzie Valley
Pipeline Inquiry
34
Page B11
from,orbereinforcedby,theworkandexperienceofothernationsandinternational
bodies.Followingareselectreferencesfromthevastinternationalresourcesavailable.
B4.1 ISO14000
Agenerallyapplicableandflexibleenvironmentalassessmentprogramwasdevelopedby
theInternationalStandardsOrganization.TheISO14000seriesofinternational
managementsystemstandardsprovidesguidanceonhowtomanagetheenvironmental
impactsofactivities,productsandservices.However,asthestandardsareapplicableonly
inthoseparticularcircumstances,theycanbestbeconsideredonthatbasiswhen
applicable.
B4.2 InternationalAssociationforImpactAssessment(IAIA)
IAIAisthepremierinternationalorganizationinthefieldofenvironmentalassessment.Its
globalguidelinesprojectleadtoidentificationofthefollowingsetsofbasicandoperating
principlesofenvironmentalassessmentBestPractices 35 .
B4.2.1 IAIAPrinciplesofEnvironmentalAssessmentBestPractices
BasicPrinciples
EnvironmentalImpactAssessmentshouldbe:
Purposivetheprocessshouldinformdecisionmakingandresultinappropriatelevelsof
environmentalprotectionandcommunitywellbeing.
Rigoroustheprocessshouldapplybestpracticablescience,employingmethodologies
andtechniquesappropriatetoaddresstheproblemsbeinginvestigated.
Practicaltheprocessshouldresultininformationandoutputswhichassistwithproblem
solvingandareacceptabletoandabletobeimplementedbyproponents.
Relevanttheprocessshouldprovidesufficient,reliableandusableinformationfor
developmentplanninganddecisionmaking.
CostEffectivetheprocessshouldachievetheobjectivesofEIAwithinthelimitsof
availableinformation,time,resourcesandmethodology.
Efficienttheprocessshouldimposetheminimumcostburdensintermsoftimeand
financeonproponentsandparticipantsconsistentwithmeetingacceptedrequirements
andobjectivesofEIA.
Focusedtheprocessshouldconcentrateonsignificantenvironmentaleffectsandkey
issues;i.e.,themattersthatneedtobetakenintoaccountinmakingdecisions.
35
SencalPetal.Principlesofenvironmentalimpactassessmentbestpractice.Fargo,NorthDakota,
InternationalAssociationforImpactAssessmentandInstituteofEnvironmentalAssessment,1999.
http://www.iaia.org/Members/Publications/Guidelines_Principles/Principles%20of%20IA.PDF
Page B12
Adaptivetheprocessshouldbeadjustedtotherealities,issuesandcircumstancesofthe
proposalsunderreviewwithoutcompromisingtheintegrityoftheprocess,andbe
iterative,incorporatinglessonslearnedthroughouttheproposal'slifecycle.
Participativetheprocessshouldprovideappropriateopportunitiestoinformand
involvetheinterestedandaffectedpublics,andtheirinputsandconcernsshouldbe
addressedexplicitlyinthedocumentationanddecisionmaking.
Interdisciplinarytheprocessshouldensurethattheappropriatetechniquesandexperts
intherelevantbiophysicalandsocioeconomicdisciplinesareemployed,includinguseof
traditionalknowledgeasrelevant.
Credibletheprocessshouldbecarriedoutwithprofessionalism,rigor,fairness,
objectivity,impartialityandbalance,andbesubjecttoindependentchecksand
verification.
Integratedtheprocessshouldaddresstheinterrelationshipsofsocial,economicand
biophysicalaspects.
Transparenttheprocessshouldhaveclear,easilyunderstoodrequirementsforEIA
content;ensurepublicaccesstoinformation;identifythefactorsthataretobetakeninto
accountindecisionmaking;andacknowledgelimitationsanddifficulties.
Systematictheprocessshouldresultinfullconsiderationofallrelevantinformationon
theaffectedenvironment,ofproposedalternativesandtheirimpacts,andofthe
measuresnecessarytomonitorandinvestigateresidualeffects.
OperatingPrinciples
SpecificallytheEIAprocessshouldprovidefor:
ScreeningtodeterminewhetherornotaproposalshouldbesubjecttoEIAand,ifso,at
whatlevelofdetail
Scopingtoidentifytheissuesandimpactsthatarelikelytobeimportantandto
establishtermsofreferenceforEIA
Examinationofalternativestoestablishthepreferredormostenvironmentallysound
andbenignoptionforachievingproposalobjectives
Impactanalysistoidentifyandpredictthelikelyenvironmental,socialandotherrelated
effectsoftheproposal
Mitigationandimpactmanagementtoestablishthemeasuresthatarenecessaryto
avoid,minimizeoroffsetpredictedadverseimpactsand,whereappropriate,to
incorporatetheseintoanenvironmentalmanagementplanorsystem.
Evaluationofsignificancetodeterminetherelativeimportanceandacceptabilityof
residualimpacts(i.e.impactsthatcannotbemitigated)
Preparationofenvironmentalimpactstatement(EIS)orreporttodocumentclearlyand
impartiallyimpactsoftheproposal,theproposedmeasuresformitigation,the
significanceofeffects,andtheconcernsoftheinterestedpublicandthecommunities
affectedbytheproposal.
ReviewoftheEIStodeterminewhetherthereportmeetsitstermsofreference,
providesasatisfactoryassessmentoftheproposal(s)andcontainstheinformation
requiredfordecisionmaking.
Page B13
Decisionmakingtoapproveorrejecttheproposalandtoestablishthetermsand
conditionsforitsimplementation.
Followuptoensurethatthetermsandconditionofapprovalaremet;tomonitorthe
impactsofdevelopmentandtheeffectivenessofmitigationmeasures;tostrengthen
futureEIAapplicationsandmitigationmeasures;and,whererequired,toundertake
environmentalauditandprocessevaluationtooptimizeenvironmentalmanagement.Itis
desirable,wheneverpossible,ifmonitoring,evaluationandmanagementplanindicators
aredesignedsotheyalsocontributetolocal,nationalandglobalmonitoringofthestate
oftheenvironmentandsustainabledevelopment.
B4.2.2 IAIABestPracticePrinciplesforPublicParticipationinEAs
IAIAhasalsoestablishedacomprehensivesetofinternationalBestPracticesprinciplesfor
publicparticipationwhichcaneffectivelybeappliedtoaboriginalcommunities.Asa
generalgoal,everyquestionfromamemberofthecommunityshouldreceiveananswer.
Beyondthat,theIAIABestPracticesoperateatthreelevels:basicprinciples,operating
principlesanddevelopingguidelines.Eachisreproducedbelow:
BasicPrinciples
ContemporarypublicparticipationpracticeinIAshouldbe:
AdaptedtothecontextUnderstandingandappreciatingthesocialinstitutions,values,
andcultureofthecommunitiesintheprojectarea;andrespectingthehistorical,cultural,
environmental,politicalandsocialbackgroundsofthecommunitieswhichareaffectedby
aproposal.
InformativeandproactiveRecognizingthatthepublichasarighttobeinformedearly
andinameaningfulwayinproposalswhichmayaffecttheirlivesorlivelihoods.Increased
interestandmotivationtoparticipateoccurbydiffusingsimpleandunderstandable
informationtotheaffectedandinterestedpublic.
AdaptiveandcommunicativeRecognizingthatthepublicisheterogeneousaccordingto
theirdemographics,knowledge,power,valuesandinterests.Therulesofeffective
communicationamongpeople,intherespectofallindividualsandparties,shouldbe
followed.
InclusiveandequitableEnsuringthatallinterests,includingthosenonrepresentedor
underrepresentedarerespectedregardingthedistributionofimpacts,compensationand
benefits.Theparticipationordefenceoftheinterestsoflessrepresentedgroups
includingindigenouspeoples,women,children,elderlyandpoorpeopleshouldbe
encouraged.Equitybetweenpresentandfuturegenerationsinaperspectiveof
sustainabilityshouldbepromoted.
EducativeContributingtoamutualrespectandunderstandingofallIAstakeholders
withrespecttotheirvalues,interests,rightsandobligations.
CooperativePromotingcooperation,convergenceandconsensusbuildingratherthan
confrontation.Engagingconflictingperspectivesandvaluesaswellastryingtoreacha
Page B14
generalacceptanceoftheproposaltowardadecisionthatpromotesandsupports
sustainabledevelopmentshouldbepursued.
ImputableImprovingtheproposalunderstudy,takingintoaccounttheresultsofthe
publicparticipationprocess;includingreportingandfeedbacktostakeholdersaboutthe
resultsofthepublicparticipationprocess,especiallyhowtheirinputshavecontributedto
decisionmaking.
OperatingPrinciples
WithrespecttotheBasicPrinciplespreviouslyidentified,publicparticipationshouldbe:
InitiatedearlyandsustainedThepublicshouldbeinvolvedearly(beforemajor
decisionsaremade)andregularlyintheIAprocess.Thisbuildstrustamongparticipants,
givesmoretimeforPP,improvescommunityanalysis,improvesscreeningandscopingof
theIA,increasesopportunitiestomodifytheproposalinregardstothecommentsand
opinionsgatheredduringthepublicparticipationprocess,reducestheriskofrumors,and
improvesthepublicimageoftheproponent.Itcanalsogivetheregulatormore
confidenceintheapprovaldecisiontheymustmake.
WellplannedandfocusedonnegotiableissuesAllIAstakeholdersshouldknowthe
aims,rules,organization,procedureandexpectedoutcomesofthepublicparticipation
processundertaken.Thiswillimprovethecredibilityoftheprocessforallinvolved.
Becauseconsensusisnotalwaysfeasible,publicparticipationshouldemphasize
understandingandrespectforthevaluesandinterestsofparticipants,andfocuson
negotiableissuesrelevanttodecisionmaking.
SupportivetoparticipantsThepublicshouldbesupportedintheirwilltoparticipate
throughanadequatediffusionofinformationontheproposalandonthepublic
participationprocess,andajustandequitableaccesstofundingorfinancialassistance.
Capacitybuilding,facilitationandassistanceshouldalsobeprovidedparticularlyfor
groupswhodonthavethecapacitytoparticipateandinregionswherethereisno
cultureofpublicparticipation,orwherelocalculturemayinhibitpublicparticipation.
TieredandoptimizedApublicparticipationprogramshouldoccuratthemost
appropriatelevelofdecisionmaking(e.g.,atthepolicy,plan,programorprojectlevel)
foraproposal.Thepublicshouldbeinvitedtoparticipateregularly,withemphasison
appropriatetimeforinvolvement.Becausepublicparticipationisresourceconsuming
(human,financial,time)foralltheIAstakeholders,publicparticipationoptimizationin
timeandspacewillensuremorewillingparticipation.
OpenandtransparentPeoplewhoareaffectedbyaproposalandareinterestedin
participating,whatevertheirethnicorigin,genderandincome,shouldhaveaccesstoall
relevantinformation.Thisinformationshouldbeaccessibletolaypersonsrequiredforthe
evaluationofaproposal(e.g.,termsofreference,reportandsummary).Laypersons
shouldbeabletoparticipateinrelevantworkshops,meetingsandhearingsrelatedtothe
IAprocess.Informationandfacilitationforsuchparticipationshouldbeprovided.
ContextorientedBecausemanycommunitieshavetheirownformalandinformalrules
forpublicaccesstoresources,conflictresolutionandgovernance,publicparticipation
shouldbeadaptedtothesocialorganizationoftheimpactedcommunities,includingthe
Page B15
cultural,social,economicandpoliticaldimensions.Thisshowsrespectfortheaffected
communityandmayimprovepublicconfidenceoftheprocessanditsoutcomes.
CredibleandrigorousPublicparticipationshouldadheretoestablishedethics,
professionalbehaviorandmoralobligations.Facilitationofpublicparticipationbya
neutralfacilitatorinitsformalortraditionalsenseimprovesimpartialityoftheprocessas
wellasjusticeandequityintherighttoinformation.Italsoincreasestheconfidenceof
thepublictoexpresstheiropinionsandalsotoreducetensions,theriskofconflicts
amongparticipants,andopportunitiesforcorruption.Inaformalcontext,theadoptionof
acodeofethicsisencouraged.
DevelopingGuidelines
Forimprovingtheoutcomesofpublicparticipation,allactorsshouldactivelypromote:
Accesstousefulandrelevantinformationforthepublic.Evenifinformationisactually
generallyavailable,itmightneedsomeimprovementtobeusefultolaypersons,ormore
focusedandrelevanttothedecisionmakingprocess.
Highlevelinvolvementandparticipationindecisionmaking;
Creativewaystoinvolvepeople.
Accesstojusticeandequity.
Page B16
APPENDIXC
ENVIRONMENTALASSESSMENT
INTHECOMMONLAW
by
RickKrehbiel
UniversityofNorthernBritishColumbia
C1
ENVIRONMENTALASSESSMENTINTHECOMMONLAW
C1.1 MeaningofCommonLaw
Commonlawreferstothepartofourlegalsystemthatoriginatesinthejudgmentsof
thevariouscourtsinCanada.Theothercomponentisthestatutelawwhichrefersto
thelawsenactedbyelectedgovernmentrepresentatives.Inenvironmentalassessment,
asinotherareasofregulatedconduct,thereisanongoinginteractionbetweenthetwo.
C1.2 CommonLawinEnvironmentalAssessment
EnvironmentalassessmentisarelativelynewfeatureinCanadianstatutelawbutithas
alreadyfoundedasubstantialbodyofcommonlaw.Forexample,theSupremeCourtof
CanadadecisioninFriendsoftheOldmanRiverSocietyv.Canada(MinisterofTransport)
([1992]1S.C.R.3),whichinvolvedseveralaboriginalorganizationsasinterveners,iswidely
creditedwithleadingdirectlytotheformalizationoffederalenvironmentalassessment
responsibilitiesintheCanadianEnvironmentalAssessmentAct.
Theprimarysignificanceofthecommonlawtoaboriginalpeopleinthecontextof
environmentalassessmentisinitsevolvingrelationshipwiththedutyoftheCrownunder
statuteandcommonlawtoconsult,andifnecessaryaccommodate,aboriginalpeoples
fortheimpactsofgovernmentdecisionmakingonaboriginalandtreatyrights.Inthe
wordsofChiefJusticeMcLachlinintheageoldtraditionofthecommonlaw,thecourts
willfillinthedetailsoftheduty.
Boththefederalandprovincialenvironmentalassessmentstatuteshavereceived
substantialjudicialconsideration.Agooddealofthisconsiderationhasaddressedfact
specificsituationssuchasadequacyofconsultationinparticularcircumstancesand
remediesofbreachofthedutytoconsult.Assuch,thedecisionsshouldneverberead
toobroadly.However,thischapterattemptstolimititselftoconsiderationofthe
commonlawinsofarasitsetsthecontextforapplicationofBestPracticesin
C1.3 ConsultationandAccommodationRegardingAboriginalandTreatyRights
Thisdiscussionfocusesonconsultationwithinthecontextofenvironmentalassessment,
sowillnotincludeconsiderationofthelegionofcasesthathavegivendefinitionto
consultationgenerally.Neverthelessthecurrentframeworkforanalyzingtheseissuesis
foundinthe2004SupremeCourtofCanadadecisioninHaidaNationv.BritishColumbia
(MinisterofForests)(2004SCC73).Thecoreprinciples,withsubsequentrefinements,
maybesummarizedasfollows:
Thegovernmentsdutytoconsultwithaboriginalpeoplesandaccommodatetheir
interestsisgroundedintheprincipleofthehonouroftheCrown,whichmustbe
PageB1
understoodgenerously.Thisdutymayinsomecircumstancesflowfromafiduciary
obligationrequiringthecrowntoactinthebestinterestsofaFirstNation,butin
circumstancesofunprovenrightsandtitle,thehonouroftheCrownalsorequires
balancingofotherinterests.
ThedutyariseswhentheCrownhasknowledge,realorconstructive,ofthepotential
existenceoftheaboriginalrightortitleandcontemplatesconductthatmight
adverselyaffectit.
Thescopeofthedutyisproportionatetoapreliminaryassessmentofthestrengthof
thecasesupportingtheexistenceoftherightortitle,andtotheseriousnessofthe
potentiallyadverseeffectupontherightortitleclaimed.
TheCrownisnotunderadutytoreachanagreement;rather,thecommitmentistoa
meaningfulprocessofconsultationingoodfaith.
Thecontentofthedutyvarieswiththecircumstancesandeachcasemustbe
approachedindividuallyandflexibly.
Whereaccommodationisrequiredinmakingdecisionsthatmayadverselyaffectas
yetunprovenaboriginalrightsandtitleclaims,theCrownmustbalanceaboriginal
concernsreasonablywiththepotentialimpactofthedecisionontheassertedrightor
titleandwithothersocietalinterests.Theinformationobtainedthroughmeaningful
consultationmayrequiretheCrowntomakechangestoitsproposedaction.
Thedutytoconsultandaccommodateappliestotheprovincialgovernmentaswellas
thefederalgovernment.
ThereisnoobligationonthirdpartiestoconsultoraccommodatebuttheCrownmay
delegateproceduralaspectsofconsultationtoindustryproponentsasisnot
infrequentlydoneinenvironmentalassessments.
Withrespecttotheproceduralaspectsofmeaningfulconsultation,theFederalCourtof
CanadainLeightonv.Canada(MinisterofTransport)(2006FC1129),whichconcerned
consultationaboutexpansionoftheportofPrinceRupert,distilledtheresultsofthe
Haidadecisioninthefollowingterms:
TheprocesssetoutinHaida,supra,inessence,involvesfoursteps:
1.Fulldisclosurebytheaboriginalclaimantssettingout
theirclaimsincludingthescopeandnatureoftherights
assertedandtheallegedinfringementoftheserights;
2.Apreliminaryassessmentofthestrengthofthecase
andtheseriousnessofthepotentiallyadverseeffect
upontheclaimedrightortitlebeconductedbythe
Crown;
3.Meaningfulconsultationbetweentheparties;and
4.Accommodation,ifnecessary.
PageB2
Whilenotallenvironmentalassessmentdecisionshavesurvivedjudicialchallenge,which
usuallycomesintheformofjudicialreview,thecourtshavedefinitivelydefendedthe
provincialandfederalenvironmentalassessmentprocessthemselvesasvehiclesfor
meaningfulconsultation.Selectjudicialdirectioninrespectofeachisdiscussedbelow.
C1.4 ProvincialEnvironmentalAssessmentintheCommonLaw
Thereisasyetrelativelylittlelitigationunderthecurrent2002BCEnvironmental
AssessmentAct.Howeverthefundamentalsremainrelativelyconstantfromtheoriginal
1995act,underwhichthefollowingcasesweredecided.
InTakuRiverTlingitFirstNationv.BritishColumbia(ProjectAssessmentDirector),(2004
SCC74),whichwasreleasedatthesametimeastheHaidadecisiontheSupremeCourtof
Canadaheldthattheprocessengagedinbytheprovinceinrespectoftheenvironmental
assessmentofaminingprojectcontemplatedintheterritoryoftheTakuRiverTlingitFirst
Nationfulfilledtherequirementsoftheprovincesdutytoconsultandaccommodate.The
assessmentprocessincludedtraditionallandusestudiesinthecontextofspecificimpact
ofaproposedminingroadwithmeetings,committees,hearings,preparationofwritten
reportsandextensionsoftimewithintheprocessprovidedbytheEnvironmental
AssessmentAct.
Intheearliestsignificantprovincialdecision,CheslattaCarrierNationvs.BritishColumbia
([1998]3C.N.L.R.1)(theHuckleberrycase)theBCSupremeCourtacceptedthe
legitimacyoftheenvironmentalassessmentprocessasauniqueformofconsultation
andmadeseveraldecisionswhichhavesurvivedinpracticeandthecommonlaw.
Specifically:
AnyFirstNationasdefinedinthestatutemayparticipateintheprocess.(Butforan
interestingdiscussionontheeffectofoverlappingclaims,standingtoparticipateand
conflictofinterests,seeKomoyueHeritageSocietyv.BritishColumbia(AG)2006
BCSC1517whichwasdecidedinthecontextoftheOrcaSandandGravel
development.Andforacircumstancewhereremotenessfromaproposed
developmentdisentitledparticipation,seeCalliouv.BC,VancouverSupremeCourt
RegistryA982279October23,1998).
ItisalegitimateexpectationofFirstNationsunderthestatutetobeconsulted,to
makerepresentationsandtohavetheirrepresentationstakenseriously.
Thecommonlawdutyofconsultationisalwayspresent.Theadditionalobligationin
theenvironmentalassessmentstatuteinnowaylessensthiscommonlawdutybut
ratherfocusesitontheissuesofprojectapproval.
InordertoachievethepurposesofenvironmentalassessmenttheExecutiveDirector
andtheMinistersmusthavesufficientinformationabouttheimpactoftheproject
uponFirstNations,andFirstNationsmusthavesufficientinformationtomakea
reasonableassessmentoftheproject'simpactontheirpeopleandtoadvisethe
PageB3
processastotheimpactontheirlivesandtheirland.Howeverrequestsfor
informationmustnotbeunreasonable.
Consultationisatwowaystreet.AffectedFirstNationscannotcomplainiftheyrefuse
tobeconsultedinaneffectiveforumcreatedingoodfaithandmaynotremainsilent
duringconsultation,inhopesofcomplainingaboutunaddressedconcernsatalater
stageoftheproceedings.
C1.5
FederalEnvironmentalAssessmentintheCommonLaw
Usually,considerationoftheCanadianEnvironmentalAssessmentActhastakenplacein
theFederalCourtofCanadaandtheSupremeCourtofCanada.Asintheprovincial
context,therehavebeenvarioussuccessfulchallengestoparticulardecisionsor
procedures,buttheintegrityoftheprocessitselfhasbeenconstant.
Thus,inLeightonv.Canada(2007FC553)theFederalCourtTrialDivisionfoundthat:the
consultationsaboutAboriginalinterestsintheCEAAprocessareanintegralpartofthe
Crownsobligationstoconsultwithrespecttotheoverall(project)andshouldnotbe
severedfromthatprocess.
Aboriginalconfidenceinthefederalprocesswasevidentinatleastoneinstance,Reecev.
Canada(2007FC550)wheretwoFirstNationspetitionedtheFederalCourttoenforce
CrowncompliancewiththeCanadianEnvironmentalAssessmentActagainsttheMinister
ofWesternEconomicDiversificationinconnectionwithPortofPrinceRupertexpansion.
InMikisewCreeFirstNationv.Canada(MinisterofCanadianHeritage)(2005SCC69)the
SupremeCourtofCanadaconcludedwithrespecttoaproposednationalparkwinter
road:
WherethecontentoftheCrownsdutytoconsultcaseliesatthelowerendofthe
spectrumofobligationsduetominimalimpactstheCrownisrequiredtoprovide
noticetotheFirstNationandtoengagedirectlywiththem.Thisengagementshould
includetheprovisionofinformationabouttheproject,addressingwhattheCrown
knowstobetheaboriginalinterestsandtheanticipatedpotentialadverseimpacton
thoseinterests.
TheCrownsdutytoconsultimposesonitapositiveobligationtoreasonablyensure
thataboriginalpeoplesareprovidedwithallnecessaryinformationinatimelywayso
thattheyhaveanopportunitytoexpresstheirinterestsandconcerns,andtoensure
thattheirrepresentationsareseriouslyconsideredand,whereverpossible,
demonstrablyintegratedintotheproposedplanofaction.Anyconsultationmustbe
undertakenwithgenuineintentiontoaddressaboriginalconcerns.
ThereisareciprocalonusontheFirstNationtomaketheirconcernsknown,to
respondtothegovernmentsattempttomeettheirconcernsandsuggestions,andto
trytoreachsomemutuallysatisfactorysolution.
PageB4
Wherenecessary,theCrownisrequiredtoengagedirectlywiththeaboriginalgroup,
whichmaynotbesatisfiedbyparticipationinageneralpublicconsultationprocess.A
publicforumorpubliccommentprocessisnotasubstituteforformalconsultation.
Althoughthedutytoconsultistriggeredatalowthreshold,adverseimpactisa
matterofdegree,asistheextentoftheCrownsduty.
Regardingthenatureofinformationprovidedbyanaboriginalgroupthatwasattempting
topersuadeacourttoorderenvironmentalassessmentbasedonidentifyingaregulatory
dutyundertheNavigableWatersProtectionAct,vaguestatementswhichweremorein
thenatureofstatementsofprincipleandconclusionsoflawthanofpreciseanduseful
narrativesoffactwerenotacceptedasstatementsofmaterialfactsinHumber
EnvironmentalActionGroupv.Canada(MinisterofFisheriesandOceansCoastGuard)
(2002FCT421).
C1.6 CommonLawLimitsonEnvironmentalAssessmentasaConsultationMechanism
Whileconductofanenvironmentalassessmentmayinsomecircumstancesalso
dischargemutualconsultationobligations,itmustberecognizedthatthiswillnotalways
bethecase.AsoneacademichasnotedthejurisprudenceofAboriginalconsultation
coexistsuneasilywiththestatutorylawofenvironmentalassessmentandregulatory
decisionmaking.(Lambrecht,Kirk:EnvironmentalAssessmentandAboriginal
Consultation:OneSovereigntyorTwoSolitudes?EnvironmentalLaw,TheYearinReview
2007.CanadaLawBook2008,Auroraat73)
Thereasonforthisuneasinessisthatthereisafundamentaldifferencebetweenthegoals
ofconsultationandthegoalsofenvironmentalassessment.Consultationwasfirstput
forwardintheSparrowtestasnothingmorethanoneofthewaystheCrownmight
justifyinfringementofanaboriginalright.Futurejudicialdirectionhascastthiswithinthe
purposeofreconcilingthepreexistinginterestsoftheaboriginalpeoplesofCanadawith
thepresentandfuturesovereigntyoftheCrown,butthefundamentalimbalance
remains.
Onetheotherhand,thepurposeofenvironmentalassessmentistopredictandassess
theenvironmentaleffectsofaproposedprojectoractivitybeforetheproposaliscarried
outandtoincorporateenvironmentalfactorsintodecisionmaking.Inthatrespect,the
playingfieldinenvironmentalassessmentispotentiallyconsiderablymorelevelthan
inthecommonlawofconsultation.
ResponsibilityforassessingtheeffectofconsultationeffortswasbroadenedinFebruary
2009whentheBCCourtofAppealconcludedinKwikwetlemFirstNationv.British
ColumbiaUtilitiesCommission(2009BCCA68)andCarrierSekaniTribalCouncilv.British
Columbia(UtilitiesCommission)(2009BCCA67)thattheUtilitiesCommissionmust
considertheadequacyofaboriginalconsultationandaccommodationwhenitdecides
whethertoapproveenergyprojectswithinitsmandate.TheUtilitiesCommissionhad
PageB5
previouslytakenthepositionthattheBCenvironmentalassessmentprocessprovidedthe
onlyprocessforensuringthattheCrownhadsatisfieditsobligationtoconsult,andif
necessary,accommodateFirstNationsbeforetheprojectcouldproceed.
ThesameissuewasraisedinDeneThalitigationagainsttheMcKenzieValleyPipeline,
wheretheJointReviewPanelruledthatit"doesnothavethejurisdictionormandateto
determinetheadequacyofconsultationbetweentheCrownandFirstNationsinrelation
toFirstNationsrights"(seechapter14.14).
AnotherdifferenceunderthefederalprocessisthatundertheCanadianEnvironmental
AssessmentAct,itisnotnecessarythatthe"currentuseoflandsandresourcesfor
traditionalpurposesbyaboriginalpersons"asprovidedintheactsdefinitionof
environmentaleffectbeconstitutionallyprotectedaboriginalrightsinorderforthose
usestobeassessedundertheAct(InnuNationv.Canada,FederalCourt(TrialDivision)
April16,1997,FileT39397.)Theimplicationisthattheenvironmentalassessment
processisnotaforumfordeterminingtheexistenceofaboriginalortreatyrights.
Considerationofimpactonexistingaboriginallandandresourceusesisamatterof
fairnessundertheCrownsfiduciary(andarguablyhonourable)obligationtoaboriginal
people.Wheretherightisasection35rightSparrowanalysismustbeapplied(Unionof
NovaScotiaIndiansv.Canada(AttorneyGeneralFederalCourt(T.D.)([1997]1F.C.325).
Conclusion
CommonlawdecisionshandeddownbyjudgesatalllevelsofCanadiancourtsprovide
claritytohowstatutoryprocessessuchasenvironmentalassessmentareconductedin
practice.Intherelativelyshortperiodduringwhichfederalandprovincialenvironmental
assessmentstatuteshavecoexistedwithcommonlawaboriginalconsultationand
accommodationobligations,courtshavebeenveryactivelyprovidingsupportand
direction.Overwhelmingly,thefundamentalintegrityofassessmentprocesseshasbeen
recognizedwhilespecificproceduraldetailshavebeenrefinedinvariousways.Any
discussionofBestPracticeswillprofitfromanobjectiveassessmentandimplementation
ofthesejudicialdirections.
PageB6
APPENDIXD
USEFULWEBSITES
ANDOTHERSOURCESOFINFORMATION
D1
USEFULWEBSITESANDOTHERSOURCESOFINFORMATION
1. FirstNationsEnvironmentalAssessmentTechnicalWorkingGroup(FNEATWG),
c/oLisaWebsterGibson,FNEATWGCoordinator,P.:2502470117
a. FNEATWGwebsite:
http://www.fneatwg.org/
b. FNEATWGFirstNationsEnvironmentalAssessmentToolkit:
2. GlobalReportingInitiative:
http://www.globalreporting.org/AboutGRI/WhatWeDo/
3. TheProvincialBritishColumbiaEnvironmentalAssessmentProcess:
a. TheBCEAAct:
b. BCEAAct,ReviewableProjectRegulations:
http://www.qp.gov.bc.ca/statreg/reg/E/EnvAssess/370_2002.htm
4. TheFederalCanadianEnvironmentalAssessmentProcess
a. TheCanadianEAAct:
http://laws.justice.gc.ca/en/c15.2/text.html
b. InclusionListRegulations:
http://laws.justice.gc.ca/en/showdoc/cr/sor94637///en?page=1
c. CumulativeEffectsAssessmentPractitionersGuideFebruary1999
http://www.ceaa.gc.ca/013/0001/0004/index_e.htm
5. CanadaBritishColumbiaAgreementonEnvironmentalAssessmentCooperation:
http://www.eao.gov.bc.ca/pub/canbc_agreement/canbc
agree_mar1104.pdf
6. EnvironmentalAssessmentBestPracticeGuideforWildlifeatRiskinCanada,1st
edition,February27,2004,68pp.
http://www.cwsscf.ec.gc.ca/publications/eval/guide/index_e.cfm
7. TheNisgaaFinalAgreement:
a. EnvironmentalAssessmentSection:
http://www.gov.bc.ca/arr/firstnation/nisgaa/chapters/environmental.html
b. WildlifeSection:
http://www.gov.bc.ca/arr/firstnation/nisgaa/chapters/wildlife.html
c. FisheriesSection:
http://www.gov.bc.ca/arr/firstnation/nisgaa/chapters/fisheries.html
8. CritiqueofthecurrentBCEAprocessauthoredbytheCarrierSekaniTribal
Council:
AppendixDUsefulWebsitesandOtherSourcesofInformation
PageD1
http://www.cstc.bc.ca/downloads/EAO%20Critique.pdf
9. ForestandRangePracticesAct:
http://www.for.gov.bc.ca/tasb/legsregs/frpa/frpa/frpatoc.htm
10. LandUsePlanning:
a. Tobias,T.N.(2000).ChiefKerrysMoose,aguidebooktolanduseand
occupancymapping,researchdesignanddatacollection
http://www.ubcic.bc.ca/files/PDF/Tobias_whole.pdf
11. CourtCases:
a. DelgamuukwversusCanada,1997:
http://csc.lexum.umontreal.ca/en/1997/1997rcs31010/1997rcs3
1010.html
b. HaidaNationversusBritishColumbia(MinisterofForests),2004:
http://csc.lexum.umontreal.ca/en/2004/2004scc73/2004scc73.html
c. TakuRiverTlingitFirstNationversusBritishColumbia,2004
http://csc.lexum.umontreal.ca/en/2004/2004scc74/2004scc74.html
d. Tsilhqot'inNationversusBritishColumbia,2007
http://www.canlii.org/en/bc/bcsc/doc/2007/2007bcsc1700/2007bcsc1700
.html
12. TheNationalFirstNationsEnvironmentalContaminantsProgramalsocalledThe
HealthyLandHealthyFutureProgram:
http://www.afn.ca/cmslib/general/fund.pdf
13. MineralTitlesOnline,BCsonlinestakingsystem:
http://www.mtonline.gov.bc.ca/
14. TheNewRelationshipTrust:
http://www.newrelationshiptrust.ca/
AppendixDUsefulWebsitesandOtherSourcesofInformation
PageD2

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BestPractices

ABBREVIATIONS USED IN REPORT

BC Environmental Assessment Process

Canadian Environmental Assessment Process

BC/Canada Harmonization Agreement

First Nations as a Proponent

RESULTS OF INTERVIEWS AND CASE STUDIES

Summary of Interview Sentiments

Summary of Lessons Learned from Case Studies

PROPOSED BEST PRACTICES FOR FIRST NATION

Aboriginal and Treaty Rights, and Consultation

Restructuring BC Environmental Assessment Oversight

Building and Maintaining Good Working Relationships

First Nation Management of Its Participation in the EA Process

The Environmental Assessment Process

5.5.1 General Process Issues and Scoping

5.5.2 Traditional Knowledge and Traditional Use Studies

5.5.3 Baseline and Other Background Studies

5.5.4 Significance of Residual Effects

5.5.5 Cumulative Effects Assessment

5.5.7 Decision Making

5.5.8 Monitoring and Follow-Up

5.5.9 Remediation of Unanticipated Adverse Impacts

Financial Capacity for Participation in EA

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

International Association for Impact Assessment BC Chapter, Vol. 1, Issue 2, 2005, p. 2

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix A Summary of Information Acquired in Interviews

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

Appendix B - Case Studies

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