Bill C-10

Commissioner for Modern Treaty Implementation Act

An Act respecting the Commissioner for Modern Treaty Implementation

This enactment provides for the appointment of a Commissioner for Modern Treaty Implementation to conduct reviews and performance audits of the activities of government institutions related to the implementation of modern treaties. It also establishes the Office of the Commissioner for Modern Treaty Implementation for the purpose of assisting the Commissioner in the fulfillment of their mandate and the exercise of their powers and the performance of their duties and functions. Finally, it makes consequential amendments to other Acts.

Commissioner for Modern Treaty Implementation Act

[Rebecca Alty, Liberal, Minister of Crown-Indigenous Relations]

moved that Bill C-10, an act respecting the commissioner for modern treaty implementation, be read the third time and passed.

Mr. Speaker, I begin by acknowledging that we are gathered today on the unceded territory of the Anishinabe Algonquin people.

We are now at third reading of Bill C-10, the commissioner for modern treaty implementation act, and that is no small achievement. I want to extend my deepest thanks to the modern treaty partners whose experience, persistence and leadership shaped this bill at every step. I also want to thank the members of this House who have helped advance the bill.

At its core, this legislation is about more than establishing the commissioner for modern treaties. It is about something much bigger. Fundamentally, it is about our commitment to advancing reconciliation through partnership and making sure that the commitments we make today lead to tangible, measurable results. It is about moving from intention to implementation so that modern treaties deliver real outcomes for indigenous communities, including strong governance, greater economic opportunity and improved quality of life.

As we look at the work that brought us to this moment and everything we have accomplished together, one lesson stands out: Real progress happens through partnership. This bill was co-developed with indigenous modern treaty partners every step of the way. Before we began drafting this bill, we worked together to develop Canada's collaborative modern treaty implementation policy in 2023. That policy, the first of its kind, set shared expectations for federal departments and created a more consistent approach to implementation across government. It set standards for shifting the culture of the federal system towards stronger relationships and accountability. Building on that foundation, we co-developed this bill with modern treaty partners. Their lived experience guided every component. They shared where current approaches were not always delivering consistent results and they shaped the commissioner's mandate, authorities and reporting structures.

By its very design, this bill is stronger and more credible. It reflects the shared ownership of a common objective to improve the modern treaty relationship and derive the full benefits of these agreements for partners, their neighbours and all Canadians. Bill C-10 reflects a recognition that collaboration with indigenous partners must be the norm. Modern treaty partners are governments and our strategic partners shaping the future of this country, and this bill reflects that truth. This is both principled and practical. All indigenous modern treaty partners spoke strongly in support of the legislation. Our government supports it and it is my hope that the opposition will support it so that it can move on to the Senate. After all, it is rare to see legislation with this level of shared support.

The commissioner for modern treaty implementation act would create an independent commissioner whose sole focus would be supporting effective, consistent and transparent implementation of Canada's modern treaty commitments. Modern treaty partners have been united in their call for stronger oversight. They have emphasized the need for a mechanism that helps everyone understand where progress is being made, where challenges remain, and what steps are needed to honour the full spirit and intent of modern treaties.

With this legislation in place, the commissioner would, one, conduct independent and expert oversight of any activity carried out by the Government of Canada that relates to the implementation of modern treaties; two, report to Parliament to hold the Government of Canada accountable for its modern treaty obligations; three, be independent, objective and impartial in the discharge of their mandate and have expert knowledge of modern treaties; four, have the authority to require departments to provide the information necessary to carry out its mandate.

Modern treaties partners have long called for this mechanism that can look across governments and help make treaty implementation consistent, effective and timely. This kind of independent oversight would bring clarity to the work. It would highlight where progress is happening and where more attention is needed. It would also create the space for honest dialogue, the kind of early, constructive conversation that would prevent problems from growing.

Across government, we see how independent oversight improves outcomes. Modern treaty partners deserve the same consistent oversight, given the depth, complexity and importance of their constitutionally protected agreements. The implementation of modern treaties is a matter that concerns every government, now and into the future. Current and future governments will need visibility into federal performance and a system that is equipped and compelled to follow through consistently on commitments. Bill C-10 would help deliver that.

With this commissioner in place, issues that have been difficult to surface would gain visibility, patterns that were previously hidden would be easier to identify, and both Parliament and partners would have access to clear, independent reporting. This transparency is essential to building stronger treaty relationships and a stronger Canada.

I also want to take this opportunity today to talk a little more about modern treaties and why they are so critical to reconciliation and to building a stronger future. Modern treaties are a distinct expression of reconciliation and a constitutionally entrenched commitment between the Crown and indigenous partners. They promote strong and sustainable indigenous communities and affirm indigenous rights over lands and resources, but as I said, modern treaties are not only instruments of reconciliation. They are engines of economic growth that create certainty for investors, the government and indigenous governments; enable major projects; and support long-term prosperity for indigenous communities and all Canadians.

We have seen this clearly across the country. The Nisga'a nation, British Columbia's first modern treaty partner, is seeing significant economic development and is taking on an increasingly active role in major projects. The Nisga'a nation is a proponent of the Ksi Lisims LNG project, a major project that has the potential to create jobs, generate economic opportunities and deliver long-term benefits for Nisga'a citizens and the entire country. By taking an active role in projects like this, including by pursuing equity ownership, the Nisga'a are helping ensure that major developments create lasting prosperity and economic opportunities that can benefit generations to come.

At the same time, the Nisga'a are continuing to strengthen their self-government, including by holding their own elections in accordance with the Nisga'a nation's own constitution. This is a powerful example of what self-determination can look like in practice, building economic opportunity while exercising the rights and responsibilities of self-government.

In the Northwest Territories, the Tłı̨chǫ government has invested in an all-season highway project that would connect remote communities and open up new opportunities in mining. This infrastructure development is helping community members access health service and education and supporting local businesses.

Another example of this is 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 of the Gwich'in area remain healthy and sustainable. Its mandate is to work in the public interest and represent all the parties to the modern treaty: the Gwich'in, the people of the Northwest Territories and all Canadians.

These examples remind us of what can be when modern treaties are implemented effectively. They show that treaties support well-being, stability and prosperity. They drive growth, create jobs, build up our economy and ultimately build Canada strong. Bill C-10 offers a concrete way forward. By making implementation more visible and consistent, the commissioner would oversee the system from a whole-of-government perspective and make sure we are working consistently toward effective implementation.

Progress must be visible, it must be measurable and it must make a difference in people's lives. Trust is central to every treaty relationship. It takes time to build and ongoing effort to maintain. Trust is built through action: consistently meeting commitments and demonstrating results over time. The commissioner would be an investment in these relationships; in trust, accountability, efficiency and a more just and prosperous future for all Canadians.

Strong accountability measures promote responsible governments. They support credibility and, importantly, results. Modern treaty partners would continue to play an important role in the establishment and operation of the office of the commissioner for modern treaty implementation. The appointed commissioner must have the confidence of both Parliament and modern treaty partners. That is why the appointment process includes direct consultation with modern treaty partners.

When executing their mandates, the commissioner would determine the procedures, terms and methodology to be followed for each review or performance audit after engaging with the relevant modern treaty partners. The commissioner would also provide relevant modern treaty partners with the opportunity to review and comment on any preliminary findings and recommendations of the commissioner, with any comments published in the final report. These processes have been specifically designed to provide credibility, transparency and independence for the commissioner and their office. These requirements would also ensure that modern treaty partners remain active participants in the commissioner's work.

Modern treaties represent a concrete step on the path of reconciliation. For modern treaties to truly move us forward, we must strive to find better ways of implementing their spirit and objectives. The commissioner would help us do that in a way that reflects the importance of these relationships to all of us.

As we reach third reading, I want to reflect on what this bill means in the broader context of reconciliation. Since the signing of the first modern treaty in 1975, successive governments have recognized the importance of these agreements because they know that Canada's future lies with strong, respectful relationships. They have understood that when we honour our commitments and build stronger partnerships with indigenous peoples, we create a stronger, fairer and more successful country.

In these uncertain times, we need partners we can count on. Indigenous modern treaty partners are exactly those partners. Modern treaties cover more than 40% of Canada's land mass, including 80% of the north. It is clear that the only way we can move forward and build Canada strong is in partnership with indigenous modern treaty partners and in accordance with our obligations. This creates unique opportunities for collaboration between modern treaty partners, Canada and other stakeholders on shared, crosscutting priorities in sectors including energy, natural resources, defence, finance and real estate. Modern treaty partners are already leading in this space in innovation, investment and development across Canada. They are doing it within federal implementation approaches that can continue to be strengthened.

This is the time to act. It is the time to strengthen how we carry out our commitments and advance reconciliation in concrete ways. That begins with passing Bill C-10. Reconciliation must be practical, must be measurable and must deliver results that people can see and feel in their daily lives. This bill is a practical step forward, one that supports partnership and helps modern treaties deliver the results they were meant to achieve.

Once again, I want to thank modern treaty partners for their leadership, advocacy and unwavering commitment to this work. The journey we took together to co-develop this legislation shows what is possible when trust, creativity and collaboration are at the heart of the process.

[Jamie Schmale, Conservative, Haliburton—Kawartha Lakes, ON]

Mr. Speaker, I want to thank the minister for her speech. I hope she had a very productive summer.

As said many times in this debate, we agree with the diagnosis that governments of all stripes over 155-plus years have fallen short on their commitments with indigenous people. What we disagree with is the prescription that the government is coming out with now. We agree with modern treaties. In fact, the Harper government signed six throughout its term from 2006 to 2015.

What we have an issue with is that during committee we heard that there would be no guarantee, other than naming and shaming departments that are falling short on their commitments, that there would be fewer court cases. Also, through multiple Auditor General reports showing failures within both departments, ISC and Crown-indigenous relations, we have found years of failure but no correction. In fact, on May 4, 2006, we see, “Overall, Indigenous Services Canada did not effectively implement, monitor, or assess the New Fiscal Relationship initiatives it committed to with First Nation.” That was signed in 2016. This is a recent example.

To the minister's word, let us go from intention to implementation. Why have we not started already?

[Rebecca Alty, Liberal, Northwest Territories, NT]

Mr. Speaker, it is important work. Having a commissioner for modern treaty implementation has been a call from modern treaty partners.

As to the importance of the commissioner, they would be an agent of Parliament who would submit reviews and performance audits directly to Parliament. It is really important to note that the whole-of-government approach the commissioner would be taking is an opportunity for them to make findings and recommendations regarding implementation and to really be able to work with modern treaty partners and government to improve our relationships.

It is an opportunity to have findings and recommendations, to make sure they are public and to make sure we are reporting on the progress that is made. That is a really important part. A lot of the audits may show the areas where we need to do work, but it is equally important to show the areas where we have done a lot of work. The commissioner would have that opportunity, and I encourage all members of the House to continue to support this work.

Again, this bill was co-drafted with modern treaty partners. It is a call they have been asking Parliament to take up. It is also related to the United Nations Declaration on the Rights of Indigenous Peoples Act action plan that the government has, specifically chapter 5, section 9, which states that the co-development of indigenous modern treaties is really important.

[Martin Champoux, Bloc, Drummond, QC]

Mr. Speaker, I am very pleased to see you again, as well as all my colleagues, for this new session of Parliament.

I am very happy to see everyone again and to begin the debate on Bill C‑10, which I think is important and I find interesting. My colleague from Côte-Nord—Kawawachikamach—Nitassinan worked very hard on this bill. I think everyone already knows that the Bloc Québécois agrees with the spirit of the bill.

I find it interesting that the government wants to establish the position of commissioner for modern treaties, because whenever it takes too long for commitments to be implemented, it is usually because the government is dragging its feet. Government members always give very eloquent speeches and make lofty promises. They always seem impressive, but it is clear that concrete action on the ground is slow to really happen in the various communities.

I hope the government and my colleague opposite will be telling us that this also means that the government is ready to commit to finally putting into action what has already been agreed upon. First nations and their governments have been waiting for this, and I think the time has come to take action.

Does establishing this position mean that the government is finally ready to deliver on what it has promised?

[Rebecca Alty, Liberal, Northwest Territories, NT]

Mr. Speaker, I would like to thank the hon. member for his question, and I would also like to thank the Bloc Québécois for its support. It is important that the whole House have the commissioner's reports, so that everyone is aware of the importance of modern treaties and so that people can see the recommendations. I encourage my colleagues, when they examine the budget, to bear these considerations in mind. They will see that the funds are there to support modern treaties.

I would like to raise another point. The commissioner deals solely with the work of the federal government, and not with that of provincial or territorial governments.

[Bardish Chagger, Liberal, Waterloo, ON]

Mr. Speaker, it is great to be back representing the good constituents of the riding of Waterloo and to be having this really important debate.

Similar legislation was introduced in a previous Parliament but unfortunately did not come to fruition. We know there are many communities looking to advance legislation such as this. It is good to hear the goodwill on the opposition side in wanting to see this legislation advance, and I hope to see that done quickly, because if we want to see implementation and action, passing this legislation is definitely an important step.

I would ask if the minister could please tell us who was part of the co-development of this act. Were others engaged in this process? That is something that constituents in the riding of Waterloo are asking. They are also asking how the commissioner would be chosen. Any insight from the minister would be greatly appreciated.

[Rebecca Alty, Liberal, Northwest Territories, NT]

Mr. Speaker, the legislation was co-drafted alongside the 27 modern treaties, as well as with federal officials. However, I would note that the consultation period was broader than that. There were over 130 partners, including indigenous modern treaty partners; first nations, Métis and Inuit groups, which also participated; national indigenous organizations and provincial and territorial governments. It was a broad consultation that occurred.

As to the process of selecting the commissioner, it would be done in consultation with modern treaty partners. Following that, it would go to the Governor in Council. It would then be brought forward for feedback from the leaders of the opposition parties. Again, it is about co-development in drafting and co-development in selecting the commissioner.

[Jamie Schmale, Conservative, Haliburton—Kawartha Lakes, ON]

Mr. Speaker, we have listened to the minister's responses over the past few minutes, and we still have not heard any concrete action the government has taken to correct the mistakes shown in multiple auditors general reports. We still have outstanding issues dealing with education, drinking water, governance and programs, and the list goes on. Unfortunately, there has been no correction. This is the issue we raised about Bill C-10. There were no mechanisms to have enforcement, as I said earlier, other than naming and shaming.

What actions is the government going to take to get results for indigenous people and, in this case, first nations?

[Rebecca Alty, Liberal, Northwest Territories, NT]

Mr. Speaker, when looking at the socio-economic conditions of modern treaty partner communities, we see there is an increase in socio-economic conditions, which shows the importance and value of modern treaties. I would highlight that it is for the commissioner to continue to strengthen our relationships. The commissioner would conduct independent and expert oversight of any activities carried out by the government, would seek to ensure timely and effective implementation and would report directly to Parliament to hold the government accountable on the relationships, objectives and obligations.

This is an important report that would be coming to Parliament so that all parliamentarians could see the work being done throughout the year. They would have the opportunity to see what is working and the areas where we need to step up and continue to make progress. The opportunity and benefit of the commissioner for modern treaties lie in continuing to grow this relationship and highlighting the work that is ongoing and still needs to be done.

[Kevin Lamoureux, Liberal, Parliamentary Secretary to the Leader of the Government in the House of Commons]

Mr. Speaker, I see the legislation as another way that, through the Prime Minister, the Government of Canada is working collaboratively, recognizing that for us to deliver in a big way for Canadians and build Canada strong, we need legislation of this nature because of the important role that indigenous people in Canada play and must play.

[Rebecca Alty, Liberal, Northwest Territories, NT]

Mr. Speaker, I definitely agree with my colleague. Modern treaty partners are critical in advancing many of the projects we are seeing right now, such as the Nisga'a nation with Ksi Lisims and the Tłı̨chǫ first nation with the Arctic economic and security corridor. In Iqaluit, we have NTI, which is leading the hydroelectric project. We are seeing modern treaty partners across the country not only in equity, but also leading the charge in these major projects, and we really look forward to continuing to work with modern treaty partners to build Canada strong.

[Brad Redekopp, Conservative, Saskatoon West, SK]

Mr. Speaker, before I begin, I would like unanimous consent to split my time with the member for Langley Township—Fraser Heights.

[The Assistant Deputy Speaker, John Nater]

Is it agreed?

[Some hon. members]

Agreed.

[Brad Redekopp, Conservative, Saskatoon West, SK]

It is an honour to be back in the House after summer. Welcome back, Mr. Speaker. I trust that you had a good summer, and if you will indulge me for a moment, I would like to welcome all of my colleagues back, on both sides of the House. I hope everybody had a great summer and was able to get back to their ridings and talk to a lot of people.

I certainly had that opportunity. I heard a lot of stories from people, and unfortunately, people are still struggling. People are struggling with the cost of living and groceries and the high price of rent, gas, clothing and things like that. Safety is another thing I heard about a lot, such as crime, drug use and homelessness, and just struggling with the state of our economy in general. Youth are having such a hard time finding good-paying jobs, and raises are not keeping up with inflation. I am sure all of us heard these stories, including my Liberal colleagues on the other side.

My goal when I am here representing the people of Saskatoon West is to save them money and make their lives better. When we look at legislation like Bill C-10, the lens I use is this. Would it help people in that way? Would it save people money? Would it make their lives more affordable and easier? We have a Conservative plan to restore the promise of an affordable, safe and independent Canada that saves people money, saves jobs, keeps people safe, fixes immigration and puts Canada first. I am curious about whether this bill would actually do any of these things.

We are now at the third reading of Bill C-10, the commissioner for modern treaty implementation act. At this stage, the question is no longer whether the subject matters; of course it does. The implementation of modern treaties matters. The honour of the Crown matters. The relationship between Canada and indigenous peoples matters. The question is whether the mechanism in this bill would actually produce better results.

Bill C-10 would create a new commissioner for modern treaty implementation and a supporting office. The commissioner would review and report on how federal institutions are implementing modern treaties. Supporters argue that an independent officer can shine a light on failures and give treaty partners another means of holding Ottawa accountable. I understand that argument, but when I spoke at second reading, I raised a basic concern that remains today, which is that identifying failure is not the same as correcting failure.

Bill C-10 went to committee and was reported back to the House without any amendments, so the core questions remain. If a federal department is behind on a treaty obligation, what changes the next morning? If a minister has failed to meet an obligation, what requires action? If the same failure appears year after year, who is responsible for fixing it? Those are not arguments against accountability. They are questions about how accountability produces action.

Bill C-10 is specifically about modern treaties. It is not a general solution to every challenge facing indigenous people in Canada, and we should not pretend that it is. I represent a riding where indigenous issues are not theoretical. According to the 2021 census, nearly 30,000 people in Saskatoon identified as indigenous, so the work we do here in Ottawa should make a real impact on the lives of people in Saskatoon.

This debate also takes place at an important time of the year. On September 30, Canadians will mark the National Day for Truth and Reconciliation and Orange Shirt Day. It is a day to honour residential school survivors, their families and their communities. It is also a time to reflect on the lasting consequences of government policy toward indigenous peoples.

For me, reconciliation has to include truth, respect and action. Truth means being honest about our history. Respect means listening seriously to indigenous people and respecting treaty commitments. Action means delivering tangible results, such as food and clothing people can afford, better housing, economic opportunities and jobs, access to education and treatment, strong local services and governments that keep their word.

That brings me to something I saw first-hand this summer. I travelled to East Hastings Street in Vancouver. I visited Green Road Park in the Halifax region. I do not have to travel across the country to see the same human suffering. I can see the effects of addiction regularly around 20th Street in my own riding of Saskatoon West. What I saw this summer was not an abstract policy debate. I saw people living outside, caught in addiction. I saw communities struggling with disorder, poverty, mental illness and illicit drugs. I saw first-hand how illicit drugs can ravage individuals and destabilize communities. It reinforced for me just how vulnerable some off-reserve indigenous people can be when addiction, homelessness, mental illness and poverty collide.

The evidence in my own city should concern every one of us. Saskatoon's 2025 point-in-time homelessness count identified 1,900 people experiencing homelessness, and of the people surveyed, 83% identified as indigenous. That is a staggering overrepresentation. We see similar vulnerability when we look at the toxic drug crisis in British Columbia. The First Nations Health Authority reported that although first nations people represented approximately 3.4% of British Columbia's population, they represented 16% of toxic drug poisoning deaths in 2025.

Those numbers do not mean that every indigenous person experiencing homelessness suffers from addiction. They do not mean that every person suffering from addiction is homeless. We should not make assumptions like that about anybody or about who is involved. They do demonstrate that indigenous people are dramatically overrepresented among some of the most vulnerable Canadians living at the intersection of these crises. When we speak about reconciliation, that reality has to matter too.

There is an important connection here to Bill C-10. Modern treaty implementation is important, but for an indigenous person sleeping outdoors in Saskatoon, Vancouver or Dartmouth, a new office in Ottawa is not a treatment bed. It is not affordable food or stable housing. It is not a counsellor or a job. It is difficult for me to see how a new bureaucracy in Ottawa would help put food on the table in Saskatoon or save an indigenous family money when they pay their rent. We must honour treaty commitments, and we must respond to the urgent human needs directly in front of us.

My approach to addiction policy is that it should ultimately be oriented toward recovery. That does not mean pretending addiction is simple, because it is not. People have unique needs, and recovery can take time. Relapse can happen, but surely the goal should be to help people regain control of their lives and, wherever possible, escape destructive addiction.

That is why the Conservatives have put forward proposals centred on treatment and recovery. Last election, the Conservative Party proposed federal funding to create 50,000 treatment opportunities for Canadians seeking recovery from addiction. Conservative MPs have also put legislation before Parliament aimed at making treatment a more meaningful part of the justice system. We introduced Bill C-231, which would give youth justice courts additional options to connect young people with problematic substance use treatment. We introduced Bill C-240, the offender rehabilitation act. That bill proposes additional rehabilitation and addiction treatment measures within the criminal justice and corrections systems.

These proposals reflect an important distinction. We should distinguish between the person trapped in addiction and the criminal organization or trafficker who profits from that addiction. A person in the grip of addiction needs a path toward recovery. A dealer or organized criminal network deliberately trafficking fentanyl presents a different problem, requiring law enforcement and criminal accountability. Those are different situations, and government policy should be capable of recognizing the difference.

It is good to see a shift to recovery-oriented solutions. That can mean intervention, when someone is in immediate danger, or detox, treatment and long-term recovery supports. I have seen examples of that recovery-oriented thinking right at home. The Saskatoon Tribal Council implemented a program that meets people on the streets and in encampments. The program is called Sawēyihtotān, which is a Cree word that means “to bless each other”. Staff provide wellness checks, food and cultural supports. They advocate for detox beds. They connect people with emergency shelters. The program provides pathways toward transitional and supportive sober housing. That is worth paying attention to. It does not write people off. It meets people where they are. Crucially, it also helps to move them somewhere better.

To me, that is compassion with a destination. That same principle should inform how we think about reconciliation. The government should not measure success by how many structures it creates, how many reports it publishes or how much process it generates. We should measure whether people are actually better off. Are treaty commitments being fulfilled? Are people finding housing? Are young people finding opportunities? Are people trapped in addiction getting access to treatment? Are communities becoming safer? Are families being reunited? Those are outcomes Canadians can understand.

The commissioner created by Bill C-10 may provide useful information. Reviews and performance audits may help Parliament identify where treaty implementation is failing, but the commissioner would not replace ministers. The commissioner would not implement treaties. The commissioner would not build housing, operate treatment centres or deliver the services that people depend on. Those responsibilities would remain with government and the institutions that already possess the authority to act. Were the commissioner to identify a problem, the responsible minister should have to answer plainly. What is the problem? Who is responsible? What is being done? When will it be fixed? That is meaningful accountability.

As September 30 approaches, we should remember that reconciliation is not something Parliament completes by passing one bill. It is a continuing responsibility. It is found in whether treaty promises are honoured and whether governments listen. It is found in what happens on the ground, in places like 20th Street in Saskatoon West and in communities right across the country, where people are trying, every day, to build safer, healthier and more hopeful lives. That is a standard I will continue to apply to Bill C-10 and to the broader work of reconciliation.