Commissioner for Modern Treaty Implementation Act

An Act respecting the Commissioner for Modern Treaty Implementation

Sponsor

Rebecca Alty  Liberal

Status

Bill passed the House, now waiting to be considered in the Senate, as of Sept. 21, 2026

Subscribe to a feed (what's a feed?) of speeches and votes in the House related to Bill C-10.

Summary

This is from the published bill. The Library of Parliament has also written a full legislative summary of the bill.

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.

Similar bills

C-77 (44th Parliament, 1st session) Commissioner for Modern Treaty Implementation Act

Elsewhere

All sorts of information on this bill is available at LEGISinfo, an excellent resource from Parliament. You can also read the full text of the bill.

Bill numbers are reused for different bills each new session. Perhaps you were looking for one of these other C-10s:

C-10 (2022) Law An Act respecting certain measures related to COVID-19
C-10 (2020) An Act to amend the Broadcasting Act and to make related and consequential amendments to other Acts
C-10 (2020) Law Appropriation Act No. 4, 2019-20
C-10 (2016) Law An Act to amend the Air Canada Public Participation Act and to provide for certain other measures

Debate Summary

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This is a computer-generated summary of the speeches below. Usually it’s accurate, but every now and then it’ll contain inaccuracies or total fabrications.

Bill C-10 proposes establishing an independent Commissioner for Modern Treaty Implementation. This office would audit and publicly report on federal adherence to modern treaty obligations, aiming to enhance transparency and accountability in how the government fulfills its commitments to Indigenous treaty partners.

Liberal

  • Establishing independent federal oversight: The party supports creating an independent commissioner to conduct expert oversight and report to Parliament, ensuring the federal government is held transparently accountable for fulfilling its modern treaty obligations.
  • Co-developed with indigenous partners: Members emphasize that the legislation was co-developed with indigenous modern treaty partners to ensure the commissioner's mandate and authorities directly address the implementation challenges identified by indigenous communities.
  • Driving economic prosperity: The party argues that effective treaty implementation acts as an engine for economic growth, creating investment certainty and supporting indigenous-led major projects in sectors like energy, infrastructure, and natural resources.
  • Addressing systemic federal inconsistency: Liberal members highlight that a specialized commissioner will help overcome inconsistent treaty interpretations across various federal departments, ensuring a more coordinated and respectful whole-of-government approach to constitutional commitments.

Conservative

  • Opposes redundant bureaucratic oversight: The Conservatives oppose the bill, arguing that creating another federal office is redundant because the Auditor General and numerous other departments already monitor treaty implementation without producing meaningful change.
  • Prioritizes action over new reports: The party contends that reconciliation requires tangible results on the ground, such as housing and treatment services, rather than the appearance of action provided by more reports and bureaucratic structures.
  • Demands direct ministerial accountability: Members argue that the responsibility for fulfilling treaty obligations rests with ministers and government departments, who must be held accountable within Parliament instead of through an external commissioner with limited power.
  • Calls for enforcement of treaties: The party emphasizes that the government already possesses the necessary guidelines and treaty documents to fulfill its obligations and should focus on execution rather than establishing a new oversight body.

NDP

  • Supports Bill C-10: The NDP supports the bill as a long-requested mechanism for independent oversight and accountability regarding the federal government's implementation of modern treaties.
  • Establishes independent commissioner: The legislation creates an independent commissioner for modern treaty implementation to audit federal institutions and table reports in Parliament, ensuring constitutional and treaty rights are respected.
  • Critiques government record: Despite supporting the bill, members criticize the government for failing to uphold treaty rights and international standards, citing lack of consultation on energy development and clean water legislation.

Bloc

  • Support for Bill C-10: The party supports Bill C-10, noting it directly responds to long-standing requests from First Nations and Inuit for a mechanism to monitor modern treaty implementation.
  • Advancing self-determination and reconciliation: Supporting the bill aligns with commitments to reconciliation and self-determination, helping dismantle paternalistic and colonialist approaches by holding the federal government accountable.
  • Concerns over enforcement powers: A key concern is that the commissioner lacks enforcement powers, meaning they can identify government shortcomings but cannot legally compel departments to act.
  • Resolving departmental silos: Government departments often interpret and implement treaties in silos, creating inconsistencies and delays that the new commissioner must help harmonize.
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Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:35 p.m.

Conservative

Grant Jackson Conservative Brandon—Souris, MB

Madam Speaker, it is a pleasure to be back and a pleasure to see you in the chair. I wonder if my colleague from Edmonton would mind giving his perspective. The member for Winnipeg West just spoke about the lack of consultation with treaty partners. I thought the question was a little bizarre coming from the member for Winnipeg West, given the member from Edmonton's history as a proud chief of his first nation and his relationship with the federal government and the Crown over the course of his service in that role.

I wonder if the member for Edmonton Northwest could give a little bit more clarity for the member from Winnipeg on this topic.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:35 p.m.

Conservative

Billy Morin Conservative Edmonton Northwest, AB

Madam Speaker, today's discussion primarily revolves around modern treaties, but I actually come from the historic treaties. It is Treaty 6's 150th anniversary this year. In fact, in Saskatchewan and Manitoba, they have treaty commissioners. I understand there was some minimal engagement with the design of those offices, but today those offices do nothing themselves to serve the treaty obligations in terms of meaningful impact. We are seeing historic record numbers of land claims, historic record numbers of lawsuits against the government, because of a lack of actual substance in these commissioners' offices. I do not see anything different with this one, despite a lot of the work that has gone into it.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:35 p.m.

Bloc

Mario Beaulieu Bloc La Pointe-de-l'Île, QC

Madam Speaker, from what I understand from my colleague's remarks, he is afraid that the legislation will result in reports but no concrete action and thinks that it lacks sufficient teeth or enforcement mechanisms to ensure that results are achieved.

Could he give me an example of something that could really strengthen the bill?

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:35 p.m.

Conservative

Billy Morin Conservative Edmonton Northwest, AB

Madam Speaker, the government's principal direction with this legislation is a little misguided, or a lot misguided. There are commissioners negotiating and treaty negotiators within the departments themselves. I just visited a nation this summer that said it was insulted by the government sending a young, first-time public servant, and I feel sorry for that public servant, but it was an insult to those nations. I think the government should be concentrating on the department negotiators themselves, rather than a mechanism it knows is set up for failure to ultimately hold it accountable, which is going to go nowhere.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:35 p.m.

Winnipeg North Manitoba

Liberal

Kevin Lamoureux LiberalParliamentary Secretary to the Leader of the Government in the House of Commons

Madam Speaker, the member talked about meeting and honouring obligations. I wonder if the member can explain to me how Bill C-10 would prevent that from happening. I see it as a strong positive to have an independent agent of Parliament who is tracking those obligations and then reporting them, as an independent. I would think that would be a positive.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:40 p.m.

Conservative

Billy Morin Conservative Edmonton Northwest, AB

Well, Madam Speaker, I would pose a question back. How would it actually lead to obligation in the action of the government to implement those treaties? Again, Auditor General reports and other reports have not led to that obligation, that action. We have record numbers of land claims and lawsuits against the government because of its lack of action, so I would flip the question back to the member.

The House resumed consideration of the motion that Bill C-10, An Act respecting the Commissioner for Modern Treaty Implementation, be read the third time and passed.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:40 p.m.

Conservative

Marc Dalton Conservative Pitt Meadows—Maple Ridge, BC

Madam Speaker, it has been an honour to serve the residents of Pitt Meadows—Maple Ridge and now Mission for going on seven years. I appreciate this role and take my responsibilities seriously.

Today is the first day of a fall session. I was a teacher for many years prior to being elected, and September is the start of a new school year, not only in elementary and high schools but also on campuses, with new sports programs, dance classes and many other activities. There is a sense of excitement among many students at the beginning of something new and getting involved. I want to wish students and teachers a successful and fulfilling year.

I have a confession to make. As we enter this fall session, I do not have the same excitement. As a matter of fact, I have a bit of a heavy heart over what has been happening in our beautiful country of Canada for the past years under the Liberal government and, I would also add, in my province of British Columbia under the NDP government. Millions of Canadians are struggling to make ends meet. They are feeling the cost of living squeeze at the grocery stores and gas pumps. Small business owners tell me they feel that the government is, in many respects, warring against them to make them unprofitable and increase regulatory and tax burdens. Canada has dropped like a rock in our ranking in per capita income compared to the rest of the world. I will not talk about crime in our communities or drugs on the streets.

However, I must give credit to the Liberals where credit is due. They are master illusionists. Has anyone ever seen a magician saw an attractive assistant in two, only for the assistant to appear whole, with the wave of a wand and the swoosh of a cape? How do magicians do it? It is a little easier now with AI to find out their secrets. The Liberals are masters of illusion. They give the appearance of doing things, tricking our eyes and minds, but it is an illusion. One and a half years ago, the Prime Minister talked about moving Canada forward at unimaginable speed on major infrastructure and economic projects and about the need to rapidly diversify. Things have been pretty stagnant on that front. They may be able to point to one or two different projects, but it has been very sluggish. They said lots of good-sounding words and talked about doubling housing that is going the wrong direction.

I asked my parliamentary assistant how many new bureaucracies and offices the Liberals have they formed since they have been in government, and he sent me a list. It came to almost 50. There are 48 announced to be funded and formed, layers and layers of bureaucracies weighing down taxpayers with more debt, more regulations, more paper shuffling and more delays. Therefore, when the Liberal government tells me that Bill C-10 will fix its relationship with indigenous peoples by adding a new bureaucracy, I have to ask a simple question: With what? When we open the box, there is nothing inside. We have tried this before.

As I asked in my question to the parliamentary secretary moments ago, between 2015 and 2017, the government created the modern treaty implementation office, the assessment of modern treaty implementation office, the performance management framework, the modern treaty management environment, the deputy minister's oversight committee and the reconciliation secretariat, six separate entities specifically designed to monitor, support and ensure treaty implementation. At this rate, I have to ask: How many government offices does it take to change a light bulb? Apparently, it is six, or I guess seven now. After six offices and committees and layers of bureaucracy, the light bulb is still out.

It is a bureaucracy and a government that have run amok. In 2024, the Auditor General again reported that the federal system remains fragmented, bureaucratic and unaccountable. Responsibility is scattered across Indigenous Services Canada, Crown-Indigenous Relations, Justice Canada and the Treasury Board.

When commitments go unfulfilled, no one is accountable, not politically, not financially, not morally. It is like it is their fault. Adding a commissioner does not change culture or performance. Only enforcement, accountability and clear expectations can. The government's response is what we have in the bill, to create yet another agency to monitor implementation.

Success should not be measured in bureaucratic reports. It should be measured in results on the ground, homes, water, policing, infrastructure, governance and economic opportunities. A commissioner will not build a house. A commissioner will not hire a police officer. A commissioner will not deliver clean water.

The Liberal philosophy is that Ottawa always knows best, that Ottawa must monitor, that Ottawa must supervise. The Liberals want to teach from above instead of supporting from beside. Bill C-10 is the purest expression of that instinct. Indigenous communities do not need a commissioner. The government needs a mirror. Its record is damning. The government has had 11 years to act. In that time, how many new modern treaties has it delivered? The answer is zero. That is a fact.

In contrast, the Conservative government, under Prime Minister Stephen Harper, without all these extra bureaucracies, produced five modern treaties in six years. This is not a question of capacity or goodwill. It can be done and it has to be done. The government knows it has failed indigenous people, and it knows that the Auditor General has told it so, not once, not twice, but repeatedly. There is the 2005 report on treaty land entitlements, the 2006 report on the B.C. treaty process, the 2013 audit of modern treaty implementation, the 2016 report on the Labrador and Inuit Land Claims Agreement. There have been more than 14 reports since 2015, covering housing, clean water and treaty implementation, more than two decades of road maps.

Instead of following the map, the government got lost in its own maze of offices, titles and press conferences. While it wandered in the wilderness, communities have suffered. Treaty rights have not been honoured. Fiscal transfers have been delayed. Infrastructure has crumbled. Policing was underfunded and housing has been inadequate.

In 2023, the government even proposed a collaborative modern treaty implementation policy. That sounded like progress, especially with 70 treaty negotiations bogged down. Two years later, nothing has been implemented. We do not need another report telling us that the government has failed. We already know that.

I ask the House how a future commissioner of modern treaty implementation would magically motivate the government to finish the work. It would not. The problem has never been a lack of oversight. The problem is a lack of execution, a lack of political will and a lack of ministerial accountability. There are some alternatives. I will maybe get to that in my responses to some questions. I will say that we already have the courts. We have the Auditor General. We already have parliamentary committees, deputy ministers, performance frameworks and internal audits. The government does not need another reminder that it is failing to do its job.

Over 100,000 public servants have been added since 2015, with $20 billion a year spent on external consultants. We have a public service that is larger than ever, a public service more ineffective in every respect. Faced with that failure, the Liberal answer is always the same, one more office, just one more commissioner and just one more structure. Actually, it is not just one more. The Liberals are going a dime a dozen. It is the illusion of action.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:50 p.m.

Winnipeg North Manitoba

Liberal

Kevin Lamoureux LiberalParliamentary Secretary to the Leader of the Government in the House of Commons

Madam Speaker, it is no surprise. I disagree with the member. At the end of the day, he does not recognize the fact that it would be an independent agent. He listed off some other things that are out there. When he asked me the question, I made the comment that if he used the same principles for his arguments, then there would be no need for an Auditor General of Canada and how silly that would be. I suspect he sees the value in that independent agent.

Here, given the importance of modern treaties to our nation, recognizing the importance of having a commissioner who is an independent agent of Parliament is a good thing. Every other political entity in the House recognizes that, sees that and supports that, except for the Conservative Party of Canada. Is it quite possible that the Conservatives are once again offside on a very important issue? I would appeal to them to reconsider and ultimately support Bill C-10 because it would ensure more accountability and more transparency and it would reinforce the importance of modern treaties.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:50 p.m.

Conservative

Marc Dalton Conservative Pitt Meadows—Maple Ridge, BC

Madam Speaker, certainly we support auditors general and different agencies, but we do not need half a dozen or a dozen agents doing the same exact work or with a slight modification. A key aspect is just to hold ministers accountable. Every minister should report to Parliament on treaty implementation. If an obligation is unfulfilled, this is not a bureaucratic problem. It is a leadership failure and there must be consequences. We need to reduce government. We need to reduce bureaucracy instead of expanding it.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:50 p.m.

Bloc

Mario Beaulieu Bloc La Pointe-de-l'Île, QC

Madam Speaker, I congratulate my colleague on his speech.

Does he not think that having a commissioner or an office to monitor progress and the government's compliance with modern treaties might be a good thing, or does he believe that there should be absolutely no mechanism in place to monitor compliance with modern treaties?

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:55 p.m.

Conservative

Marc Dalton Conservative Pitt Meadows—Maple Ridge, BC

Madam Speaker, I thank the Bloc member.

I agree with him. I say yes to an office, a commissioner, but no to six different ways of doing the same thing. I think that is important.

I fully agree that the government has a responsibility to fulfill its duty and do its job.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:55 p.m.

Conservative

Grant Jackson Conservative Brandon—Souris, MB

Madam Speaker, the comments from the member for Winnipeg North are really interesting because the member from Edmonton earlier admitted that there is a treaty commissioner that some provinces have, to deal with the failure of government to follow through with the commitments of the historic numbered treaties. I think everybody finds that to be very reasonable. However, this bill would create a modern treaty commissioner. With numerous modern treaties it is actively pursuing, some of which are before this House for debate, the government is admitting that it is already preparing for the fact that it is not going to follow through with the commitments that it has written into those treaties. The government needs to create another independent office at the same time as it is passing these treaties, to make sure it actually keeps the commitments that it is making to the first nations people in this country.

That is a bit outrageous, and I wonder if my colleague from British Columbia would agree.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:55 p.m.

Conservative

Marc Dalton Conservative Pitt Meadows—Maple Ridge, BC

Madam Speaker, yes, working together with the different levels of government and not duplicating is key, just to become effective. Conservatives believe in prosperity for all Canadians, indigenous and non-indigenous, and so we need to get things moving and not just paper shuffling, which is what the Liberals are great at doing.

Commissioner for Modern Treaty Implementation ActGovernment Orders

September 21st, 2026 / 4:55 p.m.

St. Boniface—St. Vital Manitoba

Liberal

Ginette Lavack LiberalParliamentary Secretary to the Minister of Indigenous Services

Madam Speaker, my colleague has rightly pointed out that there are already mechanisms dealing directly with treaty implementation, yet our modern treaty partners have continued to identify gaps in the implementation of these treaties. They themselves at committee have been telling us, and asking us for independent oversight. Does that not suggest that the issue is not simply the number of bodies that exist, but whether there is independent accountability when governments need to act and fail to act?