1. Nishnawbe-Aski Nation: A proposal to allow the Nishnawbe-Aski Nation to
become a territorial government
Green paper
Aboriginal Governance Commission:
Vincent Ostberg, Sol Mamakwa, Lydia Big George, and Patty Davis

2. INTRODUCTION: A proposal to allow the Nishnawbe-Aski Nationtobecome a territorial government
Thisgreenpaperwill propose thatthe Nishnawbe-Aski Nationshouldbe allowedtobecome aterritorial
governmentthatwill governthe FirstNationscommunitiesinthe FarNorth Ontarioregion. There are
specificactionsthatNishnawbe-AskiNationhave undertakentodate. There are several
recommendationsthatare proposedforthe Cabinettoconsider. We believethatit’sviable forthe
federal andthe provincial governmentto allow the Nishnawbe-Aski Nationtobecome aterritorial
governmentunderthe jurisdictionof the federal andthe provincial governmentof Ontario.
Background
Nishnawbe-Aski Nation(NAN) wasoriginallyfoundedasthe GrandCouncil Treaty9 in1973. NAN is a
political organizationthatrepresents49First Nationscommunitiesacrossthe territoryof JamesBay
Treaty9 and 5. BritishcommissionersandFirstNationscommunitiesof NAN signedJamesBayTreaty9
in1905/06 withadhesionsin1929/30. Treaty 5 was signedin1875 withan Adhesionin1910.
In 1997, the Nishnawbe-AskiNationandthe Governmentof Canadabeganthe processof negotiations
for Governance andEducationJurisdiction. These negotiationsfollowguidelinesof the federal Inherent
Rightof Self-GovernmentPolicy(1995). There are three phasesinthe negotiationprocessincluding
FrameworkAgreement,Agreement-in-Principle,andFinal Agreement.
NAN’sobjectivesare:
 ImplementingadvocacyandpolicydirectivesfromNAN Chiefs-in-Assembly.
 Advocate forimprovementsinthe qualityof lifeforthe people inthe areasof education,land
and resources,health,governance,andjustice.
 Improve the awarenessandsustainabilityof traditions,culture,andlanguage of the people
throughunityand nationhood.
 Developandimplementpolicieswhichreflectthe aspirationsandbettermentof the people.
 Developstrongpartnershipswithotherorganizations.
Current Governance Structure operations
 The people of NAN donot currentlyhave theirowngoverningsystem.
 The people of NAN are controlledmainlybythe IndianAct tooperate andfinance their
communitygovernance systems.
 If there are majorchangesin the IndianActresultingfromanyfederal legislationNANwillstill
be legallyboundbythislegislationcontrolledbythe Governmentof Canada.
 If the people of NAN donotbeginto developandestablishtheirowngoverningsystemsother
authoritieswill continue todoso.

3. About Nishnawbe-Aski Nation
NAN isa political territorial organizationrepresenting49FirstNationcommunitieswithinnorthern
Ontariowiththe total population of membership(onandoff reserve) of approximately45,000 people.
These communitiesare groupedbyTribal Councilswhichare WindigoFirstNationsCouncil,Wahbun
Tribal Council,ShibogamaFirstNationsTribal Council,MushkegowuckCouncil,MattawaFirstNations,
KeewaytinookOkimakanak,andIndependentFirstNationsAlliance. Six of the 49 communitiesare not
affiliatedwithatribal council.
WhyNAN shouldbecome a territorial government
Accordingto the majorityof the people of NAN,itiscommonlybelievedthatthe FirstNationspeople in
the Treaty 9 area enteredintoa‘Peace andFriendship’treatywithCanadaandthe Province of Ontario.
Thisis unlike Chief JusticeJohn Marshall’srulingagainstthe CherokeeNation, CherokeeNation v.The
Stateof Georgia,1831, that a treatyceasedto existwhenanationwasconqueredbyanothernation. It
shouldbe notedthatCanada didnot engage ina war againstthe people of NAN andtherebyitcannot
be saidthat the people of NAN were conqueredbyCanada. Inaddition,Canadawasa state of Great
Britainin1867 whenitfirsthad itsConstitutionthatresultedfromthe BritishNorthAmericanAct.
It shouldbe notedthatthe Great BritaincreatedCanada andthat Canada was a state in1867 andprior.
From 1867 to 1932 Canadahad no capacityto make treatiesasGreat Britainmade treatieswithvarious
FirstNations in Canada. Any treatymade after1932 is boundtoCanada but treatiespriortoare bound
to Britain. BritainentrustedCanadaingoodfaithto upholdthe treatiesasstatedbythe House of Lords
in1982 after variousFirstNationsfromSaskatchewantoBritishColumbiadisputedthe treatiesthat
were nothonouredbyCanada. Furthermore, noParliamentorlegislationcanchange the treatiesunless
the Indian(First Nations) people wantit.
There are three phasesthat NANis negotiatingfor:
Phase 1: Framework Agreement
In 1997, NAN Chiefsmandatedfornegotiations. The FrameworkAgreementwassignedin1999. This
agreementisnotlegallybindingbutiscrucial for Phase 2.
Phase 2: Agreement-in-Principle (AIP)
Thissecondphase involvesnegotiatingthe fullrange of issuestobe coveredinthe Final Agreement.
Once a draftAIPis completed,itwill be distributedtoNAN FirstNationcommunitiesfordiscussionand
ratification. Duringthisphase andfollowingthe potentialsigningof the AIP,communityresearchand
consultationwillassistindevelopingcommunityconstitutions. Negotiationscommencedin2004/2005
and communityconsultationcommencedduringthe winterof 2005. NAN communitieswill disclose
whethertheysupportthe AIPsthroughBandCouncil Resolutions(BCR).

4. Phase 3: Final Agreement
Duringthe final phase of negotiationsNAN andCanadawill negotiatethe contentsof aFinal Agreement,
includingfiscal arrangementsandimplementationplan. Thisincludesanextensive Community
Consultationratificationprocessthatwill occurinparticipatingNAN communities. Once ratifiedbyNAN
membersFinal Agreementswillbe legallybindingforparticipatingFirstNationsinNAN.
Amendment(2011)
Thisfinal agreementwill require thatthe Province of Ontarioallocate powersandresponsibilities tothe
proposedterritorial governmentthatNAN istobecome,i.e.landandresourcesplanning,energysector
development,andtoprovide inputintoprovinciallegislation. Thisterritorialgovernmentwill be
responsible forgovernance inFirstNationscommunitieswhereasthe province of Ontariowill deal with
municipalities. The Province of Ontariowill remainagovernmentwitharightto negotiate forfederal
transferagreementswhereasthe proposedterritorial governmentwillnotbutreceive allocated federal
transfersandaccess fundingsetaside foreducationasdistributedbythe Province of Ontario.
Nishnawbe Aski Nation Education and Governance
The goal of the Nishnawbe-AskiNationistoimprove the standardof livinginNAN FirstNation
communities.One of the waysto achieve thisgoal wastosigna FrameworkAgreementin1999 tobegin
negotiationsinEducationandGovernance onbehalf of itsmembercommunities.
These negotiationsare made possible throughapolicycalledThe 1995 InherentRightsPolicy.The
objective of the InherentRightsPolicyistoensure thatAboriginalpeople have greatercontrol overtheir
lives,andatthe same time recognizesthatthe mostjust andpractical mechanismforachievingthisis
throughnegotiatedsettlements.
What doesNAN Education Jurisdictionentail?
Section114 to 122 of the IndianAct deal specificallywitheducationandonce the Final Agreementis
reachedthese sectionswould nolongerapplyasFirstNationswill have jurisdictionoveron-reserve
elementaryandsecondaryeducation.Itishopedthatbyoptingoutof these sectionsunderthe Indian
Act that itwill drasticallyimprove the currenteducationsysteminourFirstNationsCommunities.
NAN FirstNationcommunitieswillnowhave the opportunitytocreate a visionasto how theywant
theireducationsystemstowork.Theywill have control overwhatistaughtintheircurriculum, whatwe
wantin the contentand whowe deliveritandwhowill be apart of it.Upon signingof the Final
Agreementwill give NAN communitiesachance to developtheirowneducationstandardsthatare
comparable tothe standardsof educationmade byOntario

5. What is meantby Governance?
Priorto the signingof the treaties,we hadour ownculturesandwe had our owngoverningsystems.
Thisis the ideathat underpinsthe governance negotiation.Itistoachieve agreementswiththe
Governmentof Canadathat wouldleadusto gainjurisdictionoverourFirstNationaffairsand take us
out of the Indian Act’spaternal grasp overour affairs.
Some of the keyareasthat wouldbe includedinthe final agreementinthe Governance sectorare the
following:
 FirstNationsLeadershipandAccountability
 FirstNationmembership
 Programsand Services –publicadministration
 RelationshipwithFederal andProvincial governments
 Constitutions
 Self-Governmentinstitutionsandprocesses
 Elections
 Protectionof Aboriginal andTreatyrights
 Funding principles
 Creationandimplementation of laws
By negotiatingthese two agreementsthe NANFirst Nations are taking another steptoward achieving
self-government.
The Federal GovernmentDivisionofPowersof Governance to Territorial Governments
A territoryisa self-governingpolitical body,whichcanbe governedpredominantlybyNative people
howeveritisconstitutionallysubordinate tothe federal governmentanddoesnothave provincial
status,like the autonomousprovincial jurisdictions. If landownershipis inquestion,aterritorial
referendumcanbe establishedtoseekoutdirectapproval ordisapproval of apolicy,constitutional
questionorproposedlegislationfromelectors,howeverthisprocessoperatescountertothe principle
of goodgovernment. Further,if there isnoconsensusreachedonthe boundariesof aterritory,the
federal governmentstepsintoassistandprovide aterritorial boundaryagreementbetweenthe
territoriesinquestionandthe federal government. Intermsof the establishmentof provincial
boundaries,the amendingformulaof the ConstitutionAct,1982 can establishandextendexisting
provincial boundariesintothe territorieswithnoallowance forprovincial dissent.
The three territorial governmentsinCanadaare the Yukon, NorthwestTerritoriesandNunavut. The
lattertwoterritorieshave aresponsiblegovernmentthathasa parliamentarysystemadaptedtotheir
populations’customsandpractices. A Governor-in-CouncilgovernsaTerritory’sseatingovernment,
while the Territory’slegislaturecandesignate the territorial place of thatseatinthe territory.
UsingNunavutas an example of aTerritory,the frameworkconsistsof aGovernorinCouncil appointing
a CommissionerorChief ExecutiveOfficer,whose executive powersare vestedbyanylawsof Canada
and exercisedandconstitutedbythe governingactof the territory. Inhisabsence,these powersfallto
hisDeputyCommissioner,anotherappointedpositionbythe GovernorinCouncil.

6. The CommissionerappointsanExecutiveCouncil onthe recommendationof the LegislativeAssemblyof
Nunavut. The LegislativeAssemblyconsistsof anelectedassembly representinganelectoral districtin
the territory. The Legislature,whichmakeslaw tosetupthe numberand divisionof the electoral
districtsina territoryconsistof the electedLegislative Assemblyandthe Commissioner.
However,itisthe federal government’sGovernor-in-Councilthatdirectsall writtenactiontothe
Commissioner. Itshouldbe notedthatthisdirectedactionis already effectiveupon receipt,therefore
the Commissioner’srole istocommunicate thisactiontothe Executive Councilof Nunavutandtheywill
thendeliverthe effectiveaction tothe LegislativeAssemblyof the territoryforprocessinginthe
territorial system.
The electedNunavutLegislative AssemblyissubjecttoanyotherAct of Parliamenthoweverwithin
Nunavut,itslegislative powerspertaintooperationalandmaintenanceof administrativeprocedures
such as:
 the electionqualificationsof electorsandcandidates,disqualification,indemnityandexpenses
of membersof the Assembly
 the establishmentandtenure of territorialofficesandthe appointment,conditionsand
paymentof territorial officers
 justice administration forcivil andcriminal jurisdictionandprocedure incivilmatters
 managementof prisons,jailsorlock-ups
 municipal andlocal institutions
 hospitalsandcharities
 landmanagement,sale of the lands andtimberandwoodwithproceedsappropriatedbythe
 directtaxationtoraise revenue forterritorial,municipal orlocal purposes;
 licensinginordertoraise revenue forterritorial,municipalorlocal purposes;
 propertyandcivil rights
 education,assessmentandcollectionof
 the preservation,use andpromotionof the Inuktitutlanguage
 the solemnizationof marriage
 intoxicants
 the incorporationof companies
 agriculture;
 the preservationof game
 the enteringintoof intergovernmental agreementsbythe Commissioneroranyotherofficial
 the expenditure of moneyforterritorialpurposes;
 generally,all mattersof amerelylocal orprivate nature
 the impositionof fines,penalties,imprisonmentorotherpunishment
 such othermattersas the Governor-in-Council may,byorder,designate

7. Restrictionon powers
 Nothinginsubsection(1) shall be construedasgivingthe Legislature greaterpowerswith
respectto anyclass of subjectsdescribedinthatsectionthanare giventothe legislaturesof the
provincesbysections92 and95 of the Constitution Act,1867 withrespecttosimilarsubjects
describedinthose sections.
 Subjecttoany otherAct of Parliament,nothinginsubsection(2) shall be construedas
preventingthe Legislaturefrommakinglawsof general applicationthatapplytoorin respectof
IndiansandInuit.
 The Legislature maynotmake lawsundersection23 that restrictor prohibitIndiansorInuit
fromhunting,onunoccupiedCrownlands,forfoodgame otherthangame declaredbyorderof
the Governorin Council tobe game in dangerof becomingextinct.
 The Legislature maymake lawsunderanyotherprovisionof thisActfor the purpose of
implementingthe landclaimsagreemententeredintobyHerMajestyinrightof Canadaand the
InuitonMay 25, 1993 or any otherlandclaimsagreementwithanaboriginal peopleasmaybe
designatedbyorderof the GovernorinCouncil.
Provincial divisionof powers
The divisionof legislative andexecutive governance fromthe Province of Ontario toNishnawbe-Aski
Nationrequirespartnershipswiththe OntarioMinistryof Aboriginal Affairs andthe Ministryof Natural
Resources andthe Province of Ontario. Itwouldbe a significantsteptodevelopingapartnershipwith
Aboriginal communitiesinNorthernOntario. Thisministrywouldpromote collaborationand
coordinationacrossministriesonAboriginal policyandprograms. The ministrywouldworkwithFederal
Governmenttomake the mostout of federal funding. Stakeholderscouldinclude FirstNations,timber
companies,fishingandhuntingcampoperators,explorationandminingcompanies,andeco-tourists.
Withinthe NAN territory, the governmental agenciesof Ontario,includingthe Province of Ontario,
wouldwork withNAN onmatterspertainingtonatural resources:
 ForestManagement - Oversee managementof NorthernOntario'sforests,includingstrategic
planning,legislation,andpolicies;Crownforestmanagementplanningandresource allocation;
compliance monitoring,auditingandpublicreporting.
 Fish& Wildlife Management- Overseemanagementof NorthernOntario'sfishandwildlife
resources,includingstrategicplanning,legislation,andpolicies;fishcultureandstocking;
resource monitoring,assessmentandallocation;research,foodsafetyanddisease control.
 Land & Waters Management- Leadthe managementof NorthernOntario'sCrownlands,water
resources,mineral aggregates,andoil,gas,andsaltresources.Thisincludeslanduse planning,
resource allocation,floodmanagement,andlow water/droughtmanagement.
 Ontario Parks - DeliverNorthernOntario'sparksandprotectedareasprogram, including
provincial parksoperations,developmentandimplementationof legislation,regulation,policies
and guidelinesforprotectedandhuntingareas,policyleadershiponconservationreserves;
compliance monitoring,auditing,andpublicreporting.

8.  Aviation& Forest Fire Management- Provide leadershipandprogramdeliveryforthe
protectionof people,propertyandcommunitiesaffectedbyforestfire,flood,anddrought
emergencies.Includesfireandemergencymanagement,andaviationservicestoministries,
executiveflying,andflyingforforestfire fightingandresource management.
 GeographicInformation- Provide leadershipandprogramdeliveryinthe developmentand
applicationof geographicinformationfornatural resource management.
 Legislation– the draftingof legislationinvolvingFirstNationsinputinthe development,
implementation,andfinal draftsthatreflecteconomicbenefitstomutual partiesinthe territory
of the FirstNationscommunitiesandsurroundinglands.
CONCLUSION: A glimpse ofthe proposedterritory
The Nunavut territory
Nunavut, (pronounced noo-na-voot),came intoexistence asaCanadianterritoryonApril 1, 1999)
Under the agreementsignedin1992 by the Canadiangovernment,the Inuitreceivedtitle to216,000
square km (83,400 square miles) of the new territory.OnApril 1,1999, the Canadiangovernment
handedoverpolitical control of Nunavuttothe TungavikFederationof Nunavut,the Inuitgovernment.
There are 19 membersof the Legislature,whichisa"non-party"systemwhere membersrunas
independents,choose the PremierandCabinetfromamongthemselvesandgovernby
majority/consensus.
There are about12,200 registeredvotersinthe Territory.The populationasatJuly 1, 2011 is33,322
accordingto StatisticsCanada.
Nishnawbe-Aski Nation
In contrast,Nishnawbe-Aski Nation’stotal population,atpresent,are around45,000 or more whichare
increasingeachyear. There are 49 communitiesthatare affiliatedwiththe Nishnawbe-AskiNation.
There isa demandbythe residentsof these FirstNationspeople toelectthe representativesof the
Executive Council.
NAN encompassesJamesBayTreatyNo.9 and Ontario’sportionof TreatyNo.5, andhas a total land-
mass coveringtwo-thirdsof the province of Ontariospanning 350,000 square km (210,000 square
miles). The peopletraditionallyspeakthreelanguages:Cree inthe east,Oji-Cree inthe west,and
Ojibwayinthe central-southarea. NAN continuestoworktoimprove the qualityof life forthe
Nishnawbe-Aski territory. ThroughexistingpartnershipsandagreementswithTreatypartners
(governmentsof Canadaand Province of Ontario),NAN continuestoadvocate onbehalf of the
communitiesitrepresentsforself-determinationwithfunctioningself-government.
The Aboriginal Governance Commissionproposesinthisgreenpaperthatthe federal government
implementfurtherresearchanddiscussionswiththe Province of Ontario,Nishnawbe-AskiNation,the
Ministryof Aboriginal Affairs,andthe Ministryof Natural Resources,andadesignatedChiefscommittee
that will partake indiscussions. We also propose thatthe federal governmentconsiderallowing
Nishnawbe-Aski Nationtobecome aself governing model forFirstNationswithanindirectrelationship
withthe federal governmentandthe Province of Ontarioasa territory.