Mr. Speaker, one shakes one's head as one begins to discuss this bill. It could have been a bill that got total support across the House, but yet again, the government just cannot help itself. It cannot help itself putting something in that is just totally unacceptable to the majority of first nations in this country.
It is about two paragraphs. First, all the government had to do was not put in the two paragraphs. Second, it should just remove them. The official opposition, ourselves, the Green Party and everybody else is asking the government to take out these two paragraphs. Then, we would finally get on with a piece of legislation that is first nations-led and supported by the House of Commons. It could have begun a process of first nations being able to suggest and put forward legislation that Canada would expeditiously get through and support. Instead, the government just cannot help itself.
The process began, as we say, in a good way. It began with the development of a bill that was led by first nations. The Assembly of Manitoba Chiefs and the Atlantic Policy Congress of First Nation Chiefs worked closely with the government to develop a new set of optional election rules that first nations could choose to adopt and remedy many of the flaws in the Indian Act election rules.
Both the AMC and APC facilitated consultations. Many of the issues identified by those consultations are reflected in Bill C-9.
The bill would establish a regime, alternative to the one under the Indian Act, to govern the election of chiefs and councillors of certain first nations. This regime would provide that chiefs and councillors hold office for four years; provide that the election of a chief or councillor may be contested before a competent court; and set out offences and penalties in relation to the election of a chief of councillor.
The bill would also allow first nations to withdraw from the regime by adopting a written code that sets out the rules regarding the election of the members of their council.
Both the AMC and APC-facilitated consultations, again, are reflected in those clauses. That is why it is such a shame that the minister has insisted on snatching defeat from the jaws of victory with this current version of Bill C-9, with these two totally aggravating paragraphs.
While much of the bill is largely based on the consultations with first nations, the Conservatives included elements that were not supported during the consultations, and have refused to remove or amend the offending sections.
Yet again, the government does not seem to understand what consultation means. Consultation means actually asking the opinions of first nations and listening, and then doing what has been suggested. Instead, yet again, the government thinks consultations are actually information sessions that just tell first nations what they are going to do and presume they will just accept it, love it and live with it; and indeed, it is the ultimate paternalism to put in these two paragraphs that give the minister these unprecedented powers.
In particular, Grand Chief Nepinak, grand chief of the AMC, has highlighted the minister's ability to bring first nations under the legislation without their consent. As we know, the AMC was one of the proponents of this bill and now the grand chief is seriously clear that the lack of a first nations appeal process and the conduct of draws to resolve tie votes in elections for band council chiefs and councillors are areas of real concern.
However, what is most appalling is Grand Chief Nepinak's first point, which was the minister's refusal to keep the bill truly optional, unlike how it was sold during discussions with first nations.
In fact, Bill C-9 would give the Minister of Aboriginal Affairs and Northern Development broad discretionary powers that go against the opt-in nature of the legislation. The opt-in nature of this legislation had total support, and instead the Conservatives have inserted these two paragraphs.
In paragraphs 3(1)(b) and 3(1)(c), the bill would provide the minister with explicit powers to bring a first nation, currently under the Indian Act system or a custom code, under Bill C-9 when the minister finds “...that a protracted leadership dispute has significantly compromised governance of that First Nation”, in paragraph 3(1)(b), and the Governor in Council has, under section 79 of the Indian Act, set aside an election of a first nation on the basis of the minister's finding of “...corrupt practice in connection with that election”, in paragraph 3(1)(c).
Given the opt-in nature of Bill C-9, it is completely unacceptable that the Conservative government has included a clause that would provide the minister broad discretion to force first nations under the act. Forcing first nations under an act is not exactly opting in. Opting in is what first nations agreed to in their support of this legislation. Now we have clauses that would allow the minister to force a first nation under Bill C-9.
The minister's power grab has turned what could have been a positive tool for first nations governance into unnecessarily divisive legislation. In fact, one of the two initial first nations partners in creating this legislation, the Assembly of Manitoba Chiefs, is now strongly opposed to the bill. Further, while the level of consultations may have been sufficient if the bill were truly voluntary, opt-in legislation, the minister's insistence on inserting discretionary powers to force a first nation under the bill means that much broader consultation across the country would have been required.
According to the Atlantic Policy Congress of First Nations Chiefs' report on the engagement process, the level of feedback received from first nations was uneven across the country and, the report notes that little or no feedback was obtained in Ontario and Quebec. This may well be because, in a truly opt-in piece of legislation, the first nations understood that they would have the ability to opt in or not. The fact that now the nature of this legislation has totally changed, giving the minister these unprecedented powers, means this level of consultation is totally unacceptable.
AFN regional chief, Jody Wilson-Raybould, representing the AFN before the Senate on this bill's predecessor, stated:
In terms of clauses 3(1)(b) and (c), I believe that if those clauses remain in the bill, the consultation of which you are asking for clarity and the depth of consultation you are seeking would be greatly increased if those clauses remained, or the obligations would be greatly increased if those clauses remain in this bill.
She went on to say:
If those clauses are removed, it is simpler. The bills become simpler and the consultation would not be required in that this is a First Nations-led initiative and it's entirely optional, which it is not right now.
Although there are other improvements that could have been made, such as creating a new independent and impartial first nations elections appeal body instead of relying on the courts, returning the bill to a truly optional piece of legislation would have made it more acceptable.
Grand Chief Nepinak told the aboriginal affairs committee, while he still had concerns over the bill, “I think it does become a little more palatable if you remove that broad discretion of the minister”.
If the Conservatives had agreed to our proposed amendment to remove this discretion, this would have been a much more acceptable piece of legislation to both first nations and the Liberal Party. The minister has suggested this power is necessary to fill a gap that would be created if he did not have it. He also stated that if he is going to impose an electoral system on a first nation, as he currently can under the Indian Act, he would prefer to impose this one.
What the minister does not seem to understand is the inherent paternalism in that statement. The minister does have similar powers under the Indian Act. However, this legislation was sold as purely opt in during all of the consultations. The minister is essentially saying that unilaterally changing the fundamental character of the bill is acceptable if it gives him a better option when he decides to step in.
This new optional legislation should not be used as a vehicle for the minister to have another option when imposing any electoral system upon a first nation.
Further, the degree of discretion the minister has given himself is truly worrying. The terms “protracted leadership dispute” and “significantly compromise government” are not defined in the legislation. These terms, which would trigger the minister's ability to impose the legislation, are therefore extremely broad in nature.
This is not, as the parliamentary secretary tried to frame it at committee, the “ability to opt in” and as he stated in the answers to the questions in this debate so far.
This is clearly the ability of a minister to impose a set of rules on a first nation that has not chosen to adopt it. This is therefore not opt in legislation. This is not voluntary legislation. This is legislation which would give the minister the ability to force a first nation under the power of this act.
We truly feel this is insulting only because all of the work that the AMC and APC put into this project. Here is this impressive piece of work that was generated bottom up by the AMC and the APC. It is really upsetting to us, as the Liberal Party of Canada, to have to impose what could have been a very important precedent in first nation generated legislation because of their inability to remove these two egregious subclauses in what could have been totally acceptable legislation.
The government's insistence on inserting this ability to impose these rules upon a first nation has really squandered an opportunity to develop practical legislation in partnership with first nations rather than for them. In fact, this was actually led by first nation organizations and this is the way I think all of us believe we should go forward in the future.
It is too sad that the government just cannot help itself. It had a perfect piece legislation, but it had to insert the poison pill to ensure it could be on the wrong side of what was to be the future of first nations, legislation that would affect them and their people in keeping with the Constitution, and the duty to consult in keeping with the United Nations Declaration on the Rights of Indigenous Peoples, the idea of free, prior and informed consent.
Here it was, a first nations' initiative, a first nations' legislation that they put forward, that they consulted on and that everybody was ready to help.
The government cannot help itself. It had to put in some stupid little clause that would ensure we could not support it nor could first nations support it. This is a really sad moment in that there was an opportunity for the government to at least listen to the first nations in the consultation, or remove these clauses at committee or at report stage. No, it is just charging on, forcing this legislation through, which would give this unacceptable power to the minister to force the bill upon first nations that do not opt in, that do not accept or need the legislation in their community,
It is quite clear the government is just continuing in its paternalism, continuing in the way that it has dealt with matrimonial real property, the way it has dealt with the water bill, with the governance act and is threatening to deal with the education act.
I do not know how the Conservative members of the aboriginal affairs committee can continue to listen to witnesses after witnesses telling them not to go forward on this, that they do not agree. Those Conservative members of Parliament continue to not hear anything that is said at committee or anything that is said in consultation and press on forcing through legislation against the wishes of first nations in the country. It is totally unacceptable.
Maybe those Conservatives will come out to the rally at 1 o'clock today. Maybe they will come and hear what first nations and Idle No More have to say about the education act coming up. Maybe they will have a sober second thought when it comes to forcing through even more legislation against the wishes of first nations in the country.
