Bill S-8 (Historical)

Safe Drinking Water for First Nations Act

An Act respecting the safety of drinking water on First Nation lands

This enactment addresses health and safety issues on reserve lands and certain other lands by providing for regulations to govern drinking water and waste water treatment in First Nations communities. Regulations could be made on a province-by-province basis to mirror existing provincial regulatory regimes, with adaptations to address the circumstances of First Nations living on those lands.

Safe Drinking Water for First Nations Act

[Kirsty Duncan, Liberal, Etobicoke North, ON]

Mr. Speaker, I thank my colleague for his speech. I am responding to his wanting facts.

The United Nations has recognized water and sanitation as a human right. In July 2010, the UN General Assembly overwhelmingly agreed to a resolution declaring it a human right to have safe and clean drinking water and sanitation. The resolution had 122 countries vote in its favour, while 41 countries, including Canada, abstained.

At the time of the resolution, more than 100 boil water advisories were in effect on reserves. For another 49 first nation communities, boiling water did not make the water safe enough for consumption. As of July 2011, there were 126 first nation communities across Canada under drinking water advisories, an increase from 106 communities in 2008.

[Laurie Hawn, Conservative, Edmonton Centre, AB]

Mr. Speaker, I never doubt my colleague's sincerity, but I have to point to the record Canada has achieved since 2006. Over 700 projects have been put in place, and there are more to come. There is $3 billion being spent. We do not need the United Nations to tell us how to do that kind of business.

I will ask, with the greatest respect to my colleague, because she was not here at the time, if it is fair to say that we are doing less than the Liberals talked about. The difference is that we are actually doing something, and we are doing a lot. It is easy to talk. It is tougher to do. We are actually doing something.

[Dan Albas, Conservative, Okanagan—Coquihalla, BC]

Mr. Speaker, one of the things I have heard in the debate today is that with over 600 different first nations, we have non-treaty, treaty, rural and urban areas. This is a wide, encompassing topic. One thing I have heard time and again from members is that the government is collaborating and the approach is on a case-by-case basis.

For example, the Penticton Indian Band has a tremendous opportunity in the Arrowleaf development it wants. It needs water to go ahead with that, among other things. The band may choose to work with the adjacent municipality or may choose to go on its own. It will not be clean water for just the members' own consumption. This will allow them to expand their economic development.

I would appreciate it if the member could highlight some of the other points in relation to better drinking water and more waste water sanitation opportunities, with a focus on economic development and helping on a case-by-case basis.

[Laurie Hawn, Conservative, Edmonton Centre, AB]

Mr. Speaker, I appreciate that question, because it gives me an opportunity to talk about that. We talked about clean water, waste water and so on, and that is critically important. However, there is a longer-term aim here, and that is to help our first nations get educated and trained. They can develop some economic opportunities for themselves in whatever municipality they are in or nearby.

There is nothing to say that they could not take on providing waste water services and clean drinking water for a non-aboriginal, non-first nations community. We want that kind of economic development. We want that kind of participation from our first nations people throughout the country. It is going to be different in Nova Scotia, Alberta and wherever else. That is why it is so important that we collaborate locally, that we do it in good faith and that we do it flexibly and aggressively.

[Carol Hughes, NDP, Algoma—Manitoulin—Kapuskasing, ON]

Mr. Speaker, I will share my time with the member for Manicouagan.

I rise today to speak to Bill S-8. I had the opportunity to speak to this bill last November. I sat on the committee and I must say that the testimony from witnesses only reinforced the NDP's opinion that this is a flawed piece of legislation.

At the heart of this debate is a basic human right: the right to safe, affordable and adequate drinking water. Unfortunately, this is a challenge in many Canadian communities, including several first nations and Inuit communities.

Canada has such an abundance of water that it is hard to imagine that such problems could exist in such a developed country.

While the appropriate course of action is to develop safe, reliable systems in partnership with the communities in need, the Conservative government has chosen to legislate regulations that would force these communities to go it alone. In fact, this legislation seems more about pursuing a Conservative view of how first nations should be run than about dealing with the actual problem. It would create demands and conditions for first nations, yet it is predictably short on the resources that would allow these communities to comply.

Bill S-8 excuses the government from its primary obligations to first nations while subjecting them to substantial risk, significant financial burdens and a patchwork of provincial standards for the delivery of safe drinking water.

This bill fails miserably when it comes to the real challenge, which is helping first nations build the capacity that would allow them to do the work of administering water and waste water systems on their lands. It is a classic case of putting the cart before the horse. In the case of communities that have been consistently asking for assistance for specific problems, they are getting rules and regulations instead of help with bricks and mortar.

The problems we have seen with flooding this spring in Kashechewan help illustrate this point. That community has been asking for help with waste water, which has been identified as problematic, since flooding in 2008. It has asked for assistance in developing storm sewers and with placing back-flow limiters on each house. Guess what? The government has consistently refused to step up, and this spring, homes in that community were inundated with backed-up raw sewage, which then forced the community to be evacuated. The minister tried to blame this on the lack of training, yet it was a company that was actually monitoring this.

On a larger scale, we can consider the testimony the committee heard from a municipal group that included the mayor of Maple Ridge and metro Vancouver's general manager of corporate services, both of whom sit on metro Vancouver's aboriginal relations committee. They reminded the committee that the report of the 2009 national assessment of first nations water and waste water estimated the cost to bring 618 individual first nations up to standard would be $4.7 billion, and it would take a decade. In addition to that, the cost to operate these improved systems would be $419 million a year.

The metro Vancouver delegation told us that local governments were concerned about this legislation's broad powers to delegate to any person or body any aspect of drinking water provision, monitoring and enforcement, which could have significant implications for local governments, as providers of utility services. It also highlighted areas of concern identified by local governments.

On that note, I want to tell the House that what we were hearing was that it may be very difficult to have municipal governments even wanting to assist first nations in hooking up to their systems because of the onerous aspects of this legislation.

Among their concerns were the following: there has been a lack of consultation and local government input; the transfer of responsibilities is unknown; the level of services is unclear; there are challenges with bylaw regulations and enforcement; there are legislative and jurisdictional uncertainties, which appear to be similar to the First Nations Commercial and Industrial Development Act; regulatory authority over reserves is unclear; there is a need to clarify financial liabilities; there are unknown funding capacities; and there is a lack of an adequate implementation plan. Does that sound like legislation that is ready to roll out? I do not think so.

As I mentioned, the committee heard from many witnesses who spoke to the deficiencies in Bill S-8. The Assembly of Manitoba Chiefs has made three submissions on this bill and its predecessor, Bill S-11. It echoed many of the criticisms of other witnesses and stated:

We remain alarmed and concerned with the federal government’s continued approach and insistence that legislation is the answer for First Nations. We question why the current Canadian Government must be compelled to legislate as opposed to doing what is humane and just by providing adequate resources to ensure comparable water systems as the rest of Canada.

It went on to state:

Trust is earned through respectful, reciprocal and honourable actions and good faith negotiations.

It added:

The creation of legislation and policy without seeking and meeting the realistic needs of First Nations will not create success or the accountability that government is seeking for its investments.

It is not for a lack of desire that first nations do not have appropriate systems to deliver safe drinking water or manage waste water. If there is a deficiency in the process, it is certainly related to being able to deliver on those desires.

I have heard from Whitefish River First Nation on this subject as well. In a letter to the minister, Chief Shining Turtle provided the government with some basic math that showed how flimsy the government's community infrastructure investment was, and also illustrated the incredible costs related to doing the kind of work that Bill S-8 would make mandatory for these communities.

Here is the math that I believe needs to be considered by all members. The government has committed $155 million over 10 years, so let us do the math. This comes out to about $15 million a year, divide that over 8 regions that INAC uses and it becomes $1.94 million a year per region. We are going down. Divide the $1.94 million over the Ontario region's 133 first nations and the total is $14,567.67 a year. How far will that go?

One more crucial number that has been provided is the cost per metre to construct water mains on the Whitefish River First Nation. It is $300 per metre.

While the government brags about the size of their investment in community infrastructure for first nations, in reality that money is only enough to build 48.5 metres of water main a year.

In addition to these problems, Bill S-8 regulations may incorporate, by reference, provincial regulations governing drinking and waste water in first nations communities, but those regulations are not uniform, which could lead to unequal burdens for communities for what is primarily a federal responsibility.

The expert panel on safe drinking water for first nations expressed concern about using provincial regulations, claiming it would result in a patchwork of regulations leading to some first nations having more stringent standards than others.

In addition to that, the regulations in this bill would overrule any laws or bylaws made by first nations. Bill S-8 would also limit the liability of the government for certain acts or omissions that occur in the performance of their duties under the regulations the bill sets out.

As I mentioned at the outset, safe drinking water is a basic human right. The connection to health and economic well-being that flows from safe, dependable and affordable water cannot be dismissed, but this legislation is missing the mark entirely.

In addition to that, the bill would leave communities on the hook for existing problems they may not have created themselves. In those instances, if what these places really want is to start over in an attempt to get things right, the reality is they will be saddled with problem systems they have inherited.

It will make first nations liable for water systems that have already proven inadequate, but offers no funding to help them improve those deficient systems. Even if a first nation wants to build a replacement to better suit its needs, it will have to maintain its old, often costly systems at the same time.

Here is an example of how that will work. Constance Lake First Nation's water supply has been through a state of emergency. Its traditional water source was contaminated by blue-green alga, which resulted in a shutdown of its water treatment plant. It has drilled two new wells and has been off boil-water advisories for the first time in years, but also requires a new system to ensure quality and to meet its growing demand. Under the provisions of this legislation, it will be liable for the old system, while it tries to build a new one. It will be forced to waste money instead of being allowed to invest it smartly.

I see my time is up, and I will finish up the rest during the question and answer period.

[Paul Dewar, NDP, Ottawa Centre, ON]

Mr. Speaker, I will focus on one point to give my colleague time to make her other points.

The concern that many of us have is that instead of fixing a problem, the Conservatives are actually going to complicate the problem more, based on the point the member just made, and that is to make matters worse through administration and not providing the capacity. Most of those problems could have been avoided if they had listened to the people who came to committee and had consulted in real terms the very people we are trying to help.

Could the member comment on that and elaborate a bit more on the other points she wanted to make?

[Carol Hughes, NDP, Algoma—Manitoulin—Kapuskasing, ON]

Mr. Speaker, this is exactly what we are talking about. We need to build capacity and we need to have the resources, but we cannot do that through this type of legislation.

What the Conservatives are trying to do is really download onto municipalities, the first nations and, in some respects, onto provinces. This is exactly what I was talking about. This is a recipe for failure, not a fix for the basic problem that plagues too many first nations communities. Again, had the Conservatives listened to these communities, they would have known as much.

[Francine Raynault, NDP, Joliette, QC]

Mr. Speaker, I would like to thank the member for her speech.

I would like to hear her opinion on the lack of access to drinking water on reserve. How does it affect people's health and education? When I say education, I am not talking about how parents raise their children, but about the education these children are getting in school. If they do not have enough drinking water, it cannot be very pleasant to go to school.

I would like to know what is happening to aboriginal people across the country who are in a similar situation, meaning, who are dealing with a lack of water or who have undrinkable water.

[Carol Hughes, NDP, Algoma—Manitoulin—Kapuskasing, ON]

Mr. Speaker, I would like to thank my colleague for her question. I really appreciate that the NDP is so engaged in this issue.

I can talk about the problems related to a lack of drinking water. Tuberculosis is more common among first nations who do not have a reliable source of drinking water. There are a variety of health problems related to this issue. It also creates a significant problem in the community's ability to diversify and build a strong economy. It is difficult to encourage industry to come to the community if there is no infrastructure. Drinking water is a necessity.

We also heard about municipalities that have first nations reserves connected to their water supply. That is very problematic because, in the context of this bill, the government did not take the time to consult either first nations or the municipalities that have to provide this service.

I think that we will find there are municipalities that are not interested in providing that service to first nations. Good relations could have developed in those instances.

[Romeo Saganash, NDP, Abitibi—Baie-James—Nunavik—Eeyou, QC]

Mr. Speaker, I thank my colleague for her excellent presentation on a fundamental and crucial issue.

I wanted to ask a more legal and specific question. I know that the member for Manicouagan will talk to us about this shortly.

In December 2011, the Assembly of First Nations adopted a resolution that called on the government to guarantee that appropriate funding be available for any regulations governing implementation, to support first nations in the process of developing their own water supply systems, and to work together with the AFN to develop an immediate plan to address the lack of clean and safe water.

I do not know if I am the only one, but does my colleague also have the impression that we are just scratching the surface of the problem, and that the bill is a half measure?

[Carol Hughes, NDP, Algoma—Manitoulin—Kapuskasing, ON]

Mr. Speaker, I will be very brief.

The first nations that appeared before the committee said that they could put in place a good system to help their communities if they had the necessary means and resources. We can help communities access clean drinking water by giving them the means and the resources they need, not by introducing bills such as this.

[The Acting Speaker, Bruce Stanton]

Before I recognize the hon. member for Manicouagan, I want to inform him we have just four minutes remaining. He will have more time when the House resumes debate.

[Jonathan Genest-Jourdain, NDP, Manicouagan, QC]

Mr. Speaker, I had a very quick look at my recent speeches in the House, and I noticed a common underlying thread in a large number of bills introduced in the House. I have already made at least three speeches this week that touched on the same subjects, the same common thread and the same trains of thought.

At the risk of being redundant, I want to point out that the government is gradually and stealthily trying to distance itself and step back from its obligations. This is evident with the introduction of both private members' and government bills that allow the government to gradually transfer its obligations to provide services to Canadians across the country. For example, it is delegating its obligation to deliver services to charities, which are not accountable. Bill S-8 is no different.

When I consider my brief experience here in the House and the many hours I have spent in committee, I come to the same conclusion. In reality, many initiatives that focus on “Indianness” and aboriginal issues seek to allow the government to opt out of its obligations and shift the burden it has because of the fiduciary relationship, among other things, onto the backs of third parties or band councils.

This relates to Bill S-8, which pertains to safe drinking water. I am thinking, in particular, of the First Nations Land Management Act. This initiative was brought forward to, ultimately, technically and officially, give first nations communities back a certain amount of control over land management and authorizations related to partial occupancy.

In reality, if a legal expert truly focused on the enactment and the letter of this law, he would clearly see that the burden shifts the moment an agreement is signed under the First Nations Land Management Act. The environmental liabilities—past, present and future—are then assumed by the band.

As a result, all the profiteering and negligence of successive governments over the years in relation to environmental monitoring, management and assessments just add to the negligence we are seeing in 2013. The results could be catastrophic. That is why the government is trying to opt out of these obligations. It is important to remember that the reclamation of a single parcel of land on a given reserve can easily cost $100,000. It depends on whether we are dealing with oil or other pollutants and contaminants.

The same reasoning applies in the case of Bill S-8. The government is simply shifting its obligations with regard to access to safe drinking water, infrastructure upgrades and water management and filtration onto the backs of first nations and band councils, which do not have enough funding to take on these sometimes costly responsibilities. I am just thinking about my community, which recently had to deal with contaminated water. There are huge costs associated with these types of problems.

An informed review of the proposed legislative initiative indicates that there are non-derogation clauses whose interpretation and application would open the door to the abrogation of ancestral and treaty rights.

[The Acting Speaker, Bruce Stanton]

The hon. member for Manicouagan will have six minutes when the House resumes debate on the motion.

The hon. member for Peace River is rising on a point of order.

The House resumed consideration of the motion that Bill S-8, An Act respecting the safety of drinking water on First Nation lands, be read the third time and passed.