Factsheet: Advancing government-to-Nation relationships

Building meaningful relationships between municipalities and First Nation communities can contribute to Reconciliation, enhance the well-being and economic health of communities, and lead to more equitable approaches to governance. The Truth and Reconciliation Commission of Canada defines Reconciliation as: 

An ongoing process of establishing and maintaining respectful relationships. A critical part of this process involves repairing damaged trust by making apologies, providing individual and collective reparations, and following through with concrete actions that demonstrate real societal change. 

Despite progress over the past number of years, significant challenges remain in fostering equitable and respectful relationships between municipalities and Indigenous communities. Historical injustices, a lack of genuine consultation and insufficient recognition of Indigenous sovereignty and rights are key obstacles. Each must be addressed to build effective and sustainable government-to-Nation relationships.

This factsheet outlines principles, strategies and examples of successful government-to-Nation relationships, all of which recognize Indigenous communities as equal, sovereign partners. 

Many municipalities are embracing Reconciliation

• The City of Regina, SK, established an Indigenous procurement policy, with a goal of having a minimum of 20 percent of the total value of city procurement contracts being held by Indigenous vendors. Regina’s approach to economic Reconciliation is guided by an Indigenous Procurement Advisory Committee.
• The City of Montreal, QC’s 2020-2025 Strategy for Reconciliation with Indigenous Peoples comprises seven objectives, including the development of a government-to-government relationship in city institutions by recognizing Indigenous governments as privileged partners in regional dialogue. The strategy also recognizes Indigenous civil society and its organizations as necessary actors in discussions as well as in the search for solutions and decision-making about urban issues that concern them.
• The City of Edmonton, AB, entered a relationship with Enoch Cree Nation and signed a Memorandum of Understanding outlining their intent to build a new relationship as neighbours. This partnership has led to collaborative efforts in areas such as recreation, land-use planning and public transit, enhancing regional prosperity and community well-being.
• The Commitment to Indigenous Peoples, demonstrated leadership by engaging in meaningful partnerships with local Indigenous communities. This includes joint economic initiatives, cultural events and regular consultation meetings that foster a collaborative and respectful relationship.
• The City of Kenora, ON, has placed its land acknowledgement that it is located on the traditional territory of the Anishinaabe and Métis at the forefront of its website. Recognizing the historical land base of the Wauzhushk Onigum, Niisaachewan and Washagamis Bay First Nations, shows Kenora’s commitment to Reconciliation and partnership with its Indigenous neighbours.

Building government-to-Nation relationships

Municipalities that wish to advance their relationships with Indigenous communities may wish to consider how the following essential considerations, core principles and structural of partnerships might strengthen their Reconciliation work. 

Essential considerations

• Government-to-Nation relationships must acknowledge Indigenous communities as sovereign partners.
• Successful relationships require genuine consultation, shared decision-making and cultural sensitivity.
• Long-term engagement and continuous collaboration are crucial to sustainable partnerships.

Core principles of Reconciliation

• Respect: Recognizing the inherent value and dignity of Indigenous cultures.
• Recognition: Acknowledging Indigenous rights and sovereignty.
• Partnership: Engaging in meaningful collaboration with Indigenous communities.

“Understanding and educating is the biggest part of Truth and Reconciliation. Fighting prejudice. Few people know the contribution that First Nations have made to the development of Canada." 
~Chief Lance Haymond, Kebaowek First Nation
 

Structural partnerships 

• Collaborate with local Indigenous leaders and organizations.
• Form partnerships and coalitions with Indigenous groups.
• Establish municipal Reconciliation committees.
• Set up Indigenous community advisory boards or committees.
• Create informal partnership tables and spaces for discussion and cooperative action

Examples and practical steps to foster Reconciliation efforts 

Educate municipal staff and residents about Indigenous rights and history

The City of Yellowknife, NWT, mandates training for all municipal staff on the history and legacy of residential schools. This helps ensure that city staff are informed about Indigenous histories and the impacts of colonialism, promoting a culture of understanding and respect. Some valuable resources that can foster a deeper understanding and respect for Indigenous rights and history include: 

• University of Alberta Indigenous Canada: A exploring the history and contemporary perspectives of Indigenous Peoples in Canada, from an Indigenous viewpoint. It's a comprehensive resource for anyone looking to broaden their knowledge.
• Reconciliation Saskatoon, Be A ConnectR: Provides opportunities to learn about Indigenous peoples’ past and present experiences. The site offers various paths to start a learning journey.
• Royal Alberta Museum: An extensive collection of resources that includes reading lists, films, documentaries, radio programs, podcasts, Indigenous language apps and other materials. 

Start with respect and understanding to forge and strengthen long-term, sustainable relationships with Indigenous communities

• The Declaration of Mutual Commitment and Friendship: A joint initiative by the Association of Municipalities of Ontario and the Ontario Federation of Indigenous Friendship Centres that provides a framework for collaboration between municipalities and Indigenous communities. The declaration emphasizes Reconciliation and sets a provincial and federal standard for meaningful engagement with Indigenous communities in urban and rural areas.
• The Community Economic Development Initiative (CEDI): This initiative partners First Nations with neighbouring municipalities to develop relationships and create joint economic development projects. More than 20+ partnerships between First Nations and municipalities have been established since 2013. Each was guided by the “stronger together” approach, and this has been translated into a practical toolkit that offers steps to connect with Indigenous neighbours and collaborating on joint initiatives. 

Engage in inclusive consultation with Indigenous neighbours and residents

The City of Hamilton, ON, has implemented a robust consultation process with Indigenous communities, outlined in its Urban Indigenous Strategy report. The process includes regular meetings and dialogue with Indigenous leaders to ensure their active participation in city planning and development initiatives, reflecting a commitment to ongoing and meaningful engagement. 

The following approaches can build meaningful and inclusive consultation with Indigenous communities:

• Establish regular consultation meetings: Schedule regular meetings with Indigenous leaders and community members to discuss ongoing projects, community needs and potential areas for collaboration. This opens ongoing dialogue and opportunities for active participation in decision-making processes.
• Develop a consultation protocol: Create a written protocol that outlines how consultations will be conducted, including who will be involved, the frequency of meetings and the methods of communication. The protocol should be developed in partnership with Indigenous communities to ensure it meets their needs and expectations.
• Implement community liaison roles: Designate community liaison officers who are responsible for maintaining open lines of communication between the municipality and Indigenous communities. These officers can help facilitate consultations, address concerns and ensure that the voices of Indigenous residents are heard and considered in municipal decisions.

Build capacity on both sides to enable full participation of Indigenous communities in municipal projects

The City of Thunder Bay, ON, has partnered with Fort William First Nation to conduct an Indigenous Economic Impact Analysis. Developed in collaboration with the Thunder Bay Community Economic Development Commission, this initiative aims to assess and enhance the economic contributions of Indigenous communities in the region.

The following capacity-building approaches can contribute to effective and sustainable collaboration:

• Resources and training: Offer resources, training programs and workshops to enhance the skills and knowledge of municipal and Indigenous community members. Edmonton’s Indigenous Relations Office develops community capacity-building projects that include training and workshops focused on topics such as governance, leadership development and project management. It offers technical support and expertise to Indigenous communities to help them participate more fully in municipal projects. Activities can include assistance with infrastructure development, environmental assessments or other technical areas. The City of Vancouver, BC, has partnered with local Indigenous communities to provide technical assistance to develop housing projects, offering expertise in topics such as urban planning, architectural design and construction management. The goal is to support Indigenous-led housing initiatives that meet the needs of Indigenous residents.

Reconciliation action plan

Concrete action is needed to advance Reconciliation efforts and strengthen relationships between municipalities and Indigenous communities. A Reconciliation action plan can be the foundation for this work.

The following questions can be helpful in guiding the development of a municipal Reconciliation action plan.

• Current initiatives: What Reconciliation efforts are currently underway in the municipality?
• New initiatives: What are one or two initiatives that the municipality might commit to right now?
• Steps to implementation: What three steps might the municipality undertake to implement these new initiatives?

Related resources

• Factsheet: Advancing equity, diversity and inclusion in municipal service delivery | The Federation of Canadian Municipalities
• Factsheet: Applying an Indigenous inclusion lens to climate adaptation | The Federation of Canadian Municipalities
• Understanding and implementing UNDRIP | The Federation of Canadian Municipalities 
• A Municipal Guide to the Truth and Reconciliation Commission’s Calls to Action | The Alberta Urban Municipalities Association
• Indigenous Engagement Strategic Plan | The University of Regina
• Truth and Reconciliation Calls to Action | The Truth and Reconciliation Commission of Canada

Tanya Tourangeau, a proud Dene woman and founder of Tanya T Consulting | Reconciliation Strategist | Canada provided her expertise as a Reconciliation strategist in the writing of this factsheet, and FCM thanks her for her insights.