Indigenous and Northern Affairs Committee on Feb. 26th, 2026

[The Chair, Liberal, Terry Sheehan]

I call this meeting to order. Welcome, everyone.

This is meeting number 23 of the House of Commons Standing Committee on Indigenous and Northern Affairs. We recognize that we meet on the unceded territory of the Algonquin Anishinabe people.

Pursuant to the order of the House, the committee is continuing its study of Bill C-10, an act respecting the commissioner for modern treaties implementation.

I would like to welcome our witnesses on the first panel.

From Kitselas First Nation, we have Glenn Bennett, chief councillor, by video conference.

We also have the K'ómoks First Nation, represented by Chief Nicole Rempel, by video conference.

Then we have, from the Naskapi Nation of Kawawachikamach, Chief Louise Nattawappio and Christina Caron, lawyer.

Welcome to all of our panellists.

To the folks on the video conference screen, if you're trying to get our attention, there's a “raise hand” function on your screen. Just click on that, and the clerk and I will see it.

Everyone will have five minutes for their opening comments. I'll give you a reminder when there are 30 seconds remaining, wherever you are in your remarks, so that you will know to wrap it up.

For folks in the room, as well as for those on Zoom, when you're not speaking, turn your microphone off. Usually the audiovisual people will do that as well.

For those in the room, when you're not speaking, keep your earpiece in your ear or put it on the little spot on the desk, because it's very helpful for the interpreters. Also, when you're done, make sure your mics or the mics beside you are off.

Without further ado, we'll start with Chief Councillor Glenn Bennett by video conference, please.

[Chief Glenn Bennett, Chief Councillor, Kitselas First Nation]

Good morning, Chair, committee members, civil servants and honourable members of Parliament.

My name is Glenn Bennett. I'm currently the elected chief councillor for my community of Kitselas. The Kitselas were known as the people of the canyon. Our history is an oral history, so I hope you will remember what I say, what I share, and share the knowledge.

I feel it's important to acknowledge the team that helped me get here this morning. I have with me our chief administrative officer, Ms. Linda Morven. She hails from the Nisga'a Nation. Alongside her is a young man, Cyril Nabess. He's our director of lands and resources and also an elected council member.

We have people who have worked very closely with my community of Kitselas—Mark Stevenson. The late Mel Bevan was our chief negotiator, who negotiated for well over 30 years and looked for a fair treaty for his people. Before he passed away, he initialled off on the final offer that was presented by both Canada and B.C. In doing that, he was recommending to his people that we accept what has been offered to our community.

Back on April 10, 2025, in my community, we ratified our treaty, with 96% of our people coming out to vote and 85% voting yes. In my mind, that's a clear mandate for our people to look at implementing this treaty, which will take two to three years. We feel, as Canadians, that we can relate to the hard work needed to establish a strong foundation. I feel that is the work we are doing here.

As I said, we negotiated our treaty well over 30 years ago and ratified it on April 10, 2025. We recognize and welcome the positive intent of Bill C-10. Establishing an independent commissioner to review federal treaty implementation is a step towards greater transparency and stronger relationships between Canada and Canadian treaty nations.

We support the bill's foundation, the commissioner's independence, the ability to audit public reporting to Parliament, and access to information. These are important building blocks for accountability. However, oversight alone risks documenting issues without resolving them. Our focus is ensuring that this leads to real collaborative actions.

First, we recommend a joint response mechanism. When findings emerge, we suggest a clear, co-developed action plan within a set time frame. This ensures we move together from insight to implementation.

Second, we encourage clear commitment around information sharing. Let's ensure defined processes at all levels to avoid delays.

Third, we believe direct reporting to Parliament benefits all of us by enhancing transparency and trust.

Fourth, we ask that all Canadian treaty partners be included, reflecting our shared commitment to comprehensive inclusion.

Finally, meaningful participation requires capacity. We encourage Canada to ensure that resources are in place so Canadian treaty nations can fully engage and ensure that treaty agreements are implemented as required.

In closing, we believe BillC-10 can be a robust tool for partnerships. By ensuring action, inclusion and accountability, we can strengthen treaty implementation together, upholding the honour of the Crown.

Thank you, and I look forward to continuing the collaborative work.

[The Chair, Liberal, Terry Sheehan]

Thank you, Chief Councillor.

Next we have Chief Nicole Rempel online for five minutes, please.

[Chief Nicole Rempel, Chief Councillor, K'ómoks First Nation]

Thank you, Chair and members of the committee, for the opportunity to appear before you today in support of Bill C-10, an act respecting the commissioner for modern treaty implementation.

My traditional name is Malidi. My given name is Nicole Rempel, and I'm the elected chief councillor of K’ómoks First Nation on the east coast of Vancouver Island in British Columbia.

K’ómoks ratified our treaty on March 8, 2025, with a strong majority vote in favour. Our members made a clear and informed decision to move forward under the modern treaty framework. We saw a record-breaking 91% voter turnout, with 81% approval of our treaty and 83% approval of our constitution.

For K’ómoks, modern treaty is not simply a constitutionally protected legal agreement; it is the foundation of our governance model, our stewardship responsibilities and our long-term economic future. It represents decades of work by our elders, leadership and community members to establish a stable and predictable relationship with Canada. These agreements create complex government obligations that must be carried out consistently over time. Bill C-10 strengthens that foundation.

A central strength of this legislation is the creation of an independent commissioner for modern treaty implementation. Independence is not incidental; it is a core design feature in this bill. The commissioner is independent from both the federal government and indigenous modern treaty partners, enabling incredible objective oversight that builds trust amongst all parties. This role fills a clear governance gap.

The commissioner complements rather than replaces the important work of the Auditor General by focusing directly on implementation progress, systemic barriers and coordination across federal departments. This distinction matters.

Modern treaty implementation is not a one-time exercise; it is an ongoing operational process. Implementation determines whether governance institutions function effectively and whether economic development can proceed with confidence. From a K’ómoks perspective, predictability is essential. An independent commissioner provides a practical mechanism to provide continuous oversight, improve transparency, identify systemic barriers and address issues early. This proactive approach helps prevent small implementation challenges from becoming entrenched structural problems.

Importantly, this oversight function also helps reduce reliance on dispute resolution processes or litigation. When implementation concerns can be identified, examined and addressed transparently at an early stage, relationships are strengthened and resources can be directed toward progress rather than conflict.

Bill C-10 ensures that treaty implementation does not erode over time through administrative drift, shifting priorities or inconsistent interpretation across federal institutions. Through reviews, performance assessments and public reporting to Parliament, the commissioner creates sustained accountability that extends beyond election cycles and changes in government.

For K’ómoks, this is directly tied to intergenerational responsibility. Our leadership today is stewarding agreements that must serve our children and grandchildren. Institutionalized oversight helps ensure that commitments endure and that implementation remains faithful to both the letter and spirit of our treaty.

Bill C-10 affirms that modern treaties are living operational frameworks that require sustained attention and accountability. It strengthens the nation-to-nation relationship by embedding transparency directly into implementation. For K’ómoks, this means stronger governance, stability, clearer intergovernmental coordination and greater confidence in long-term planning.

We support Bill C-10 because it advances predictability, partnership and responsible treaty implementation, all of which are essential to building a strong and self-determined future for our nation.

In closing, Bill C-10 is about ensuring that the promises reflected in modern treaties are realized in practice. For K’ómoks, implementation is where reconciliation becomes tangible in governance, in stewardship and in opportunities for future generations. By establishing independent and transparent oversight dedicated to implementation, this legislation helps ensure that commitments are honoured consistently and endure beyond political cycles.

We see Bill C-10 as a practical and necessary step toward a more accountable and enduring treaty relationship and respectfully encourage the committee to support this important work.

On behalf of the K’ómoks First Nation, thank you very much for this opportunity to participate today.

[The Chair, Liberal, Terry Sheehan]

Thank you very much.

Now we go to Chief Nattawappio for five minutes, please.

[Chief Louise Nattawappio, Naskapi Nation of Kawawachikamach]

Thank you.

[Witness spoke in Naskapi and provided the following text:]

Waachiyaa, Louise Nattawappio nit-isinihkaasun. Niyuw iyuuchimashkuau Kawawachikamach.

[Witness provided the following translation:]

Good morning. My name is Louise Nattawappio. I am chief of the Naskapi Nation of Kawawachikamach.

[English]

Thank you for the opportunity to appear before you today as you consider Bill C-10, an act respecting the commissioner for modern treaty implementation. I would like to start by confirming the Naskapi Nation's support for the proposed legislation.

In 1975 and 1978, the James Bay and Northern Quebec Agreement and the Northeastern Quebec Agreement, or NEQA, became the first modern treaties in Canada. The Naskapi Nation was among the first nations to enter this modern treaty framework. These agreements reshaped the relationship between the Naskapi Nation and the Crown. Their provisions are mandatory and binding on Canada and Quebec, and the rights they recognize are constitutionally protected.

We have now lived under this framework for 50 years. While our experience with Canada concerning the implementation of the NEQA has generally been positive, it has not been without its challenges.

On the positive side, our experience with CIRNAC's modern treaty management east implementation branch has been excellent for several decades, continuing up to the present day.

On the challenging side, we have experienced lengthy delays with some federal departments in completing negotiations where there is a clear treaty obligation, and we have often found ourselves in the position of having to educate parts of the federal bureaucracy about the fact that we are and have been a self-governing modern treaty holder for many years.

We have often felt that these challenges exist because we are a small, remote first nation and our voice is not heard. That said, the NEQA has binding obligations that must be met regardless of size, location, policy or program limitations. Insofar as treaty implementation is concerned, I believe that a challenge common to all modern treaty holders across Canada is structural in nature. For example, implementation responsibilities are distributed across numerous federal departments and agencies, but there is no institution specifically mandated to provide consistent, specialized attention to modern treaty implementation.

Despite the constitutional importance of these agreements and the vast lands, resources and communities they encompass, we believe the proposed legislation will address this gap by providing the tools necessary to ensure that the federal system consistently delivers on what Canada has already agreed to in constitutionally protected treaties. More specifically, the commissioner would provide sustained, independent oversight focused on implementation combined with transparent reporting to Parliament and mandatory departmental responses.

Modern treaties today cover approximately 45% of Canada's land and sea mass, 80% of the north's land mass and most of Canada's coastline. They are foundational to Canada's legal and economic landscape, yet there is no dedicated independent oversight mechanism focused specifically on federal implementation. For over two decades, the Land Claims Agreements Coalition has advocated for the creation of an independent office reporting directly to Parliament on Canada's effectiveness in implementing modern treaties.

Bill C-10 meets the objective, and for this reason we support the swift passage of this important proposed legislation.

Chiniskumitin. Thank you.

[The Chair, Liberal, Terry Sheehan]

Thank you very much, Chief.

We're going to go to our first round, which is six minutes, starting with the Conservatives and MP Morin.

Please go ahead.

[Billy Morin, Conservative, Edmonton Northwest, AB]

Good morning to all of our chiefs and leaders giving testimony today.

I'll start with Chief Louise, who's in the room here.

Welcome, Chief. You spoke about some of the stats in terms of modern treaties. They're very impressive. I have the map here in front of me. Was it 40% of the land mass that they cover? There are about 27 modern treaties, give or take, depending on how you define it, according to some of the stats and Canada itself.

I certainly agree with the notion that Canada needs to be 100% better in terms of implementing modern treaties, but I do see some challenges with this bill. I think some people would say it's not perfect, but let's not let perfect get in the way of progress. I would like to see maybe a little bit more teeth to it, quite frankly.

Looking at this map, it covers 40%. You have communities in here from the west coast to Inuit communities and your community on the Quebec-Labrador side. I've heard that this budget might have maybe a $2-million operating cost to start. Right now, you're having trouble, as a small first nation, getting into many government departments. Do you have faith that a $2-million start-up government arm will do right by implementing modern treaties? Is that enough to actually do the work that it's supposed to do?

[Chief Louise Nattawappio]

I believe at this time that whatever help we can get will do. We need all the help we can get.

Do you want to add more?

[Billy Morin, Conservative, Edmonton Northwest, AB]

That's okay. Thanks, Chief.

Maybe I'll ask the same question of Chief Rempel.

[Chief Nicole Rempel]

While I don't believe $2 million is enough to address all of the issues with the federal government implementation, I think it's a start. Across Canada, with modern treaties, the strength of our leadership can advocate for more funding. Saying that it's not enough funding so let's not do it doesn't sit well with me as a leader. I would welcome it being under way.

[Billy Morin, Conservative, Edmonton Northwest, AB]

Thank you, Chief Rempel.

Chief Bennett, how do you project that this office is going to prioritize what it studies? Again, it's 40% of the land mass here covering Canada. It's a very diverse group of Inuit, west coast, northern Quebec and Cree. There are a lot of other tribes and diversity.

How do you project that Kitselas will get on the priority of what needs to be studied and have that in balance with, say, Chief Rempel's community or out east or an Inuit community? How do you think that's going to be determined?

[Chief Glenn Bennett]

On behalf of my community of Kitselas, this is a process that we started well over 30 years ago. I find that we, as indigenous people, are extremely patient, and we're willing to work with all levels of government within our province here in B.C. If you look at the majority of first nations, a third of them come from here in B.C.

I feel that if we can look at establishing a positive relationship.... In my mind, it's all about relationship building. I think my community has demonstrated that with the federal government and through the various programs that are currently delivered by what is now referred to as ISC, or Indigenous Services Canada.

We are very fortunate in where we live. We're remote. We live in northern B.C. By plane, it's an hour and a half. In my mind, that's very remote. I feel that what we can bring to the table is the experience of our people. Our people live a harsh life. Look at the climate we live in—winter. Our people wintered on the coast. I think what we can share with the federal government will be positive and demonstrate our willingness to look at sharing our story and sharing how we got to this process in what is now referred to as a modern-day treaty.

We're waiting now for the federal government to do its part and look at how we go forward, Mr. Morin. I feel it's positive. We're very pleased to be here today to provide our testimony, to listen to all the parties that are around the table and do the best job we can in answering the questions that you have for us as indigenous leaders of our communities.

Thank you.

[Jaime Battiste, Liberal, Cape Breton—Canso—Antigonish, NS]

Thank you, Mr. Chair.

Thank you to the witnesses for your testimony today.

You know, my prior job before being a member of Parliament was treaty education lead for Nova Scotia. During the presentations that I gave all across the province, I would say that treaties are the foundation of Canada. Whether it's the pre-Confederation treaties, the numbered treaties or the modern-day treaties, they all ensure that we, as a country, are able to flourish, create partnerships and ensure that those partnerships continue.

With the modern-day treaty commissioner, I think one of the things that this committee would benefit from greatly is really getting a sense of how your community would utilize the modern-day treaty commissioner to further your treaty's implementation if such a commissioner were in place.

I'd like to start off with Chief Rempel, because you talked a lot about predictability, partnership and sustainability. I'm wondering if you could elaborate.

How would you use this treaty commissioner? Suppose this legislation is successful and there is a treaty commissioner today. How would that treaty commissioner, in your eyes, be seen to advance treaty implementation in your region?

I'll go to Chief Louise next, on that.

[Chief Nicole Rempel]

Thank you. That's a great question.

For me, it's about holding the federal government accountable for the responsibilities of the treaty on their part.

Recently, K'ómoks First Nation was doing a public forum with B.C. and Canada. Canada unilaterally made a decision in that presentation, without conversation with the province or K'ómoks First Nation, to extend the effective date of our treaty by one year. If we had had a treaty commissioner overseeing that process, we wouldn't have been blindsided in a public forum.

We need to be able to hold our treaty partners accountable in a responsible way that is also independent of the federal government and the nation. I think that is the responsible way to move forward. It provides a level of comfort to all parties within the treaty to have that independent body.

I don't know if that answers your question.

[Jaime Battiste, Liberal, Cape Breton—Canso—Antigonish, NS]

If I heard you correctly, instead of having to go to a bureaucrat, a member of Parliament or a minister to complain about what had just happened, you would have an independent ally that you could rely on to start and facilitate those conversations with the federal and provincial governments. Is that correct?

[Chief Nicole Rempel]

The first part of your question cut out, but I got the gist of it. I think that's correct.

[Jaime Battiste, Liberal, Cape Breton—Canso—Antigonish, NS]

Okay.

Chief Louise, how would you utilize a modern-day treaty commissioner if you had one in place right now?

[Chief Louise Nattawappio]

Can you repeat your question?

[Jaime Battiste, Liberal, Cape Breton—Canso—Antigonish, NS]

This legislation contemplates a further modern-day treaty commissioner. If that modern-day treaty commissioner were in place right now, how would he or she be able to help advance treaty implementation for your community?

[Chief Louise Nattawappio]

I wish we'd had one years ago, so that we could understand the modern treaty.

As you said, you were teaching it. We were never taught. Even in school, we were not taught. Maybe the council members knew about it. I think it's time that we knew about it and that our community members knew about it.

[Jaime Battiste, Liberal, Cape Breton—Canso—Antigonish, NS]

I have only about two minutes.

I think one of the great things that I've seen from treaty commissioners in various provinces, like Manitoba and Saskatchewan, is that they have a specific mandate, not just to educate indigenous community members but also to educate members all across the province.

Why is education so crucial for the treaty relationship moving forward for your community and nation?

[Chief Louise Nattawappio]

Education is very important, not only for us, but for all of Canada, so that they understand where we come from. The history is very important so that they understand why we are the way we are.

[Jaime Battiste, Liberal, Cape Breton—Canso—Antigonish, NS]

In your province or in your region, do you think that enough Canadians understand the current obligations under the treaties, whether they're historical or modern-day treaties?

Do you think there's enough of an understanding of the partnerships and the obligations created by those treaties?

[Chief Louise Nattawappio]

There's no understanding. If there were understanding, there would be less systemic racism, so education is crucial.