Bill C-33 (Historical)

First Nations Control of First Nations Education Act

An Act to establish a framework to enable First Nations control of elementary and secondary education and to provide for related funding and to make related amendments to the Indian Act and consequential amendments to other Acts

This enactment provides for the control by First Nations of their elementary and secondary education systems. It establishes a framework to enable First Nations to exercise that control by administering schools situated on their reserves, by delegating the power to administer schools to a First Nation Education Authority or by entering into a tuition or administration agreement. It also creates a right of access to elementary and secondary education to persons of school age who are ordinarily resident on a reserve, establishes the Joint Council of Education Professionals, sets out the roles and responsibilities of the main participants in First Nations education systems and provides for the necessary funding. Finally, the enactment makes related and consequential amendments to the Indian Act, the Mi’kmaq Education Act and the First Nations Jurisdiction over Education in British Columbia Act.

First Nations Control of First Nations Education Act

[Pat Martin, NDP, Winnipeg Centre, MB]

Mr. Speaker, we do not need legislation to elevate the standards of contribution for first nations students to the provincial equivalent. The province of Manitoba is a good example. There are reserves near Thompson, Manitoba, where the funding per capita per student is $7,000 or $8,000 by the federal government. The province's funding per student in Thompson, Manitoba, right nearby, is $15,000. One could argue that the amount of money per capita in reserve schools could in fact be even higher than the provincial average because of the special needs and historical catching up that may need to be done in order for first nations students to achieve their full potential through education.

We do not need legislation to do that. It could have found its way into the 2014 budget, but even with implementation of this bill we will not see any improvement until 2016, conveniently just after the next federal election. I suppose the Conservatives will be dangling that as some kind of a carrot in front of the noses of aboriginal voters. This is the hypocrisy of it.

Then what the Conservatives contemplate is this paltry increase of 4.5% of the current 2% cap. It will be 22 years, by the NDP's calculation, before there is a catch-up to where first nations schools are funded to the same degree as their provincial counterparts, and that is without taking into account the increase in population and the increase in the cost of providing education. There is no built-in escalating formula in that model. He knows it is paltry. He knows it is cheap. I do not know what wild numbers he is pulling out of his hat now, but the total amount of money that goes to first nations people is paltry on a per capita basis. One might say it is not all about money. A lot of it is about money.

[Jean Crowder, NDP, Nanaimo—Cowichan, BC]

Mr. Speaker, when the member for Winnipeg Centre started his eloquent speech, he rightly centred the concerns and approach in a rights-based approach. Unless we deal with education and other matters with regard to first nations from a rights-based approach, we are always going to get it wrong. This piece of legislation that is before the House should really be called the first nations administration of first nations education, not the first nations control of first nations education, because the bill would provide administrative functions for bands, administrative detail, and administrative reporting.

The other piece of this is that the government consistently says that first nations are consulted. The member for Winnipeg Centre referred to one part of the bill that is a really important indicator of how this is not consultation and referred to the regulations. What we have heard previous Conservative members talk about is that first nations will have control over how those regulations are going to be developed. Of course, those regulations are where all of the details are in terms of how this act is going to move forward. It says the joint council. That is not first nations. The minister has the overall authority in terms of appointment on that joint council and that joint council is made up of nine people.

I wonder if the member for Winnipeg Centre could comment on how the joint council simply does not constitute appropriate first nations engagement and involvement in the development of regulations.

[Pat Martin, NDP, Winnipeg Centre, MB]

Mr. Speaker, I thank my colleague for Nanaimo—Cowichan for her advocacy on behalf of first nations people during her long tenure as the official opposition's senior critic for aboriginal affairs.

The member is right, the joint council process would by no way give first nations control over their education. It would give them an obligation to administer carefully the directives dictated by the minister. The unilateral, discretionary authority of the minister has been enhanced and augmented. It is hard to believe that one could expand on the overwhelming powers that the Minister of Aboriginal Affairs and Northern Development has over first nations people, but the bill does. The bill contemplates an increase in support for first nations students but at the direction and control of the Minister of Aboriginal Affairs and not first nations people, and again, subject to what he is able to wrest from the Minister of Finance in any given year.

The Conservatives' model is not equal funding as it would be for provincial students, and then work backwards. Their model is to seek to achieve equal funding if the Minister of Aboriginal Affairs and Northern Development has enough clout around the cabinet table to divide the pie to provide better resources to first nations people. That is a far cry from the rights-based approach that my colleague for Nanaimo—Cowichan says should be guiding and informing the development of this important public policy.

[Randy Hoback, Conservative, Prince Albert, SK]

Mr. Speaker, I think it is important that we set the record straight, because what my colleague had in his performance before was not necessarily reflective of what we are hearing from the AFN.

First of all, there are the five conditions that were set out by the AFN, which are in this piece of legislation.

The legislation, if passed, would not define nor alter aboriginal or treaty rights that exist. The member's comments on that are, of course, incorrect.

Clause 4 of the bill specifically notes that it does not “...abrogate or derogate from the protection provided for existing Aboriginal or treaty rights of the Aboriginal peoples of Canada by the recognition and affirmation of those rights in section 35 of the Constitution Act, 1982”.

In fact, the AFN national chief said that this will serve as a bridge to self-government.

What disappoints me is that we are talking about $1.9 billion that would go to educating kids on reserve to give them the education and skill sets that they require to achieve in this great economy that is going on here in Canada, but the NDP members will not even let the bill go to committee. They would defeat it on second reading if they had their choice.

Of course, the NDP solution is to spend some $60 billion in trying to solve this. It is total hypocrisy in what they think is reasonable and what is required. It just shows that the NDP has no clue what first nations people really need and want.

My question for the member is: will he allow the passage of the bill to second reading so that it actually goes to committee, moves forward, and at least give these kids a chance to participate in the strong, booming economy and get the skill sets they need so that they can achieve and succeed?

[Pat Martin, NDP, Winnipeg Centre, MB]

Mr. Speaker, the members of the party the member represents have not only denied the ability of first nations to come forward and have their voices heard in the process of establishing this legislation, they have undermined the democratic institution that we are sitting in as we speak by repeatedly, and again, imposing closure.

How often does the Conservative Party invoke closure on bills? Every time, and on all of them. At every stage, the Conservatives shut down the ability for the voices of Canadians to be heard.

People on this side of the House represent the majority of Canadians, including many first nations whose voices deserve to be heard. The Conservatives have no concept of consultation and accommodating the legitimate concerns of all Canadians.

One thing the Conservatives never learned when they managed to achieve their majority government is that they have to be government to all the people and not just those who voted for them. There is a great section of the population who did not vote for them but who still have legitimate points of view. The Conservatives have an obligation to accommodate those legitimate points of view instead of shutting down debate like a bunch of goose-steppers. It is appalling.

For the member to characterize the speech I just gave as a “performance” just shows how truly ignorant he is perhaps of the issues facing first nations people and those who struggle on a daily basis to provide the best education possible for their people with the impossible funding mechanism that we have now.

We would support a bill that truly did lead towards equality of educational opportunities for first nations people. However, the bill before us does not do it, and the Conservatives will find very soon that there is not a first nation in the country that agrees with them. They will be trying to impose this legislation in their Eurocentric, colonial, paternalistic attitude that is an extension of the Indian Act.

[Earl Dreeshen, Conservative, Red Deer, AB]

Mr. Speaker, I will be splitting my time with a fellow educator, the member for Palliser.

It was 40 years ago this week that I entered my first classroom as a teacher, fresh out of the University of Alberta. One of my instructors was J.W. Chalmers, a great historian on native education and advocate for aboriginal youth. I gained an insight and appreciation for native culture that has stayed with me over the years.

I was also honoured in 1976 to attend the centennial commemoration of the signing of Treaty No. 6 at the Saddle Lake Indian reserve with numerous provincial political leaders, including the former Alberta minister of education, Bob Clarke, premier Peter Lougheed, and NDP leader, Grant Notley. One of the mementoes that I brought back that day was a bumper sticker that not only commemorated the ceremony, but contained a very important message:

As long as the sun shines, the river flows and the grass grows.

That message was in my classroom for the rest of my career, and it is proudly displayed in my office here in Ottawa. It is in that context that I am so proud to be able to speak to this important legislation this afternoon.

There are many reasons to support Bill C-33. Among these, it must be said, are the accountability and governance measures contained in the legislation. They are vital to ensuring that the gap in educational outcomes is closed between first nations children and youth and other Canadian students, which is the ultimate goal of this legislation. The first nations control of first nations education act addresses the need for clarity regarding governance and accountability, one of the five priority issues identified by the National Chief of the Assembly of First Nations and endorses in a resolution by the Assembly of First Nations of December 2013.

As the Prime Minister stated in February, when he and the national chief made this historic announcement:

The legislation will end Ottawa’s unilateral authority over First Nations education, while requiring First Nations communities and parents to assume responsibility and accountability for the education their children receive.

The fundamental principle on which this bill is founded is establishing first nations control of first nations education. While our Conservative government may be the first to take this important step and to bring this principle into legislation, the idea behind it is actually not something new.

The Government of Canada began the process of devolving control of first nations schools to first nations councils back in 1973. This was, in part, a response to the 1972 policy paper, entitled “Indian Control of Indian Education” and written by the National Indian Brotherhood, now known as the Assembly of First Nations. More recently, the call for legislation that gives control to first nations has been repeated in various reports, studies, and audits, including those done by the Auditor General and the Senate Standing Committee on Aboriginal Peoples.

While these may have led to small structural improvements, the major piece of legislation devolving control of education to first nations is the one before the House today. As a result of Bill C-33, first nations would, for the first time, have the ability to choose how they want to operate their schools.

They could choose to operate their own community schools, or they could choose to aggregate into a first nations education authority with other first nations in order to manage a number of schools. If such a body is formed, it would effectively serve as a first nations-led and operated school board. Alternatively, they could choose to enter into or continue an existing agreement with the provincial school board to manage a school on reserve.

Whatever the choice, first nations would be responsible for providing first nations students on reserve with access to an elementary and secondary education that would enable them to obtain a recognized high school diploma. Whether a first nation chooses to administer its community school or delegate this responsibility to a first nations education authority, the management of schools and the provision of educational services would need to meet basic conditions set out in regulations.

For example, students and their parents, elders, and community members would need to be consulted on school policies and education programs, including policies or programs that relate to aboriginal language and culture.

First nations councils would also need to report back to their community members. This would enable them to evaluate whether their needs and the needs of their students were being met under the arrangement that they were currently in. These changes would build more robust and responsive education systems for students on reserve. Equally important, they would establish a relationship of mutual accountability among governments, first nations and community members, which would contribute to long-term success in educational administration. In turn, this would improve educational outcomes for first nations, which is of course the overarching objective of Bill C-33.

It is important to understand that in addition to first nations having control over curriculum and the day-to-day management of reserve schools, provincial governments also carry responsibilities. Provinces are important partners in first nations education due to the high rate of student mobility between first nation-operated and provincially operated schools.

In 2011-12, approximately 39% of first nations students attended provincially operated schools subject to tuition agreements. It is important to remember that joining a provincial education system is one of the government's models available to first nations under Bill C-33. As well, provinces have expertise on curricula, criteria for high school graduation and standardized testing, all of which can be of interest to first nations-run schools.

Bill C-33 would clarify roles and responsibilities for education on reserve, acknowledging both the Government of Canada's ongoing obligation and the role of the provinces. Most important, however, it would provide a vehicle for first nations to take control of their own education systems.

For their part, first nations' responsibilities reflect the broad control they would have under the legislation, including choosing and implementing one of the three governance options to operate schools and delivery education services; determining appropriate measures for the inclusion of language and culture; developing bylaws to establish policies and procedures for their education systems; exercising responsibilities and accountability for the management of their education system; hiring and firing of teachers, principals, and inspectors; developing curricula; developing the school calendar; and reporting on outcomes.

All the while, the federal government would be limited to providing funding for education, including $1.9 billion in core statutory funding transfers, infrastructure and capacity building. It would establish a joint council of education professionals with the Assembly of First Nations, developing regulations and collaborations with first nations and with the advice of the joint council; providing additional resources to aid in implementing the act, including capacity building and; and based on advice from the joint council, appointing interim administrators in exceptional circumstances and only in cases where the minister has received advice to do so from the joint council.

Partnerships with first nations and the provinces will be increasingly important under the act to ensure that all governments are working in the most coordinated manner possible.

Many of the details surrounding these issues will be addressed in the regulations and will be developed together with first nations. The regulations would set out provisions regarding the establishment and operation of first nations education authorities, including bylaw making powers and conditions, as well as governance agreements between first nations and first nations education authorities. Regulations would also elaborate on the functions of councils, first nations education authorities, directors of education, and principals. The joint council would be required to consult with chiefs, parents and educators before working in partnership with a government to develop necessary regulations.

Those are details to be worked out collaboratively over time. For now, our objective is to move Bill C-33 forward so we can finally realize the shared goal of our government and first nations across the country, recognizing first nations control of first nations elementary and secondary education on reserve.

I urge members of all parties to support this worthy legislation, the product of consultation and years of collaboration, which will finally enable us to achieve our mutual objectives.

Since my first involvement as a university student and throughout my 34 years as an educator, I have always believed that parents of native children, because of their traditions, want the very best for their children. As such, this bill would give these children the opportunity to grow and flourish, “as long as the sun shines, the river flows and the grass grows”.

[Lois Brown, Conservative, Parliamentary Secretary to the Minister of International Development]

Mr. Speaker, I was in the House on Tuesday night when we talked about the issues in South Sudan. I made the comment at the time that I had a daughter who was married to a man from Ghana and she was currently teaching in a grade 4-5 class. She has 72 students in her two classes. She is home for a bit of R & R between semesters, but she undertook a project with her students to write to the students at the school where she taught in Newmarket for the last two years.

I was going through those letters with her as she prepared them for the students to respond to the students back in Ghana. I was struck particularly by one comment in the letter of a young girl, who is nine years old in her class. The letter said, “I am glad to be in school because I want to be somebody in the future”.

I do not think there are any of us in the House who cannot think that it is not the plea and the call of every child both here in Canada and abroad, “I want to be somebody in the future”.

Could my colleague speak to how this legislation will help our young people in first nations and aboriginal communities be somebody in the future?

[Earl Dreeshen, Conservative, Red Deer, AB]

Mr. Speaker, when I started teaching again 40 years ago, my cousin ended up going to Botswana and was teaching at same time. Similar to the story that the member just mentioned was something he talked about. People would walk for miles and miles to classrooms of 50 people and it was the significance of the education they had.

If I go back to some of the earlier experiences I had as a teacher, I could see the excitement that young students had as they would come into school. However, as time would progress, they would find they were having some difficulties. I had many situations where people from first nation schools came back into the public school system and a lot of remedial work was required. However, they worked as hard as they possibly could to get back to a level where they could read and process , and from that point they did amazing things.

This is the second time I have been on the Standing Committee on Aboriginal Affairs and Northern Development. The first time we did a study in the territories and we had a chance to talk about different barriers to development. One of the key barriers that was mentioned was education. We had a chance to speak to various individuals there, and these were young people in their twenties and thirties. They had such amazing skills because they had learned it from the land and also from the education system, which they had been able to work through.

Therefore, if we give first nations the opportunity, the talents are certainly there and we will see some amazing things for our next generation of aboriginal students and for our country.

[Laurin Liu, NDP, Rivière-des-Mille-Îles, QC]

Mr. Speaker, I listened to the debate with great interest.

I want to echo what my colleague said, that the Conservative government did not consult the first nations on this bill. We talked to a number of communities across the country and we found, in fact, that the communities are against this bill that, among other things, is not increasing funding for the first nations education system to an acceptable level.

I would like to ask my colleague why he thinks that it is acceptable not to consult the first nations on this bill. The Conservatives did that in the past with Bill S-2, which aboriginal women opposed.

Why does the government keep introducing bills that do not have the support of aboriginal communities across the country? Let us not forget that the government has a constitutional duty to consult the first nations.

[Earl Dreeshen, Conservative, Red Deer, AB]

Mr. Speaker, that is exactly what we did. We went through consultations.

I would like to remind the hon. member that in 2011, the Government of Canada and the Assembly of First Nations launched a national panel on first nations elementary and secondary education, which recommended in its final report a first nations education act. This would be the first level of consultation.

Then in December 2012, the government launched a consultation process and released a discussion guide to help support open and meaningful consultation activities on the government's proposed legislative approach.

Between December 2012 and May 2013, the Government of Canada held face-to-face regional consultation sessions, video, teleconferencing sessions and online consultation activities, including an online survey.

The government received input on a variety of topics, including first nations control over first nations education, inherent rights and treaties, the transition to legislative funding, language and culture, and parental involvement in education, which is what we see in this legislation.

[Ray Boughen, Conservative, Palliser, SK]

Mr. Speaker, I feel very privileged to stand today and talk about something near and dear to my heart, which is education. I had the opportunity, as a younger person, of spending 35 years in education, all the way from being a chemistry and algebra teacher to working in the department of education for the Province of Saskatchewan as director of provincial exams and student records. Also, I had the opportunity to serve a number of school divisions as their director of education. Therefore, I look upon this bill as a very worthwhile piece of literature, a document that says it is time to put some sort of structure around a program of education for aboriginal youth on and off reserves.

Let me just make a couple of general statements to start with. Aboriginal students have two choices really: going to school on a reserve or going to school in a town, a village, or a city. Most students who are not of aboriginal descent do not attend aboriginal schools. In the school structure there is a designed course of studies known as a curriculum. If one is going to be a student in a school in a town—for example, Whitewood—then one would follow the prescribed curriculum of K-12 there. Whitewood is a community in Saskatchewan, and Saskatchewan has a provincial K-12 curriculum. That is not a rare or isolated thing. That is the norm. When we look at schools in Saskatchewan and coast to coast to coast, we will find a provincial curriculum in place.

The bill we are looking at this afternoon says that aboriginal students, their parents, and their boards of education would have a right to choose a school in their community and follow a provincial curriculum, or follow a curriculum as designed and implemented by the first nations folks. That is quite different from a student going to school in a provincial elementary or high school. Parents do not design that curriculum. Curriculum writers design the curriculum. It is approved by the department of education, and that is the one that is followed. This difference alone would certainly assist aboriginal students in their learning programs, because it would be something near and dear to their hearts and they would be able to feel part of the design and presentation of that curriculum as they study things like mathematics, science, English, social studies, history, et cetera.

Those two big items are very worthwhile noting. The bill lays out the principles that say there are two ways to follow. It is very important for us to understand that, because if we are sincere about presenting a curriculum that would be acceptable to aboriginals and first nation folks, then we have to give them an avenue to implement that curriculum. With Bill C-33 we have put forward an opportunity for them to do just that.

This introduction of legislation comes after years of dialogue and consulting with first nations across the country and with the Assembly of First Nations who identified the need for a better education system for first nations. There was ample consultation across Canada, with various groups meeting to talk about what works for them in their educational programming at the K-12 level. It is interesting to note that British Columbia has a well-developed program. Other provinces are catching up to that. They lead the charge with developing their own curriculum, as well as implementing some curriculum from B.C.

In December 2013, the National Chief of the Assembly of First Nations set out the following five conditions for a successful first nations educational system.

The first is first nation control of education, so nation by nation control of their own education, which is a quantum leap of faith compared to one universal control of education called the curriculum. The second is guaranteed federal funding, which may not be as generous as it could be. In the regulations, as the parliamentary secretary said earlier today, we would find some dictation around the idea of funding.

The third is protection of language and culture. Many schools and educational opportunities extend the school day for specific instruction. For example, the folks in the Hutterite colonies speak German, and the German is taught outside of the regular school time, which in Saskatchewan is from 9:00 a.m. to 4:30 p.m. or 3:30 p.m. That is an option that aboriginal schools may look at, an extension of the school day, again, with their approval. The fourth is joint oversight of the new education system. Point five is meaningful consultation with first nations.

These are the things that happened that preceded the actual design and writing of the bill.

Carrying on with that, greater first nations oversight over education systems on reserve--this is the objective of the curriculum design; providing stable, predictable, and sustainable funding; reinforcing first nations' ability to incorporate language and culture programming in the educational curriculum; and creating a joint council of educational professionals who would have a robust oversight and would serve as the mechanism for engaging with first nations on the development of regulations.

Here is a further example of the desire of the curriculum writers to bring in the first nations folk to address these issues, such as what should be the language and culture programming for the curriculum. This is consultation. This is what would happen throughout the implementation of the bill.

Let me speak for a minute or two on what we see happening with the bill. The bill would recognize first nations control of first nations education and create a joint council of education professionals to provide advice and support to Canada and to first nations on the implementation of the act.

Bill C-33 would put control of education on reserve squarely in the hands of first nations, specifically: first nations choose their governance options, which is their first choice, that they choose which way they want the governance; first nations develop their own curricula, which could include the incorporation of language and culture, if they choose, which is far from dictatorial when we see words like choose and choice and the assembly to design the curricula; first nations choose their own inspectors, control the hiring and firing of teachers, and determine how their students will be assessed, in other words, what kind of evaluation would be used; and first nations determine how the school calendar would be structured to meet a set number of days. There again, it is a committee meeting to decide how many days the school would run throughout the course of the calendar year.

The act would recognize the importance of language and culture as an essential element of first nation education and enable first nations to incorporate language and culture programming into the education curriculum, including the option of immersion in a first nation language. This is hardly dictatorial. This is very consultative.

It would establish a legislative framework that would set out minimum standards. For example, the proposed legislation would require that first nations schools teach a core curriculum that meets or exceeds provincial standards, that students meet minimum attendance requirements, that teachers are properly certified, and that first nations schools award recognized diplomas or certificates. That could be said for any school division across Canada from coast to coast to coast. There is nothing outlandish about that at all.

To conclude, Bill C-33 offers a transformative reform so that first nation youth can reach their full potential and become full participants in the Canadian economy. I strongly urge my hon. colleagues to support this important legislation for the economic and mental growth of young people on and off reserves.

[Anne-Marie Day, NDP, Charlesbourg—Haute-Saint-Charles, QC]

Mr. Speaker, in February 2014, the Prime Minister announced that the bill would be drafted. In April, the bill was introduced.

Aboriginal groups were not at all pleased with the way this was done. The first nations were not satisfied because they felt their concerns were not heard and that all the government had to do was simply change the draft bill to ensure it met the five conditions the hon. member talked about earlier. I will not repeat them.

Why did the Conservatives not do that?

[Ray Boughen, Conservative, Palliser, SK]

I am sorry, Mr. Speaker, I dropped my earphone. I am not sure why we did not do—what? I did not catch what it was we did not do. Perhaps the hon. member might repeat that, please.

[Anne-Marie Day, NDP, Charlesbourg—Haute-Saint-Charles, QC]

Mr. Speaker, it would be my pleasure.

The first nations asked that the draft bill be changed to meet the five stated objectives in accordance with their requests and desires.

Why was that not done?

[Ray Boughen, Conservative, Palliser, SK]

Mr. Speaker, my understanding is that consultation was done and there was an opportunity for people across the country to give feedback. I am not quite sure what we are talking about here. As far as I know, the consultation covered off questions that arose.