The historic context of agreements

Discussion forums

Electronic data exchange

Self-evaluations and development plans

THE HISTORIC CONTEXT OF AGREEMENTS
By Annabelle Dionne

Thirty years ago, the Department of Indian Affairs and Northern Development (INAC) managed all programs and services provided to Aboriginals. Over the years, Aboriginal self-awareness grew, thus laying the basis for a long process of self-government that they continue to claim today, at the beginning of the 21st century. The transfer of responsibilities began in the early 1980s, thus making Aboriginals managers of the services offered to their members. To accomplish that goal, various funding arrangements between INAC and Aboriginal communities were implemented and improved over the years.

Since 1980, Aboriginals have signed numerous agreements with the Department, with each one containing various terms and conditions. In 1984, comprehensive funding arrangements were established. These agreements, which were re-negotiated and renewed each year, combined several departmental agreements into a single arrangement, thus making for greater uniformity among the various provisions. In 1986, opting for greater flexibility, INAC proposed multi-year Alternative Funding Arrangements (AFAs) which could be renewed every five years and which allowed First Nations to introduce their own program criteria.

Eight years later, a pilot projesct was conducted, which resulted in replacing the AFAs by multi-year Financial Transfer Agreements (FTAs). This type of agreement enabled communities to receive comprehensive funding for a group of programs by means of adjusting the budget on an annual basis. It also made it possible to include the funding of other federal departments, such as Health Canada and the Solicitor General of Canada. The pilot project began in 1994-1995, and by December 31, 1998, 12 FTAs had been signed.

With the end of six of these agreements on March 31, 2001, the Quebec regional office of INAC, in a partnership with the communities concerned, conducted an evaluation of the pilot project. Given the fact that no specific evaluation framework had been designed or planned, a unique initiative was set up--discussion forums, which were used to talk over accomplishments and the measures best suited to achieving established goals.

Since January 1, 1999, FTAs are renewed in the form of Canada/First Nations Funding Agreements (CFNFAs). These multi-year agreements, developed jointly with Health Canada, have modified the dynamics of the relationship between the Federal government and First Nations. This type of agreement provides a framework for transferring funding from INAC and other departments, while also leaving it up to each department to manage its own relationship with First Nations.

DISCUSSION FORUMS
By Annabelle Dionne

In 1994-1995, a new type of funding agreement was introduced in the form of a pilot project. It went by the name of Financial Transfer Agreement, otherwise referred to as FTA. These agreements gave First Nations greater power to manage their programs, and thus marked a new step in the direction of self-government.

On November 10, 1999, a meeting was held with First Nations chiefs and managers for the purpose of working out a consensus surrounding the terms and conditions of renewing these arrangements. The actor present agreed on producing an increasingly results-based type of assessment and discussing accountability process mechanisms.

Consulting and Auditing Canada helped design a uniform framework for discussion between the Department and First Nations. The resulting document defined the contents and topics to be developed during forums so as to facilitate discussions among participants. An analysis of agreements served to identify six main themes: 1- education; 2- social services and income security; 3- financial and human resources management; 4- operations, maintenance, and immobilizations; 5- economic development; and 6- accountability.

Aboriginal political representatives and managers as well as INAC representatives met to discuss the delivery of programs and services in communities. These discussions served to highlight the various stakes, local issues and alternatives involved. Over the next several years, the objective is to enable First Nations to enjoy access to this type of agreement if they so desire.

ELECTRONIC DATA EXCHANGE
By Annabelle Dionne

Reports to be filed left and right are a duty that frequently faces any organization or individual that is held accountable for activities and services provided to a target clientele. Data compilation and interchange are nevertheless essential to a smoothly operating society. For the Department of Indian Affairs and Northern Development (INAC) and First Nations, these reports are also a part of the reality of doing business with one another.

Given the fact that data are generally presented on paper, data collection and processing represent a time- and resource-consuming process for communities and INAC alike. In 1997, members of the Quebec regional office of INAC considered making this task easier using computer resources. However, the technology of the time only permitted data interchange via diskettes.

In 1999, Ottawa launched the idea of collecting some types of data using a modern--i.e., electronic--vehicle within the framework of two initiatives: Capital Asset Management and Non-Registered On-Reserve Population. Electronic data interchange made this idea a reality, thus paving the way for new technologies and enabling the First Nations to exchange information with INAC via the department Website (under Electronic Service Delivery).

The INAC Quebec regional office quickly took advantage of this opportunity to replace diskettes by the Internet among interested communities. The Department quickly realized the extent of interest that this new data management tool had awakened in communities. In the fields of education and social development, this tool has made it possible to improve the performances of both the Department and the First Nations. Among other benefits, directly entering data in the computer system reduces errors, generates savings of paper, and cuts down on information handling; all in all, the Department is better able to serve First Nations. As this system was set up in both official languages, it offers a potential for use across the country.

SELF-EVALUATIONS AND DEVELOPMENT PLANS
By Annabelle Dionne

For approximately fifteen years now, the Department of Indian Affairs and Northern Development (INAC) has collaborated with Aboriginal communities on self-evaluations of their management. Quite recently, development plans have become an important tool for making progress toward Aboriginal self-government.

With the transfer of programs to the First Nations during the 1980s, Aboriginal communities had to begin managing the delivery of various services to their members and other beneficiaries. Funding arrangements were designed to ensure that all Aboriginal citizens received a minimum of services at a level comparable to that enjoyed by other Canadians, and had the possibility of exercising their rights in the community.

In 1986, the Alternative Funding Arrangements (AFAs) enabled the band councils of each First Nation to assess program management by means of self-evaluations. Only in 1997 were First Nations first prompted, under the terms of funding arrangements, to prepare a development plan for the purpose of improving their governance.

To begin with, self-evaluation is used to measure a community's progress in terms of its accountability process and to identify any shortcomings, where applicable. One way of ensuring accountability is to demonstrate transparency in the form of written policies, to disclose this information and make it available to the public, and to provide a redress mechanism that allows members of the community who feel they have been harmed by administrative decisions to receive a fair hearing.

Following this, the objectives to be accomplished are set out in the development plan, for a period that is determined by each First Nation. The INAC Funding Services work jointly with First Nations communities on providing follow-up. In addition, these plans are thoroughly reviewed every five years, so as to enable First Nations to continue forward with development. All First Nations have until the end of February 2001 to complete their self-evaluation and development plan.

In the year 2000, the First Nations had the opportunity to talk over governance and accountability during a series of discussion forums. For the first time, managers, politicians, councillors and chiefs were able to discuss subjects of current interest and compare their experiences. The opinion of participants was unanimous: these forums facilitated contacts and helped forge new relationships.

The results of the self-evaluation by First Nations of their management and development plan have made Quebec a leader in Canada.

The Abenakis | The Algonquins | The Attikameks | The Crees
The Hurons-Wendat | The Malecites | The Micmacs
The Mohawks | The Montagnais | The Naskapis | The Inuits