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ARCHIVED - RPP 2006-2007
Indian and Northern Affairs Canada, Canadian Polar Commission and Indian Specific Claims Commission


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MINISTER'S MESSAGE

I am pleased to present the 2006–07 Report on Plans and Priorities for Indian and Northern Affairs Canada, the Canadian Polar Commission and the Indian Specific Claims Commission.

This is my first Report on Plans and Priorities since I took on the role of Minister of Indian Affairs and Northern Development and Federal Interlocutor for Métis and Non-Status Indians. It is a great privilege for me to assume these responsibilities, and I am proud to lead a department that is committed to working in partnership with First Nations, Métis, Inuit and Northerners to improve their quality of life.

My vision of the best means for the advancement of Aboriginal peoples' interests is a straightforward and practical one: the attainment of prosperity and self-sufficiency through strong working partnerships based on mutual respect and trust.

First Nations, Métis and Inuit have unique histories, cultures and traditions that are a defining feature of Canada. These social and cultural distinctions require co-operative efforts, founded on the belief that First Nations, Métis and Inuit play a central role in shaping their future.

Indian and Northern Affairs Canada (INAC) is working in co-operation with all partners to achieve improvements in priority areas, such as: education; women, children and families; accountability; drinking water and the treatment of wastewater; housing; and oil and gas development. To make significant and sustainable progress on these issues, we need to foster effective relationships with our partners and to engage provinces and territories in collaborative approaches that will produce effective and lasting results.

The Government is taking tangible, practical measures to address these issues. For instance, we have established a panel of experts to identify and assess options on the development of a regulatory framework to ensure access to safe drinking water in First Nations communities; we are developing a strategy to build a sustainable housing system and improve housing conditions on reserves; we undertook nation-wide consultations on the issue of matrimonial real property with the intent to seek recommendations for actions and possible legislative solutions to protect the rights and well-being of women and children living on reserve; and we signed a tripartite agreement on Aboriginal education — the first in a series of measures to allow First Nations to assume meaningful control over on-reserve schools.

INAC is also working with First Nations organizations to increase their capacity in financial management and auditing, as part of the Government's response to Canadians' expectations for improved accountability of federal financial management.

With regard to the North's special prospects for the future, Canada's three territories are experiencing dramatic changes that offer tremendous opportunities for growth. The oil and gas industries continue to develop rapidly, providing an ever-widening foundation for sustained economic development that will benefit communities throughout the region.

Finally, it is essential that we continue to actively support the advancement of oil and gas projects in ways that will ensure that Canada's world-class natural resources are developed in an economically, socially and environmentally responsible manner, not only in the North but also in the provinces.

This Report on Plans and Priorities describes the department's agenda for action for the fiscal year 2006–07, and sets out its long-term focus for realizing our shared responsibilities to make improvements in Aboriginal and northern communities. It confirms the department's commitments to managing for results and to working collaboratively with many partners in order to provide First Nations, Métis, Inuit and Northerners with opportunities to more fully participate in and benefit from Canada's political, social and economic development.

The Honourable Jim Prentice, P.C., Q.C., M.P.

Management Representation Statement

I submit for tabling in Parliament the 2006–07 Report on Plans and Priorities (RPP) for Indian and Northern Affairs Canada, the Canadian Polar Commission and the Indian Specific Claims Commission.

This document has been prepared based on the reporting principles contained in the Guide for the Preparation of Part III of the 2006–2007 Estimates: Reports on Plans and Priorities and Departmental Performance Reports:

  • It adheres to the specific reporting requirements outlined in the Treasury Board Secretariat guidance;
  • It is based on the department's approved Program Activity Architecture structure as reflected in its Management Resources and Results Structure;
  • It presents consistent, comprehensive, balanced and accurate information;
  • It provides a basis of accountability for the results achieved with the resources and authorities entrusted to it; and
  • It reports financial resources based on approved planned spending numbers from the Treasury Board Secretariat in the RPP.

Michael Wernick
Deputy Minister, Indian and Northern Affairs Canada

SECTION I — OVERVIEW

The Report on Plans and Priorities is the key planning and priority-setting document for Indian and Northern Affairs Canada (INAC) for the fiscal year 2006–07. The report provides an overview in Section I; describes strategic priorities and how the department plans to achieve strategic outcomes over the next three years in Section II; presents financial tables outlining departmental planned spending and other relevant information in Section III; and presents organizational and financial information and describes the department's sustainable development strategy and its approach to risk management in Section IV.

The Minister of Indian Affairs and Northern Development is responsible for reporting to Parliament on the following entities:

  • Indian and Northern Affairs Canada, including the Office of the Federal Interlocutor;
  • the Canadian Polar Commission; and
  • the Indian Specific Claims Commission.

The Minister is also responsible for Indian Residential Schools Resolution Canada, which has a separate Report on Plans and Priorities.

Indian and Northern Affairs Canada

Mandate and Mission

The department's mission is to support First Nations, Inuit, Métis and Northerners in achieving their social and economic aspirations and in developing healthy, sustainable communities where members enjoy a quality of life comparable to that of other Canadians This mission is realized through the exercise of two distinct mandates: Indian and Inuit Affairs, and Northern Development, both of which are aimed at providing opportunities for First Nations, Inuit, Métis and Northerners to more fully participate in and benefit from Canada's political, social and economic development.

The department is generally responsible for meeting the Government of Canada's obligations and commitments to First Nations, Inuit, and Métis, and for fulfilling the federal government's constitutional responsibilities in the North. The broad mandate of the department is derived largely from the Department of Indian Affairs and Northern Development Act, the Indian Act, and territorial acts, some of which are expressions of Parliament's legislative jurisdiction found in section 91(24) of the Constitution Act, 1867. The department is responsible for administering over 50 statutes in total. See http://www.ainc-inac.gc.ca/pr/leg/lgis-eng.html.

In June 2004, the INAC Minister also became the Federal Interlocutor for Métis and Non-Status Indians. The Federal Interlocutor's role is to provide a point of contact between the Government of Canada and Métis, non-Status Indians and urban Aboriginal people.

Consequently, INAC's mandate is complex and its responsibilities encompass a broad range of programs and services. Its portfolio necessitates working with First Nations, Inuit and Métis leaders; a range of departments within the federal government, provincial and territorial governments, and circumpolar governments; Aboriginal service delivery organizations (national, regional and local); and non-governmental organizations and the private sector.

To support First Nations, Inuit and Métis in achieving their social and economic aspirations and in developing healthy, sustainable communities, the department's principal objective is to ensure Aboriginal peoples enjoy a quality of life comparable to that of other Canadians.

In the North, INAC is the lead federal department for a region that comprises 40 percent of Canada's land mass. The department plays a direct role in the political and economic development of the territories, including province-like responsibilities for the management of land and natural resources in the Northwest Territories and Nunavut (prior to the conclusion of devolution agreements), and specific duties related to environmental protection, management of offshore oil and gas resources, and the coordination of scientific research in Yukon, the Northwest Territories and Nunavut.

Strategic Outcomes

INAC's goal is to provide opportunities for First Nations, Inuit and Métis to more fully participate in and benefit from Canada's political, social and economic development while accommodating their aspirations to secure their own place in the Canadian federation consistent with Aboriginal and treaty rights, and to foster self-sufficient and prosperous regions in which Northerners manage their own affairs and make strong contributions to the federation.

To achieve these goals, the department has identified five program-related strategic outcomes, under the following headings:

  • The Government: Good governance, effective institutions and co-operative relationships for First Nations, Inuit and Northerners;
  • The People: Strengthened individual and family well-being for First Nations, Inuit and Northerners;
  • The Land: Sustainable use of lands and resources by First Nations, Inuit and Northerners;
  • The Economy: Aboriginal people and Northerners close the economic gap; and
  • Office of the Federal Interlocutor: Strengthened relationships with Métis, non-Status Indians and urban Aboriginal people to raise awareness of their needs and improve access to federal services with the aim of improving their socio-economic conditions.

These strategic outcomes shape policies, programs and services offered to First Nations, Inuit and Métis, and in the North, and provide criteria for assessing the department's performance and progress.

Planning Context

INAC is responsible for a challenging and complex portfolio that has been shaped by centuries of history, unique demographic and geographic challenges, a significant quantity of case law and judicial direction, and an ever-evolving policy and legislative agenda. Perhaps no other department is responsible for such a large range of programs and services, has such a dynamic relationship with such a wide range of clientele and partners, or has a such a distinctive evolving role.

Aboriginal peoples are the youngest and fastest-growing segment of Canada's population, with birth rates that are double those of the rest of Canadians. This has implications for the demand for school spaces, housing, public infrastructure, social services and jobs. Over time, as Aboriginal peoples become increasingly significant elements in the labour force, their prosperity, and Canada's, will be linked to adequate opportunities to access education, skills development, affordable housing, health care and other social supports.

Developing and delivering programs and services for Aboriginal peoples presents unique challenges for the federal government. Roughly 85 percent of INAC expenditures are directed at the delivery of province-like and municipal-like programs and services on reserve, resulting in a diversity of roles and responsibilities in a wide range of program areas. To be effective, these programs need to keep pace with changing needs and modern administrative standards developed in various jurisdictions. Furthermore, the large number of federal departments involved in delivering programs for Aboriginal peoples have different mandates, delivery mechanisms and reporting criteria, often creating challenges for Aboriginal service providers that administer and report on programs and services.

The involvement of provinces and territories in delivering programs and services off reserve can also contribute to the potential for overlap and duplication.

Recognizing that all partners have some role to play in addressing the challenges facing First Nations, Inuit and Métis communities, achieving more effective results often requires better coordination and integration of programs and services. In some cases, improving outcomes require structural changes to policies, authorities, legislation or regulatory frameworks that are outdated or incapable of responding to today's needs or opportunities.

Program improvements are required to support resolution of the growing inventory of claims that the Canadian government has mismanaged assets held by it on behalf of First Nations or failed to fulfil certain commitments in treaties with First Nations. In addition to managing legal liabilities, resolution enhances the capacity of First Nations to invest in their own futures, and the ability of both First Nations' and neighbouring communities to develop.

The federal government has, and will continue to, engage in discussions with Aboriginal leaders, provinces and territories, and others to address the challenges facing Canada's First Nations, Inuit and Métis peoples. There is a strong consensus that outstanding Aboriginal issues need to be resolved and that specific areas require immediate action. At the November 2005 Meeting of First Ministers with Aboriginal leaders, key objectives and targets were outlined in the areas of education, housing, economic opportunities, health and strengthening of relationships. The government has indicated its support for the objectives that emerged from the First Ministers' Meeting, and is developing specific strategies to move forward, including measures for housing, water, education, governance, land claims and economic development, as well as the specific challenges facing Aboriginal women, children and families. More specifically, steps are necessary to enhance the capacity of First Nations to manage more of their own affairs and deliver effective services to citizens as part of the move toward self-government.

INAC also promotes federal stewardship on reserves in those areas remaining with the federal government, and promotes efficient land management practices that address the Crown's interest in protecting, conserving and managing lands, resources and the environment in a manner consistent with both the principles of sustainable development, and First Nations' aspirations to control their lands and resources. INAC is also responsible for carrying out core activities under the Indian Act.

In the North, the investments made by successive governments in political development, claims and self-government negotiations, and economic development have set the stage for major development opportunities. Canada's North holds world-class mineral, oil and gas deposits, which promise substantial long-term growth in the regional economy and a significant revenue stream for governments. Resource development opportunities are significant, with strategic importance for Canada, and the potential to make the North a major contributor to Canada's future prosperity.

Resource development is the foundation of the private sector economy in the North, but is largely dependent on the government's capacity to manage lands and resources, regulate development and work with partners to address barriers. Through the regulatory and resource management regimes, INAC is responsible for ensuring that economic and resource development activity in the North is undertaken with minimal environmental impact, protects the public interest, and ensures long-term benefits for Northerners and all Canadians.

At the same time, governance in the North is evolving as territorial and Aboriginal governments assume greater control over decision making through devolution and claims and self-government processes. INAC is responsible for completing the transfer of its land and resource management responsibilities to territorial governments, and for supporting the negotiation and effective implementation of Aboriginal land claims and self-government agreements.

To keep pace with these changes, maintain the momentum and realize the North's full potential will require sustained focus and investments in Canada's North.

To guide federal efforts in all areas of Aboriginal and northern policy and program planning, all partners must adhere to some fundamental principles to ensure that results are effective, tangible and transparent to all Canadians.

These principles are:

Working within Canada's Constitutional Framework — In developing opportunities for Aboriginal peoples, individual and equality rights in the Charter protecting all Canadians must be respected. Similarly, the government must proceed in a manner that accommodates Aboriginal and treaty rights protected by Section 35 of the Constitution and fulfils its unique constitutional role and legislated responsibilities in the North.

Respect for Basic Democratic Values — The government will move forward with full attention to promoting the basic democratic values Aboriginal peoples and other Canadians demand. These include: the rule of law, due process, transparency in governance and full accountability to citizens.

21st-century Standards for Programs and Services — Aboriginal peoples and Northerners, like other Canadians, expect to have access to programs and services that are based on principles of sound governance. This includes a modern legislative base that is relevant to modern needs, investments that demonstrate value for money, and measures that report properly on results.

Clearly Identified Roles and Responsibilities — The federal government, provinces and territories, resource management boards in the North, and Aboriginal organizations and individuals all share some responsibility for improving outcomes for Aboriginal peoples and Northerners. A clear understanding of these responsibilities and a commitment by partners to be accountable for those responsibilities will set a practical, workable course for the future providing a genuine opportunity for progress.

Mutual Respect and Reconciliation — The principles of mutual respect and reconciliation must also be observed. They include enhancing the level of understanding and acceptance of First Nations, Inuit and Métis cultures as a vibrant and integral part of Canadian society; ensuring that treaties are implemented in a manner that fosters an improved understanding among Canadians; and negotiating settlements that bring tangible benefits to all parties.

In moving forward, it is clear that the federal government cannot impose solutions unilaterally. It is also clear that money alone cannot overcome the ongoing cycle of dependency and poverty experienced by so many Aboriginal people. The government will be developing practical, affordable strategies with its partners that will provide tangible opportunities for Aboriginal peoples and Northerners to take greater control and responsibility for realizing their social, economic and political aspirations.

Operating Environment

INAC delivers its programs in an environment characterized by: a need for horizontal co-operation within the federal government; a high level of decentralization; collaboration with provinces and territories; and increasing devolution of responsibilities for direct delivery of services.

In the North, the transfer of the remaining land and resource management responsibilities to the governments of the Northwest Territories and Nunavut, in an environment of evolving Aboriginal governance structures, requires careful management while respecting ongoing federal responsibilities.

Horizontality

Within the federal government, responsibility for Aboriginal programming is shared among 34 departments and agencies with total planned spending of $9.1 billion (2005–06).

The federal government has made a commitment to improve results of programs and to enhance the federal government's transparency, accountability and reporting on Aboriginal programs. This commitment entails working with First Nations, Inuit and Métis organizations and provinces and territories to clarify roles and accountability relationships. In the January 2005 Accountability for Results session, the federal government committed to disclosing a detailed picture of direct federal program spending targeting Aboriginal peoples in Canada for 2004–05, which is now captured in the Aboriginal Horizontal Framework. INAC is expected to play a leadership role in co-ordinating efforts among the many federal partners, each with different mandates, authorities and priorities. For a more detailed explanation of the Framework and detailed schedule of programs, please see http://www.tbs-sct.gc.ca/report/govrev/05/cp-rc-eng.asp.

In the North, INAC is the lead federal department with a mandate to coordinate federal activities across the territories.

Decentralization

INAC is highly decentralized, with a presence in every geographical region in Canada: it works with over 600 First Nations communities and organizations; Inuit national and regional organizations; provincial and territorial governments; other federal departments and agencies; and seven circumpolar nations. While many federal departments are operational in nature, INAC's role with respect to Indian and Inuit programs is largely one of providing overall leadership and support, which is nonetheless crucial to achieving healthy, sustainable communities. INAC funds First Nations governments and institutions and Inuit organizations and communities with the goal of providing access to a range of services reasonably comparable to those enjoyed by other Canadians. First Nations and Inuit directly administer more than 85 percent of Indian and Inuit programs which provide for provincial-type services directly on reserve. To transfer funding and ensure accountability for the delivery of programs and services, the department uses a broad range of funding mechanisms — from grants, to agreements for specific program funding, to multi-year block funding for alternative funding arrangements and self-government agreements. The largest share of program expenditures is for basic provincial and municipal-like services (for example, education, income assistance, infrastructure and band support for First Nations on reserve), and for claims and self-government agreements.

In the North, the majority of these types of programs and services are provided by the territorial governments to all Northerners, including Aboriginal people.

Devolution

On an ongoing basis, INAC supports the development of strong Aboriginal governments that operate in a transparent and accountable manner. The department works with partners, including other government departments, to achieve integrated, interdepartmental policy development, program design and service delivery; jointly developed management and accountability frameworks; and jointly agreed-upon performance indicators to measure the effectiveness of services and to support First Nations and Inuit control over policies, programs and services that most directly affect their quality of life.

In the North, the devolution of province-like land and resource management responsibilities to territorial governments has been a longstanding federal policy objective intended to give Northerners greater control over their economic future while strengthening governance capacity. The landscape is also evolving with respect to Aboriginal governance in the North, where the settlement of claims and establishment of self-government is advancing more quickly than anywhere else in the country.

Furthermore, Aboriginal Northerners will reap greater benefits as settlement of land claims and self-government agreements provide greater certainty over rights to natural resources. This certainty will contribute to a more positive investment climate and create greater potential for economic development, jobs and growth, as well as new means for Aboriginal Northerners to participate in the economy.

Departmental Priorities

Given the department's unique operating environment, complex planning context and broad mandate, the annual identification of priorities relies on an awareness of INAC's ongoing responsibilities, because paying special attention to certain key areas will help to achieve progress in other areas. Mindful of the linkages between its different areas of responsibility, the department is committed to focusing on a number of key priorities for the 2006–2009 planning period:

Education

Access to high-quality education is essential for Aboriginal people to realize their individual and collective goals and aspirations. Improving Aboriginal education outcomes is key to eliminating Aboriginal poverty. INAC is preparing an education policy framework and a management framework that will serve as the basis for a fiscally sustainable plan aimed at achieving measured progress in Aboriginal high school graduation rates.

During the current planning period, the department will:

  • invest in students on reserve;
  • work with Aboriginal leaders, provinces and territories to enhance the capacity of public schools to provide quality education to Aboriginal students who attend school off reserve;
  • work with First Nations to establish the appropriate legislative framework for education; and
  • develop and implement systems (i.e., school boards) to ensure performance accountability.

Women, Children and Families

The government recognizes the pivotal role that Aboriginal women play within their families and communities, and in improving socio-economic outcomes. However, within First Nations communities, women are often the most seriously disadvantaged and in Canadian cities, half of all Aboriginal children are members of lone-parent families living in poverty. Therefore, it is a priority of this department to address some of the most devastating obstacles that have, for far too long, afflicted the lives of Aboriginal women in this country, the lives of their children and the health of communities.

On June 13, 2006, INAC obtained authority to undertake a collaborative consultation process on Matrimonial Real Property (MRP) that heavily involves the Assembly of First Nations and Native Women's Association of Canada. On June 20, 2006, the Minister announced a series of measures to protect the rights and well-being of Aboriginal women, children and families on reserves, including the MRP consultation process. In addition, the Minister announced the appointment of a Ministerial Representative for the MRP consultation, who will facilitate a three-phase consultation process and ensure that an appropriate legislative solution is proposed to the Minister at its conclusion.

During the 2006–2009 planning period, INAC will focus on:

  • MRP on reserve;
  • family violence prevention;
  • First Nations child and family services; and
  • lone-parent families led by Aboriginal mothers.

Accountability and Capacity Building

The department and its partners need to clarify the roles and responsibilities among all parties. Currently there is a lack of clarity between government and band councils, and between accounting for funding and responsibility for delivering programs and services. Self-government and devolution, along with an enhanced capacity of First Nations to manage more of their own affairs, are all means of realigning accountability and responsibility. This will also require First Nations to strengthen their capacity in financial management and auditing. Off reserve, the governance challenges are different. Nonetheless, the department needs to identify innovative, yet practical ways to enable Aboriginal people and organizations to be involved in decisions that affect their lives.

During the 2006–2009 planning period, INAC will:

  • work with First Nations organizations to improve accountability;
  • work with Métis organizations to increase their governance capacities;
  • streamline reporting systems;
  • work with partners to modernize the legislative and regulatory framework, including the modernization of the Indian Oil and Gas Act and regulations, the implementation of the First Nations Commercial and Industrial Development Act, and the modernization of the Lands Registry; and
  • continue to implement the Environmental Stewardship Strategy.

Drinking Water and Wastewater

For too long, First Nations have not enjoyed what many Canadians take for granted: clean, safe drinking water. On March 21, 2006, the Minister launched a plan of action to address drinking water concerns in First Nations communities (see http://www.ainc-inac.gc.ca/nr/prs/j-a2006/2-02757-eng.html).

To address the on-reserve drinking water and wastewater issue, the department will:

  • implement the protocol for Safe Drinking Water in First Nations communities;
  • establish a panel of experts to advise on an appropriate regulatory framework and develop an implementation plan;
  • establish a regime to ensure all water systems are overseen by certified operators; and
  • implement remedial plans for First Nations communities with serious water issues.

Housing

The government recognizes the challenge in sustaining suitable on-reserve and off-reserve housing for the fastest-growing sector of the Canadian population. Progressive First Nations are poised to increase housing production, especially market alternatives. INAC wants to explore opportunities to capitalize on the current levels of equity in band-owned housing to create market options and stimulate the use of public and private equity to increase the number of homes built. Off reserve, local housing markets have resulted in an inadequate supply of affordable housing and have contributed to increased homelessness of Aboriginal people.

During the 2006–2009 planning period, the department will:

  • work with First Nations organizations to examine options for First Nations-controlled housing authorities and institutions;
  • support the creation of new rental and ownership housing in accordance with a foundation of sound business principles and comparability;
  • work towards advancing a modern regulatory framework to facilitate individual property interests on reserve; and
  • work with First Nations to expand options for the purchase and financing of new and existing housing.

Mackenzie Gas Project

International demands for new sources of oil and natural gas have resulted in a major commitment to exploration investment in the North, including a proposal to bring into production major gas fields in the Mackenzie Delta and to build a gas pipeline down the Mackenzie Valley. This is a transformative development for the North, and for the Northwest Territories in particular, and will require significant effort to ensure that the federal government is equipped to make timely and sound decisions on the project. Consequently, INAC's role in leading the Government of Canada's project management approach to the Mackenzie Valley Gas Project continues to be a departmental priority, with the goal of ensuring that the Government of Canada advances national interests while meeting its obligations and responsibilities with respect to the pipeline project in a timely, efficient way.

During the 2006–2009 planning period, the department will:

  • support the advancement of this project through regulatory review to the operational phase; and
  • address socio-economic pressures on NWT communities from the Mackenzie Gas Project.

Northern Development

Canada's three territories have been transformed in recent decades, but there is tremendous potential for carefully considered further development. The increasing capacity of territorial institutions, new governance models, and effective partnerships between Aboriginal and non-Aboriginal groups are providing a solid foundation that will give Northerners greater control over the most important decisions regarding the future of their territories. The North possesses world-class diamond, gold and other mineral deposits, along with enormous oil and gas reserves. Major gas pipeline projects are under consideration. Development of these assets will generate significant economic benefits not only for Northerners, but also for all Canadians. It is important to ensure that such activities are managed effectively and responsibly, and that the northern environment is protected. Internationally, Canada is often viewed as a leader in the circumpolar world. Circumpolar and global co operation is beginning to address the international dimension of northern issues, in particular the effects of transboundary pollutants.

To support northern development during the 2006–2009 planning period, the department will:

  • develop a Regulatory Improvement Initiative Strategy to build greater efficiency and effectiveness into the regulatory system in a manner that is consistent with natural resource management objectives contained in signed land claims in all three territories;
  • make progress on devolution in the Northwest Territories and Nunavut; and
  • support International Polar Year research.

Summary Information

Financial and Human Resources
Indian and Northern Affairs Canada


  2006–07 2007–08 2008–09
Financial Resources ($ millions) 6,453.4 6,241.8 6,017.6
Human Resources (FTEs) 4,276.4 4,490.8 4,447.3

In a new approach to planning, the 2006–07 Report on Plans and Priorities focuses on a number of key priority areas (see Summary Chart). Each priority has a corresponding set of plans or initiatives, which are explained in detail in Section II. This approach identifies high-level strategic direction plus specific initiatives or plans that will receive primary attention; at the same time, it reflects day-to-day business by identifying and explaining all 16 program activities according to the department's approved Program Activity Architecture (see Figure 1).

Summary Chart: Departmental Priorities by Strategic Outcomes


Priority Type Program Activity Expected Results*
Strategic Outcome: The Government
Accountability and Capacity Building New Governance and Institutions of Government Strengthened First Nations and Inuit governance
and capacity through legislative, policy and programming initiatives.
Northern
Development
Ongoing Northern Governance Strong northern governance and effective institutions allowing Northerners to be prepared for the challenges and opportunities resulting from northern development.
Strategic Outcome: The People
Education Ongoing Education Students residing on reserve have access to elementary and secondary programs and services that are reasonably comparable to programs and services available in public schools in the province or territory in which the reserve is located.

Eligible First Nations and Inuit people benefit from post-secondary education opportunities.
Women, Children and Families New Social Development Women's rights are protected and eligible clients on reserve receive social services that are reasonably comparable to services provided by the province or territory in which the reserve is located.
Accountability and Capacity Building New Managing Individual Affairs A complete, accurate and current Indian register.
Strategic Outcome: The Land
Accountability and Capacity Building New Responsible Federal Stewardship Implementation of environmental management and stewardship programs and strategies, and modernized legislative and policy framework, for example, for commercial and industrial development, oil and gas management, and the Lands Registry.
    First Nations Governance over Land, Resources and the Environment Expansion of the First Nations Land Management Act and implementation of the First Nations Oil and Gas and Moneys Management Act.
Housing Ongoing Responsible Federal Stewardship Modernized legislative and regulatory framework for housing on reserve
Mackenzie Gas Project Ongoing Northern Land and Resources The North's natural resources developed in an economically, socially and environmentally responsible manner.
Northern Development Ongoing Northern Land and Resources The North's natural resources developed in an economically, socially and environmentally responsible manner
Strategic Outcome: The Economy
Water and Wastewater for First Nations Communities New Community infrastructure First Nations communities' water and wastewater facilities meet federal guidelines.
Housing Ongoing Community infrastructure Adequate on-reserve housing for First Nations communities.
Office of the Federal Interlocutor
Education

Women, Children and Families

Housing

Accountability and Capacity Building
Ongoing Co-operative Relations Development and implementation of practical ways of improving socio-economic conditions of Métis and non-Status Indians and urban Aboriginal people through: development of effective partnerships, development of organizational capacity and professional development.
*For planned spending, by program activity, refer to Section II.

Program Activity Architecture

Figure 1 presents an overview of 16 activities and sub-activities in the Program Activity Architecture (PAA) of Indian and Northern Affairs Canada.

Program Activity Architecture

Click on image to enlarge

Figure 1: Program Activity Architecture

The department's PAA was modified slightly in August 2005: the program activities for Governance and Institutions were combined into one program activity, and the Office of the Federal Interlocutor was added as a separate strategic outcome. In addition, the language regarding many sub-activities was clarified to reflect the refinement of the department's understanding of how these elements contribute to the strategic outcomes. For example, previous categories related to "other" activities were eliminated to ensure that each sub-activity was contributing directly to the achievement of a strategic outcome.

Different strategic outcomes have different client and stakeholder groups. For example, the Office of the Federal Interlocutor strategic outcome applies to Métis, non-Status Indians and urban Aboriginal people, whereas other strategic outcomes focus on First Nations, Inuit and Northerners. The descriptions of each strategic outcome and program activity clarify their scopes in terms of client and stakeholder groups.

The chart below shows how the department's strategic outcomes align with the Government of Canada's outcomes as reported in Canada's Performance 2005 (http://www.tbs-sct.gc.ca/report/govrev/05/cp-rc-eng.asp).

Alignment of INAC's Strategic Outcomes with Government of Canada's Outcomes


Government of Canada's Outcomes INAC Strategic Outcomes INAC Program
Activities
Economic: Strong Economic Growth The Economy — Aboriginal people and Northerners close the economic gap. Economic and Employment Opportunities for Aboriginal People
The Economy — Aboriginal people and Northerners close the economic gap. Access to Capital and Economic Development
The Economy — Aboriginal people and Northerners close the economic gap. Community Infrastructure
The Economy — Aboriginal people and Northerners close the economic gap. Northern Economy
Office of the Federal Interlocutor — Strengthened relationships with Métis, non-Status Indians and urban Aboriginal Canadians to raise awareness of their needs and improve access to federal services with the aim of improving their socio-economic conditions. Co-operative Relations
The Land — Sustainable use of lands and resources by First Nations, Inuit and Northerners Clarity of Title to Land and Resources
The Land — Sustainable use of lands and resources by First Nations, Inuit and Northerners. First Nations Governance over Land, Resources and Environment
The Land — Sustainable use of lands and resources by First Nations, Inuit and Northerners. Northern Land and Resources
Social: Diverse Society That
Promotes Linguistic Duality and Social Inclusion
The People — Strengthened individual and family well-being for First Nations, Inuit and Northerners. Managing Individual Affairs
The People — Strengthened individual and family well-being for First Nations, Inuit and Northerners. Education
The Government — Good governance, effective institutions and co-operative relationships for First Nations, Inuit and Northerners. Co-operative Relationships
The Government — Good governance, effective institutions and co-operative relationships for First Nations, Inuit and Northerners. Governance and Institutions of Government
The Government — Good governance, effective institutions and co-operative relationships for First Nations, Inuit and Northerners. Northern Governance
The People — Strengthened individual and family well-being for First Nations, Inuit and Northerners. Social Development
Office of the Federal Interlocutor — Strengthened relationships with Métis, non-Status Indians and urban Aboriginal Canadians to raise awareness of their needs and improve access to federal services with the aim of improving their socio-economic conditions. Co-operative Relations
Social: Healthy Canadians with Access to Quality Health Care The People — Strengthened individual and family well-being for First Nations, Inuit and Northerners. Healthy Northern Communities
Economic: A Clean and Healthy Environment The Land — Sustainable use of lands and resources by First Nations, Inuit and Northerners. Responsible Federal Stewardship
Economic: Income Security and Employment for Canadians The Economy — Aboriginal people and Northerners close the economic gap. Economic and Employment Opportunities for Aboriginal People

Canadian Polar Commission

The Canadian Polar Commission is responsible for:

  • monitoring, promoting and disseminating knowledge of the polar regions;
  • contributing to public awareness of the importance of polar science to Canada; enhancing Canada's international profile as a circumpolar nation; and
  • recommending policy direction to government.

Established in 1991 as Canada's lead agency in polar research, the Commission operates as an independent agency under the Canadian Polar Commission Act. It reports to Parliament through the INAC Minister.

The Commission has one strategic outcome: increased Canadian polar knowledge.

Summary Information

Financial and Human Resources
Canadian Polar Commission


  2006–07 2007–08 2008–09
Financial Resources ($ millions) 1.0 1.0 1.0
Human Resources (FTEs) 5.0 5.0 5.0

Indian Specific Claims Commission

Mandate and Strategic Outcome

The mission of the Indian Specific Claims Commission is to assist First Nations and Canada to resolve specific claims. The Commission operates at arm's length from government and First Nations. It is a commission of inquiry offering to a First Nation, at its request, an independent and objective process — other than litigation — to inquire into a specific claim when its claim has been rejected by the INAC Minister or when the First Nation disputes the compensation criteria the government proposes to use in negotiating the settlement of its claim. In addition, at any stage of the specific claims process, the Commission can provide mediation or facilitation services to assist the parties in reaching a satisfactory resolution when requested by both the First Nation and Canada.


Specific Claims and Comprehensive Claims

Current federal policy divides claims into two categories: specific and comprehensive claims. Specific claims arise from Canada's breach or non-fulfilment of lawful obligations found in treaties, agreements or statutes (including the Indian Act). Comprehensive claims are based on unextinguished Aboriginal rights where no treaty has been signed. Other claims involving grievances that resemble comprehensive or specific claims, but do not meet established program criteria for addressing these claims may also be considered in exceptional circumstances.

For more information, visit http://www.ainc-inac.gc.ca/ps/clm/scb-eng.html


The Commission has one strategic outcome: fair resolution of specific claims.

Planning Context

In 1991, after the Oka crisis of 1990, the federal government created the Indian Specific Claims Commission pursuant to the Inquiries Act. This statute permits the Governor in Council to approve an Order in Council establishing an independent commission to conduct inquiries on matters associated with good government. The original Order in Council designated the Prime Minister as the minister responsible for purposes of the Financial Administration Act. Subsequently, in July 2004, the INAC Minister was designated the minister responsible for these purposes. It should be noted, however, that the Commission operates on an arm's-length basis, independent of government. It reports on its activities in an annual report to the Governor in Council as well as in INAC's Report on Plans and Priorities and Departmental Performance Report. The Commission has an agreement with the Canadian Human Rights Commission for the provision of corporate services.

The Commission also provides information to the public concerning its activities and results; issues special reports; and, from time to time, is called upon to conduct speaking engagements.

Operating Environment

The Commission operates at arm's length and is independent from government and First Nations. It operates as a commission of inquiry, not as a court. It is important to note that the Commission is not, therefore, bound by strict rules of evidence, limitation periods in which claims can be brought or other technical defences that might otherwise present obstacles to resolution of a First Nation's claim. This flexibility enhances the Commission's ability to conduct its inquiries in a fair and impartial manner and to expedite the process of making recommendations to the Minister regarding a First Nation's specific claim. This process fosters the development and implementation of innovative solutions that can resolve complex and contentious issues of policy and law related to specific claims.

When a First Nation has researched its specific claim and submitted it to the INAC Minister together with any supporting documentation, INAC's Specific Claims Branch performs its own research and, with the involvement of the federal Department of Justice, determines if the claim establishes an outstanding lawful obligation on the part of the government. If the federal government does not believe it has an outstanding lawful obligation, the First Nation's claim is denied and the INAC Minister informs the First Nation that it will not negotiate a settlement. The First Nation then has two options: it can seek a remedy from the appropriate court, or it can request the Commission to conduct an inquiry. An inquiry typically takes between two and five years to complete, depending on the number of parties involved and the complexity of issues considered.

The Commission's staff is working at full capacity within the resources provided. Currently, the Commission is conducting 40 inquiries and supporting 24 mediation or facilitation cases, as well as meeting information demands from the public and First Nations. With respect to the future workload, INAC's Specific Claims Branch reports 658 specific claims under review, 50 having received a legal opinion from the Department of Justice about lawful obligation. The branch estimates it will be receiving about 70 new specific claims annually. Given the size of the current caseload, the demand for the Commission's services is forecast to continue well into the foreseeable future.

Summary Information

Financial and Human Resources
Indian Specific Claims Commission


  2006–07 2007–08 2008–09
Financial Resources ($ millions) 6.8
Human Resources (FTEs) 49