It is true that the bureaucrats are challenged because of existing mandates. In fact, I would argue that the government itself is in conflict because it has the fiduciary duty, but it also has the responsibility to protect the Crown. Those two don't always align, in my view, and I'm not a lawyer but an accountant, so I'm sure that lawyers will want to argue with me.
I think it is a challenge, and bureaucracies are not encouraged at all levels to take risks. There is zero tolerance for risk.
What the institutions do is put themselves in a position where they can stand between the government and first nations, and we can manage that risk. We can identify that risk in management.
I think what we're saying is that government bureaucracies need to move away; indigenous organizations and institutions need to move in. What we've proven through the FMA is that indigenous-designed solutions work, and you need to give us the power to continue to create.