You mentioned a couple of things about challenges in governance. A lot of the challenges in governance are caused by insufficient funding. They'll have a band council that's elected and tries to get out of a deficit situation. It will freeze all spending and then the rest of the community will take the council out and try to put somebody in who will invest, but the bottom line is there is not enough money.
The refusing to sign an agreement, as you mentioned in your presentation, is because it's inadequate. They don't want to sign it. They know it's not going to work for them. They are going to be signing a deal that will allow them to be masters of their own misery. Funding is the root cause, but I don't see you pointing to that. You want to stick to the policy, which really does nothing.
You could change this policy as much as you want. It's not going to change the root cause of the problem.