moved that Bill C-10, An Act respecting the Commissioner for Modern Treaty Implementation, be read the second time and referred to a committee.
Mr. Speaker, before I begin, I want to acknowledge that we are gathered on the unceded traditional territory of the Algonquin Anishinabe people.
I am honoured to rise and speak today as Minister of Crown-Indigenous Relations to begin debate on my first bill, an act respecting the commissioner for modern treaty implementation. With the support and guidance of modern treaty and self-governing partners, I am introducing this important bill because it would lead to a stronger, more prosperous future for modern treaty partners and everyone in Canada.
Modern treaty partners across the country have been strong advocates for this legislation. Since I became minister, it has been consistently raised with me as something they want passed quickly. I want to thank and acknowledge the modern treaty and self-governing partners across the country who have guided the development of this bill. Their vision is embedded in its foundation. By working together, we are making significant strides on our shared path of reconciliation.
A representative for the Tsawwassen First Nation said that the commissioner for modern treaty implementation would help guarantee that governments are consistently held accountable, not just in words but in action.
This vision of a better Canada will help us be better treaty partners. The work that has been done is significant, and with this support, we are transforming our society for future generations.
Masì cho to the Land Claims Agreements Coalition co-chairs, Nisga'a Nation president Eva Clayton and Nunavut Tunngavik Incorporated president Jeremy Tunraluk, for their support. We are especially grateful for the guidance they provided while we engaged with the Tłı̨chǫ Government, the Tla'amin Nation, the Whitecap Dakota First Nation, the Maa-nulth treaty council and the Grand Council of the Crees. I look forward to their continued support as we work to advance this bill through to royal assent.
For over 20 years, modern treaty partners have been advocating for an independent oversight mechanism to hold the federal government accountable to its modern treaty commitments.
This bill is about accountability, trust and following through on our promises as a government. Today, we have an opportunity to respond to these calls and create a strong foundation for the ongoing work we will be doing together to overcome the challenges that modern treaty partners face across Canada.
Modern treaties have been fundamental to advancing reconciliation and shared economic prosperity with indigenous peoples for half a century. My perspective as a minister is shaped by my experience coming from the Northwest Territories. I know first-hand that progress is possible when there is real partnership and honest efforts. That depends on a solid foundation of respect and reliability. Earning and holding the confidence of indigenous peoples take ongoing work. They are things we must continue to do every day.
Over the past few years, we have made significant progress in codeveloping tools to improve the implementation of modern treaties in a way that reflects the essence of our partnership.
In 2023, we launched Canada's collaborative modern treaty implementation policy. We codeveloped this policy with modern treaty partners to support the full, effective and timely implementation of all modern treaties in Canada.
We co-developed the important bill that is before us today. Bill C‑10 will enable the appointment of an independent agent of Parliament tasked with holding the government accountable regarding its commitments, obligations and relationships arising from modern treaties.
We have seen the powerful results that modern treaties can deliver. The Nisga'a Nation, B.C.'s first modern treaty partner, holds its own elections in accordance with the nation's own constitution. Their community is seeing booming economic development and, just recently, is a partner on a major project under consideration of the Building Canada Act.
When they are implemented effectively, modern treaties are drivers of economic prosperity that can help to build a strong Canada. They support decision-making and land management and promote closer co-operation between the Crown and indigenous peoples on economic development projects.
In my home territory, the Tłı̨chǫ Government has invested in an all-season highway that connects remote communities. This infrastructure development is helping community members access health services and education, and promotes the growth of local businesses.
We see yet another example with the Gwich'in Renewable Resources Board. This board promotes sustainable use of land and resources while preserving traditional practices. It plays a leadership role so that the fish, forests and wildlife in the Gwich'in area remain healthy and sustainable. Its mandate is to work in the public interest, representing all the parties to their modern treaty.
I see hope and promise in this legislation, but I know the road to negotiating a modern treaty is not easy. In fact, in many cases, the process can take decades to complete. In Nisga'a Nation's case, it took more than a century of advocacy and nearly 20 years of formal negotiations with the Crown. This was a significant investment of time and effort that reinforces how important it is to follow through on Canada's modern treaty commitments.
In Canada, modern treaties are constantly evolving as laws and policies change. Clearly, they have real potential to promote social, cultural and economic progress for both indigenous partners and Canadians.
As I mentioned, I have seen how much progress can be made when we develop real partnerships and make honest efforts, and I believe that this is also true for economic development.
We are living in increasingly uncertain times, amid economic upheaval and rising global instability. Strong relationships with modern treaty partners are going to be essential to building Canada strong. Modern treaties cover more than 40% of Canada's land mass, including 80% of the north. This means that much of Canada's resource wealth lies on or under lands governed by modern treaty partners.
The only way that we can move forward with projects and development on these lands is to do so in co-operation with modern treaty partners and in accordance with our constitutional obligations. Indigenous partners have shown that they are willing and able to work with and guide Canada in stimulating economic development.
We want to build Canada strong. That means upholding our commitments and obligations agreed to in modern treaties. We need an economy that includes indigenous leadership and benefits everyone. Effective modern treaty implementation is a key part of this, and one that the commissioner would support. Improved implementation of modern treaties would go a long way to ensuring that indigenous communities can take part in economic growth. It would also help to ensure that indigenous partners in the north are well placed to contribute to Arctic security as we look to bolster our national defence capabilities in today's evolving landscapes.
The government is committed to fulfilling the spirit and intent of modern treaties. This means honouring our commitments and responsibilities, and advancing our common objectives. This bill embodies the importance of our unique modern treaty relationships.
The appointment of a commissioner for modern treaty implementation will ensure that this and future governments are held to account for the implementation of modern treaties. That is in keeping with the United Nations Declaration on the Rights of Indigenous Peoples and the action plan that our government committed to implementing in partnership with indigenous peoples.
I would like to take a moment to share a bit about what modern treaties are and the work the government is doing to support indigenous peoples on the path.
Beginning in 1975, Canada signed what are called “modern treaties” with first nations, Inuit and Métis rights holders. These agreements also often include provinces and territories. They articulate the relationship, objectives, specific obligations and responsibilities their signatories must achieve and fulfill. They can include rights and benefits relating to ownership of lands, self-government or employment, to name just a few examples.
The era of modern treaties began after the Supreme Court of Canada rendered its decision on the Nisga'a Nation's Calder case, acknowledging the existence of aboriginal title for the first time. This historic decision paved the way for modern treaties, recognizing indigenous peoples' inherent right to their lands.
At the same time in Quebec, another group was challenging the actions of the Crown. This was where the first modern treaty was negotiated, the James Bay and Northern Quebec Agreement, signed in 1975. The James Bay and Northern Quebec Agreement marked a turning point in Crown-indigenous relations, laying the groundwork for many modern treaties that followed.
We know that modern treaties can bring many economic benefits to communities and encourage indigenous participation in the Canadian economy. Treaties can also advance indigenous peoples' social, cultural and political autonomy and well-being.
Studies have shown that indigenous communities that sign modern treaties see improved socio-economic outcomes, including increased average annual incomes, reduced income inequality and higher educational attainment.
Today, there are 27 modern treaties in Canada covering more than 90 communities. As a modern treaty partner, Canada has made progress in upholding its commitments, but we recognize that more work needs to be done.
For over 20 years, modern treaty partners have been calling for greater oversight to hold the federal government accountable to its modern treaty obligations. This includes calls to develop a federal implementation policy. One of the main reasons for this policy is to address a general lack of awareness, understanding and action regarding modern treaty relationships, objectives and obligations on the part of the federal government. That is why, in February 2023, the Government of Canada took a step forward by launching Canada's collaborative modern treaty implementation policy.
The policy guides federal departments in fulfilling their modern treaty obligations, advancing treaty objectives and strengthening intergovernmental relationships. It promotes action, awareness and understanding to address the legacy of colonialism and transform federal culture and procedures.
As part of the policy, the intergovernmental leaders' forum was established in 2023, creating an opportunity for the Prime Minister, federal ministers and modern treaty and self-government leadership to come together and collaborate on shared priorities. Shortly after the collaborative modern treaty implementation policy came into effect, the government and modern treaty partners began taking steps to create the oversight mechanism. We achieved that goal by proposing the creation of the commissioner for modern treaty implementation.
One of this bill's key accomplishments is that it was developed with the indigenous partners who stand to be most affected by its passage.
Now that I have outlined how this bill was codeveloped, I would like to take the opportunity to discuss the broader role the commissioner would play as an agent of Parliament.
Agents of Parliament are independent of the government. They report directly to the Speakers of both Houses of Parliament and are the fundamental pillars of our democracy.
Right now, there is no agent of Parliament to promote and sustain our relations with indigenous peoples, who form the foundation of Canada.
As an agent of Parliament, the commissioner would provide us with a unique opportunity to establish a new parliamentary institution focused solely on modern treaties. They would help make Canada a better partner by shining a light on areas where we can do more to address persistent and structural issues related to modern treaty implementation. This agent of Parliament role would represent a major step forward, toward a future where indigenous partners can trust that Canada will follow through on its modern treaty commitments.
This is particularly important when we consider the strategic locations of our treaty partners, Canada's objective of building a stronger nation and the vital role that strong relationships play in our mutual success.
Modern treaty partners are truly our partners in Confederation.
Some of the commissioner's key roles and responsibilities would include providing independent and expert oversight of any activity carried out by the government relating to the implementation of modern treaties. They would seek to ensure the timely and effective implementation of modern treaties. They would report to Parliament to hold the government accountable to its modern treaty obligations. They would be independent, objective and impartial in the execution of their mandate and would have expert knowledge of modern treaties. They would have the authority to require departments to provide the information necessary to carry out their mandates. Finally, they would commit to upholding the spirit and intent of the agreements.
In short, the commissioner must ensure that the government honours its commitments under modern treaties and, most importantly, in the nation-to-nation, Crown-to-Inuit, and government-to-government relationships that they support.
I will close my remarks today with a few final thoughts on what this legislation means for the broader goal of advancing reconciliation.
Successive governments have continued to enter into modern treaties with first nations, Inuit and Métis to guide our relationships and protect and promote their culture, identity and future prosperity. We are on a shared journey of reconciliation.
We understand that reducing uncertainty and establishing strong partnerships with indigenous peoples can help build a stronger, fairer and more prosperous Canada.
We understand that Canada needs modern treaties in order to grow.
In these uncertain times, we need partners we can rely on. We know we can rely on our modern treaty partners, and we need them to be able to rely on us. Modern treaty partners are already driving innovation, investment and development on a scale that benefits not just their communities, but all of Canada. They are doing this despite the fact that Canada has not always made it easy for them and has not always lived up to its promises.
If this kind of success can happen despite persistent issues and inefficiencies in treaty implementation, I ask my colleagues in the House to imagine what we could accomplish together if we were able to solve these challenges. What could we accomplish together if these treaties were implemented effectively and in full? It is time for us to take action and find out. That means living up to our commitments to respect the inherent rights of indigenous people, it means living up to our commitments to advance reconciliation and it means passing the legislation before us today.
Once again, I would like to thank the modern treaty partners who stood up for their rights and worked tirelessly to co-develop this legislation.
The journey we embarked on together shows what is possible when trust, credibility, creativity, innovation and collaboration guide the codevelopment process. We are listening and working to fulfill all of our modern treaty obligations in the spirit of reconciliation and a brighter future for us all.
Let us pass the bill without delay.
Marsi. Meegwetch. Mahsi cho.
