I don't think there are any cost issues. The difficulty that I perceive at tier 2 is that to some extent the federal and provincial government officials at the table have a conflict of interest. They need to balance their responsibility to all Canadians with the crown's fiduciary and constitutional responsibility to first nations. In that bargaining forum there are some issues to be resolved. It seems to me that the way to deal with that is the way that Canada deals with that issue in international negotiations.
I was a salmon commissioner for 15 years, and spent 15 years on the North Pacific Anadromous Fish Commission. In those contexts, as a Canadian representative at the table, I had behind me a row of people who were there representing various Canadian interests. While they couldn't speak at the table, they could certainly tell me afterwards if I was not handling something appropriately.
I guess what I'm saying is that I think tier 2 would work better if the other Canadian interests were in the room. As I said, that idea was developed in British Columbia in the one context at the suggestion of first nations. I wouldn't for a moment presume to say that it's supported by all first nations. They're exercising their new constitutional responsibilities, and I appreciate that. If I were in the same position, I would probably do the same.