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AbouttheSeriesHostedbythePOLISWaterSustainabilityProjectattheCentreforGlobalStudies,UniversityofVictoria,CreatingaBlueDialoguebringstogetherexpertwaterpractitionersandthinkers,aswellasemergingwaterleaders,toengagewithinnovativeideasonwaterpolicyandgovernanceinCanada.Bycreatinganonlinecommunityofinterest,thewebinarseriesstrengthensthenationalcapacitytoengagewithandsolveproblems,andraisesawarenessaboutemergingCanadianwaterissues,bestpractices,andpolicies.

CreatingaBlueDialogueWebinarSummaryJanuary15th,2018

CollaborativeConsentandRevitalizingIndigenousLaws:PathwaystoIndigenousWaterGovernanceandCo-Governance

AttendanceApproximately175participants,includingFirstNations,federal,provincial,andlocalgovernmentstaff;studentsandresearchers;privatesectorprofessionals;environmentalNGOs.IntroductionInrecentyears,governmentsatalllevelsinCanadahavestatedtheircommitmentstoreconciliationandbuildingnation-to-nationapproacheswithIndigenousPeoples.BoththefederalandB.C.governmentshavecommittedtoimplementingtheUnitedNationsDeclarationontheRightsofIndigenousPeoples(UNDRIP).Freshwateroffersanimportantopportunityaroundwhichtostartbuildingthesenewrelationshipsandconsent-basedgovernanceapproaches.

Researchdemonstratesthatco-governancebetweenIndigenousandnon-IndigenousgovernmentsisawinningconditionforwatershedgovernanceinB.C.However,keyquestionsabouthowtorealizeco-governancepersist,suchas:Howcangovernmentsshareauthorityandworktogetherinpracticewhentheremaybeoverlappingresponsibilities,contestedcontrol,conflictingvalues,anddifferinglegalsystems?

Beyondco-governance,Indigenousnationsareengaginginabroadrangeofdiversewatergovernancestrategies.Numerouspotentialpathwaysexistfornationstoactivelyengageinwatergovernance,includingrevitalizationofIndigenouswaterlaws.

Inthiswebinar,RosieSimms(POLISWaterSustainabilityProject),MichaelMiltenberger(NorthRaven),andSimonOwen(IndigenousLawResearchUnit,UniversityofVictoria)sharedideasontwopathwaystowardsIndigenouswatergovernanceandco-governanceapproaches:collaborativeconsentandrevitalizationofIndigenouslaws.GuestSpeakersRosieSimmsisawaterlaw/policyresearcherandprojectmanagerattheUnviersityofVictoria’sPOLISWaterSustainabilityProject.HerworkhastakenherfromPanamatotheCanadianArcticandfocusesonwatergovernance,resourcemanagement,andIndigenousgovernanceandrights.MichaelMiltenbergeristheprincipalofNorthRaven.HeworkswithAboriginalandCrowngovernments,ENGOs,industry,andtheprivatesectorprovidingstrategicpoliticaladvice.Hespent20yearsasanMLAintheNorthwestTerritoriesLegislature.

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Box1UNDRIPArticle32.2“Statesshallconsultandcooperateingoodfaithwiththeindigenouspeoples’concernedtotheirownrepresentativeinstitutionsinordertoobtaintheirfreeandinformedconsentpriortotheapprovalofanyprojectaffectingtheirland,territoriesandotherresources..."

SimonOwenhaspracticedCanadianlawinseveralIndigenousterritories,mostlyintheareasofcriminaldefenceandIndianActbandgovernance.Now,asaseniorresearcherwiththeUniversityofVictoria’sIndigenousLawResearchUnit,heworkswithcommunitiestorecover,revitalize,andreintegrateIndigenouslegaltraditionstotheirplaceattheheartofsafeandself-governingnations.SimonholdslawdegreesfromtheUniversityofVictoriaandUniversityofBritishColumbia.Part1:CollaborativeConsentandWaterinBritishColumbia:TowardsWatershedCo-GovernanceRosieSimms(POLIS)&MichaelMiltenberger(NorthRaven)BackgroundontheReport“CollaborativeConsentandWaterinBritishColumbia”The2017reportCollaborativeConsentandWaterinBritishColumbia:TowardsWatershedCo-Governancelaysoutaviablemodelforachievingacriticalshifttowardsmoreequitablenation-to-nationrelationshipsbetweenIndigenousandnon-Indigenousgovernments,withaspecificfocusonfreshwatergovernanceinB.C.Thereporttakesadetailedlookatcollaborativeconsent,howitdiffersfromothercollaborativeandpartnershipprocesses,andincludescasestudiesonhowelementsoftheapproachhavebeenusedinB.C.,Canada,andinternationally.ThisreportemergedasajointeffortbetweenthePOLISWaterSustainabilityProjectandtheCentreforEnvironmentalResources(CIER)andbuildsintheauthors’collectivelivedexperiencesworkinginwatershedgovernanceandIndigenousinitiativesinBritishColumbia,theNorthwestTerritories(NWT),andbeyond.Itisimportanttonotethatthisisadiscussionpaperanditisnotintendedtobeprescriptive;differentcommunitieswillchoosehowtheybestmoveforwardinthegovernancespace.CurrentLegal/PoliticalContextandNewApproachestoDecision-MakingThechanginglegalandpoliticalcontextinB.C.andCanadaiscreatingawindowofopportunitytobringaboutnewapproachestodecision-making.Inparticular,bothCanadaand,morerecently,theProvinceofBritishColumbiahaveannouncedtheirsupportandintentiontoimplementtheUnitedNationsDeclarationontheRightsofIndigenousPeople(UNDRIP).Thedeclarationhas46wide-rangingprovisions,includingakeyprovisionrelatedtoconsentandthegovernanceoflandandwater(SeeBox1).ThefederalgovernmenthasalsoacceptedalloftheTruthandReconciliationCommission’sCallstoAction,includingthecallforalllevelsofgovernmenttoadoptandimplementUNDRIPframeworkforreconciliation.ItisaclearlystatedpriorityforgovernmentsatallleveltoadvancedownthepathofreconciliationthroughtheframeworklaidoutbyUNDRIP—andthissetsthestageforafundamentallydifferentapproachtodecision-makingforlandandwater.Collaborativeconsentisproposedasonepathwaytodeliveronthesecommitmentstoaction,withwaterbeingakeyplacewherethisnewapproachcanbeapplied.CollaborativeConsentandItsHallmarksCollaborativeconsentisamutualconsentprocessthroughwhichIndigenousandnon-Indigenousgovernmentscommittoworkingtogetherwiththegoalofachievingeachother’sconsent,whetherthatistodecisions,policies,laws,orplans.Collaborativeconsentdoesnotmeanthatallpartiesareinvolvedineachother'sdecisionsatalltimes,butthattogethertheydecidewherecollaborationisnecessary(ornot).Collaborativeconsentdoesrequirebothpartiestoadjusttheirinstitutions,governanceregimes,andtimelinestocreatesharedspacetodealwithproblemsandsharedconcerns.Sevenhallmarksofcollaborativeconsenthavebeenidentified,drawnfromexamplesofexistingcollaborativeinitiatives:

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1.CollaborativeConsentisfundamentallybasedontrust,respect,anddiplomacybetween

partneringgovernments.Governmentsmusttreateachotherwithmutualrespectaspartnerswithanabilitytoexertjurisdictionwithintheirownsphere.Bothpartiesmustcomewitharealcommitmenttofindingmutuallyacceptableoutcomesandtonotproceedoverthedisagreementoftheirpartners.

2.Allgovernmentsrecognizeeachotheraslegitimateauthorities.Bycomingtothetableandbeing

partofthedecision-makingprocess,eachgovernmentexertstheirauthorityandrecognizesthattheothersholdrelevantjurisdiction,butdonotnecessarilyneedtoagreeaboutthescopeorbasisforthatauthority.Inthisway,theseprocessescanproceedevenifthereareveryfundamentaluncertaintiesandtensionsremaining,suchasuncededterritoryandunresolvedlandtitleandrightclaims.

3.Collaborativeconsenttablesaredecision-makingtables.Representativesfromthegovernments

involvedmusthavetheauthoritytoparticipateandmakedecisionsonthematterathand.ThisrequiresbothCrownandIndigenousnationstogothroughtheirowninternalprocessestodecidewhoshouldsitatthetableontheirbehalfandmakedecisions.

4.Thescopeofissuesthatareunderconsiderationcanbeextensiveandultimatelymustbe

satisfactorytoallparties.Collaborativeconsentcanbeappliedtoanythingfromtheprojectleveltohigher-levellawandpolicydevelopment.Whattheprocesslookslikeandhowitisdesignedwilllookverydifferentdependingontheplace,theissueandthescale.

5.Collaborativeconsentstartsattheveryfrontendofaprocessandallgovernmentscommitto

remainingatthetableforthelonghaul.Collaborativeconsentisanever“over”:itisalong-term,iterative,andon-goingprocessofengagementtorebuildtrustandrelationships.Itrequiresallgovernmentsinvolvedtoremaincommittedtostayingatthetable.Theprocessextendsfromnegotiationthroughtoimplementation.

6.Eachgovernment’sinterestsmustbedealtwithinasatisfactorymannerfromtheirownpointof

view.Allinterestsarevalidandwelcomeatthetable.Nogovernmentcandecideforanyothergovernmentiftheirinteresthasbeenmet:thishastobeself-defined.

7.Theprocessgeneratesrealoutcomes.Collaborationisnotanendinandofitself,butratheraprocess

thatcanactuallyreachameasurableimprovementonthegroundandinthewater.TheNorthwestTerritoriesStoryCollaborativeconsentdidnothappenovernightintheNWT:theco-draftingagreementtookplaceafteryearsofnegotiationbetweengovernments.Theideaforco-draftinglegislationemergedaftertherealizationthatnothingwouldgetdoneiftheIndigenousandterritorialgovernmentsdidnotworktogether.Inordertobuildafoundationoftrustbetweenthegovernments,atablewassetupin2005inordertoco-drafttheSpeciesatRiskActandtheWildlifeAct.AccordingtoMichaelMiltenberger,thereisnolegalreasonwhyco-draftingshouldnottakeplace:theonlyprerequisiteispoliticalwill.CollaborativeConsentApplicationsintheB.C.

Box2KeyPointsaboutCollaborativeConsent

• Itisnotthesameasconsultationandaccommodation

• Itisnotaveto• ItisnotlimitedtotheNWT;

otherplacescandothistoo• Itisnotjustonemeeting–it

involvesongoingengagement

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WaterSustainabilityActAnapplicationofthecollaborativeconsentapproachintheB.C.watergovernancecontextisintheimplementationofB.C.’sWaterSustainabilityAct(WSA).TheWSA,althoughithasmajorflawsincludingthelackofrecognitionofIndigenouswaterrights,providesarealopportunitytobuildnewrelationshipsandapplydifferentapproachesgoingforward.Forexample,collaborativeconsentcanbeusedindevelopingwatersustainabilityplansundertheAct,whichcouldinvolvecreatingaco-chairedmodelfromtheoutset,fromplandevelopmenttoimplementation,withIndigenousnationsbringingtheirlawsandauthoritytothetable.HowDoesCollaborativeConsentHelpUsMeetUNDRIP?

• Itbuildslong-term,ongoinggovernancerelationshipsonafoundationofmutualconsent.• ItengageswithIndigenousnationsthroughtheirownrepresentativeinstitutions.• ItensuresIndigenousnationsareactivelyinvolvedindetermininganddevelopingprioritiesand

strategiesforlandsandwaterswithintheirterritories.• ItcanhelpIndigenousgovernmentsandpublicgovernmentsworktogethertomapoutaway

forwardincriticalenvironmentalandsocialissues.Formoreinformation,pleaserefertothereportCollaborativeConsentandWaterinBritishColumbia:TowardsWatershedCo-Governance(POLIS/CIER,2017)availableathttps://poliswaterproject.org/polis-research-publication/collaborative-consent-water-british-columbia-towards-watershed-co-governance/Part2:WaterLaws:LessonsfromIndigenousandColonialStewardshipSimonOwen(IndigenousLawResearchUnit)RevitalizingIndigenouslawsandlegaltraditionsisanimportantpartofpost-colonialwatergovernance.Indigenouslegaltraditionsaredeeplygrounded,reasonedwaysofmanagingtheneedsofhumancommunitieswithinspecificterritories,includingrelationsbetweenhumanandnon-humanbeingsandwiththelanditself.TheIndigenousLawResearchUnit(ILRU)andEnvironmentalLawCentre,bothbasedintheUniversityofVictoria’sFacultyofLaw,areworkingwithcommunitiesinthreeBritishColumbiawatershedstoarticulateprinciplesandprocessesregardinghowwaterisgovernedandmanagedwithinIndigenous,aswellascolonial,legaltraditions.Indigenouswaterlaws,authoritativeandadaptabletochangingcircumstances,areimportanttoupholdintheirownright,andinaninter-societalcontext,alsorespondtothelimitationsandthepossibilitiesoftheWaterSustainabilityAct.IndigenouscommunitypartnersinthisprojectaretheLowerSimilkameenIndianBand,CowichanTribes,andTsilhqot'inNationalGovernment.CommonMythsaboutIndigenousLaw

• Indigenoussocietiesaslawless.Contrarytocontinuingcolonialliesaboutterranullius,Indigenoussocietieshavealwayshad,andcontinuetohave,sophisticated,intellectuallyreasoned,reasonable,coherent,andauthoritativewaysofmanagingneedsandrespondingtoproblems.Thesearelaw.

• Indigenouslawsascustom.Customisanelementineverylegaltradition,includingcoloniallegaltraditions,butlawsarealwaysmorethanjustcustom.Indigenouslegalordersincludediversesources,resources,andmethodsoflegitimization.

• Indigenouslawassacred.Again,conceptsofthesacredareobservableinalllegaltraditions,buttoconceiveofIndigenouslawsas‘just’sacredistoperpetuatethecolonialfreezingoflaw.Toeffectivelyrespondtocontemporarychallenges,Indigenouslawsincludedebateanddissent,andcontinuetoadaptandchangeacrosstime.

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• Indigenouslawasasinglelegaltradition.Indigenouslegalordersarediverseanddistinct,engagingwithuniversalhumanissuesinparticularwaysthroughtheapplicationofprinciplesandpracticesthataregroundedinspecificterritoriesandhumancommunities.

WhatareIndigenousLaws?

1. IndigenouslawsaslegaltraditionsIndigenouslawsaremorethanjustrulesandpractices.Legaltraditionsconcernthenatureoflaw,itsorganization,anditsroleinsociety.

2. Indigenouslawsaslaw

Indigenouslawsarebothdiverseareadaptable.Lawiscomplexandimperfect,andrequirescontinualpublicengagement,deliberation,anddissent.

3. Indigenouslawsasvital

Indigenouslawsmaynotbefullyintact,visible,orevenfunctioningtoday,butcanberecoveredandrevitalizedevenaftertheimmenselossanddamagetheyhavesufferedinthecolonialperiod.

ManyresourcesexistforIndigenouslawsresearch,including(butnotlimitedto)Elders,knowledgekeepers,personalmemoriesanddirectexperiences;stories,ceremonies,narratives,songs,practices,rituals,customsandconventions;dreams,dances,art,land,nature,artefacts,petroglyphs,scrolls;Oralhistoriesandcollectivelyownedoralhistoriesbyfamilies,clans,andsociety;language,historicaldescriptiveaccountsbyoutsiders;witnesstestimony,trialtranscripts;publishedanthropologicalandhistoricalresearch;writtenworksbycommunitymembers:poems,fiction,stories,andlegends;andpublishedcollectionsofstories.TheILRUmethodologyanalyzesoralhistoriesandnarrativeswithinspecificIndigenouslegaltraditionstobuildpreliminaryframeworksoflawthatrespondtospecificresearchquestions.Thisworksupportsmoreinformedconversationswithcommunitymemberstodeepenthelegalknowledgeandunderstandingsthatresultinfinalresearchproducts,includinganalyses,casebooks,andglossariesofIndigenouslegalterms.PhasesofILRUResearchProjectsAllILRUresearchisdoneattheinvitationofIndigenouscommunitiesPhase1:EngagewithcommunitiestoidentifyresearchgoalsandspecificquestionsPhase2:BringresearchquestionstotextualmaterialstodeveloppreliminaryframeworkandanalysisPhase3:CarryoutcommunityfocusgroupstocreateanintegratedframeworkandanalysisPhase4:CommunityconsultationandvalidationofanalysisPhase5:Implementation,application,andcriticalevaluationQuestion&AnswerPeriodNOTE:Merrell-AnnPhare,anotherco-authorofthereport“CollaborativeConsentandWaterinBritishColumbia,”providedadditionalthoughtsduringthequestionandanswerperiodviathewebinarchatbox.Hercommentsareincludedbelow.Howcanstewardshipgroupswhodon'thaveanyauthoritybutwhoareworkingonwatersupporttheimplementationofthisconceptandbuildmeaningfulpartnershipswithFirstNations?RosieSimms:FirstNationsshouldbeincludedattheveryoutsetofanycollaborativeprocessandhelpshapethedesign,guidingpriorities,andprinciples.Itisessentialfornon-IndigenouswatershedorganizationsandgovernmentstomakemeaningfulefforttounderstandFirstNation’srights,historyin

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thewatershed,andcurrentactivities/andinterests.ItisimportanttotrytounderstandthegoalsoftheIndigenousnationsinvolvedandhowtheymightbenefitthroughtheirparticipationinthatcollaborativeinitiative.Thereneedstobeflexibilityinthedesigntoaccommodatethenation’sneedsandpriorities,andconsiderationgiventocapacityandsupportneededforthenation’sparticipation.Whatistheroleoftraditionalgovernancestructures,whicharenotrecognized,andtheissuethatCrowngovernmentstendtoonlyengagewiththebodiesandtheleadersthattheyrecognizeandfund?MichaelMiltenberger:Changeiscoming.MinisterWilson-RaybouldhasinfactputforwardachallengetoIndigenousgovernmentstoself-organize.WhileIndigenousgovernmentsdidnotcreatethesystemsthatarecurrentlyinplaceacrossthelandorthestructuresofgovernance,theyarenowbeingaskedtohelpsolvethatproblem.TheopportunityiscomingtoFirstNationsandthatdiscussionisgoingtogetresolvedinthecomingyearsaswebuildoffofthesupportandtheopportunitycreatedbythenation-to-nationimplementationofUNDRIP.Merrell-AnnPhare:Inmyview,oneofthegreatestnegativelegaciesofcolonizationisthefracturingofIndigenousNationhoodwherethathashappened.AgreatchallengefacingIndigenousNationsisorganizingthemselvestobeabletocollaborateingovernanceasweareproposing.TheTruthandReconciliationCommissionsuggestedtheremightbe50to60nationsinCanadaatthetimeofcolonization,buthowthatlookstodayissomethingIndigenousNationsmustdefine.Ithinkthegreatestneedisfortieredsystems,thatcanworkwithpublicgovernments.Whogetstherevenuesforcollaborative“resource”management?Merrell-AnnPhare:IntheNWT,thepublicandIndigenousgovernmentsnegotiatedaregional(territory-wide)resourcerevenuesharingagreement,whererevenuesaresharedinadditiontowhateverbenefitsmayflowtoalocalnationfurthertoanImpactandBenefitAgreement,forexample.Whatwerethekeyunderstandingsreachedinthefour-yearprocessthatfacilitatedtheNWTagreement?Merrell-AnnPhare:Thekeyunderstandingswere:

• Theimportanceoftraditionalknowledgeasakeypartnertoscienceinassessingandmakingdecisions.

• Theendgoalfortheuseofwaterbyhumans(thatitmustremaincleanandproductiveforalluses—forexample,human,fish,wildlife—foralltimes).

• Thatthecommitmentsinthelandclaimstowatermustbeabletobemetunderthewaterstrategyandthebilateralwateragreements.Thefour-yearprocesscreatedthedrivingvisionforthenegotiations,andsetthecollectivevisionfortheNWTuseofwater,pluscreatedtherelationshipsnecessaryforwatergovernanceintheNWT.

Whogetscalledwhenpeopledonotcomplywiththeagreements?Merrell-AnnPhare:Attheon-the-groundIndigenousnation,local,ormunicipallevel,servicesagreementscanaddresssharedservicesincludingwater,waste,fire,andpolicing.Assumingtheywanttoworkcollaboratively,asgovernments.Collaborativegovernancetablescouldbeusedtodeterminethis.IntheNWT,whodecideswhatarethetenetsofIndigenousscienceandknowledge?Merrell-AnnPhare:ThetraditionalknowledgetenetsarebeingcreatedbytheIndigenousgovernmentsthatworkwithGovernmentoftheNWTorthatsitonthecommitteesthatmanagethetransboundaryagreements.

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OtherDiscussionCommentsandThemes• Co-governanceandcollaborativeconsenteffortsneedtobefunded:thereisaninherentneedforfundingofresearchandcommunitydevelopment,aswellasfundingtoincreaselocalcapacitywithinIndigenouscommunities.

• Indigenouspeoples’governancemodelshavebeenimpactedinter-generationallyandneedreinvestmentaswellasrevitalization.

• Politicalwillisaprerequisiteforaco-governanceapproach.• Attentionshouldbepaidtorurallocalitieswithregardstowaterissues.• SolutionstowaterissuesmustbeinformedbyIndigenouscultureandknowledge.• Cleanwaterandcleanairmustbethefirstpriorityinallnegotiations.

InterestedinMoreWebinars?ToviewpastCreatingaBlueDialoguewebinarsvisitwww.youtube.com/POLISWaterProject.Previoustopicsinclude“AboriginalCo-GovernanceofWaterandWatersheds,”and“EnvironmentalFlowsandHealthyWatersheds:TowardsProtectioninCanadaandB.C.”

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