Leadership in Aboriginal Communities

The issue of leadership, its development and recognition is a fundamental factor in assessing the readiness of First Nations for self-government.

In Custom, Tradition and Aboriginal Self-Government within the Context of Canadian Constitutional Principles and Federal Government Practise - Final Report, the authors suggest that corporate groupings are inherent in native cultures.¹⁹ In the broad definition of corporate bodies, the "band" is not a free-standing level of corporate organization.²⁰

In the discussion of the type of governance in bands, the writers assess bands from both a rank and egalitarian view. Some differences between Aboriginal and federal expectations are evident. The process for leadership in First Nations communities that develops is a subtle process which slowly creates a collective consensus as to leadership. When achieved, leaders are able to influence but not direct others.²¹ The authors also suggest that to codify forms of custom and tradition may "fossilize" the forms of government.²²

In fact, there is a tremendous diversity across the country as to models of governance and the local accountability mechanisms which have evolved in different communities. An excellent examination of accountability among the Cree is found in the paper by R.F. McDonnell, "Prospects For Accountability Among the Cree of James Bay". While it does not purport to be a comprehensive analysis, the author nonetheless is able to review the primary cultural influences on accountability and reveal the complexity and difficulty of applying non- Aboriginal traditional views of accountability. Even within the Cree communities there are differing views of traditional accountability. As the author states:

There are, in consequence, contending modalities of accountability circulating in virtually everyone's mind and the question for Cree is how to sort them out. From the outside it would seem, that no non-Cree could possibly be in a position to rationalize an adequate process with any confidence...But...things are not greatly advanced by listening too intently to any single voice from the inside... ²³

In assessing the way in which accountability mechanisms can be developed at a local level, it is appropriate to consider the concept of fiscal equivalence. Fiscal equivalence is the idea that citizens who pay the cost of government should receive the benefits.²⁴ As Robert Bish suggests, the correlation between cost and benefit create an incentive for the citizen to want to influence decision-makers and hold them accountable.²⁵

There has been some suggestion of a First Nation parliament which would govern and administer programs on a national level.²⁶ Current federal supervision would be replaced by that of a national government of First Nations. Even if Canadians are in favour of such a political structure, how such a structure can be created is unclear at present. The same considerations for effective accountability at the local level would apply to such a national body.

¹⁹Scott, Colin et al Custom, Tradition, and Aboriginal Self-Government Within the Context of Canadian Constitutional Principles and Federal Government Practice ,Indian and Northern Affairs Canada, Self Government Sector, 1988, page 71.

²⁰ibid. page 75.

²¹ibid. page 77-78.

²²ibid. page 118.

²³McDonnell, R.F. Prospects for Accountability Among the Cree of James Bay, prepared for DIAND, November 1992, page 29.

²⁴Bish, Robert L. Financing Indian Self-Government: Practice and Principles, School of Public Administration, University of Victoria, 1987, page 25.

25ibid.

²⁶Courchene, Thomas J. and Powell, Lisa M. A First Nations Province. School of Policy Studies, Queen's University, January 1992.

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