Crown-Indigenous Relations and Northern Affairs Canada: 2023 to 2024 Departmental Results Report

Table 1: Targets and results for Crown-Indigenous Relations

Table 1 provides a summary of the target and actual results for each indicator associated with the results under Crown-Indigenous Relations.

Additional information on the detailed results and performance information for CIRNAC's program inventory is available on GC InfoBase.

Details on results

The following section describes the results for Crown-Indigenous Relations in 2023–24 compared with the planned results set out in CIRNAC's departmental plan for the year.

Past injustices are recognized and resolved

Assimilation policies and practices have led to the denial of Indigenous rights in the past. To resolve grievances, Canada remains committed to pursuing dialogue, partnerships and negotiation as positive means of advancing reconciliation. This is an ongoing process which requires affirmation of rights, acknowledgement of past wrongs and injustices, understanding the colonial history of Canada and working with Indigenous Peoples to co-develop solutions. In 2023–24, CIRNAC focused on the following areas:

• Specific claims
• Additions to reserves
• Truth and Reconciliation Commission Calls to Action
• Investigations at former residential schools

Specific claims deal with past wrongs against First Nations. These claims are grievances that First Nations have against the Government of Canada for its failure to discharge its lawful obligations with respect to pre-1975 treaties or its management of First Nations lands, funds and other assets. In 2023–24, the Government of Canada continued to work with First Nations to resolve outstanding specific claims through negotiated settlements. CIRNAC resolved specific claims at an accelerated pace and settled 42 specific claims, for a total of $2.5 billion in compensation going to First Nations across the country. The resolution of specific claims, through the acknowledgement of and compensation for past wrongs, is a key element in advancing reconciliation with First Nations. Financial compensation also allows First Nations to advance community and economic development priorities.

In line with the United Nations Declaration on the Rights of Indigenous Peoples Act Action Plan, Canada continues to co-develop options for reform of the specific claims policy and process. In 2023–24, Canada and the Assembly of First Nations (AFN) made significant progress in co-developing a reform proposal, including options for a Centre for the resolution of specific claims that would increase fairness and timeliness in the resolution of specific claims. It would instill more trust in the process, and in doing so would meaningfully contribute to Canada's efforts to move forward on the path to reconciliation.

CIRNAC also partners with the Department of Justice to manage the resolution of litigation. This includes negotiating out-of-court settlement agreements and supporting litigation through the court system. This year, 2 significant out-of-court settlements addressing historical claims were successfully concluded. Firstly, on January 18, 2024, an agreement was signed to resolve claims related to past annuities raised in the Restoule litigation from 21 First Nations of the Robinson Huron Treaty of 1850. Canada and Ontario made equal payments of $5 billion, for a total of $10 billion in compensation. This settlement resolved a longstanding historical grievance for the Robinson Huron Treaty First Nations and addressed an outstanding legal liability for the Crown. The settlement also creates opportunities for the Robinson Huron First Nations to invest in a brighter future for their communities and grow the local economies in the Treaty territory. Secondly, on March 27, 2024, the Animbiigoo Zaagi'igan Anishinaabek Treaty Reserve Claim Agreement was signed, resulting in a subsequent payment of $130.8 million. This out of court settlement concluded a special claim that was filed with the department in 2018, and addressed a related court action that was filed in 2019. Settlements of this claim outside of the courts is a demonstration of CIRNAC prioritizing the resolution of litigation cases through negotiation.

Childhood Claims settlements attempt to balance individual compensation with forward-looking investments to support healing, wellness, education, language, culture and commemoration. This approach has resulted in the past settlements of: Anderson (Newfoundland and Labrador Residential Schools) Sixties Scoop (Status Indians and Inuit); McLean (Federal Indian Day Schools); Gottfriedson (Day Scholars); and Gottfriedson (Band Class). In 2023–24, this approach also supported the settlement of Percival (Indian Boarding Homes). Further funding was provided to Them Days to support the Newfoundland and Labrador Residential School travelling exhibit. The exhibit documents the history of the schools through the voices and testimonials of survivors. In addition, funding was provided to the Île-à-la-Crosse Survivors' Committee to support their ongoing work to document the history of the Boarding School and related healing and commemoration activities. Since 2016, approximately 183,500 Childhood Claims survivors have received individual compensation, totaling $9.53 billion. CIRNAC, with support from the Department of Justice, continued to work with survivors, their counsel, Indigenous leadership, as well as provinces and territories to collaboratively resolve past injustices that have been committed against Indigenous children.

Additions to reserves are parcels of land added to an existing reserve land of a First Nation or that create a new reserve, in a rural or urban setting. In 2023–24, CIRNAC provided approximately $4 million to 58 First Nation communities and organizations to conduct First Nation-led engagement on additions to reserves policy redesign. The objective of the policy redesign is to allow for a streamlined additions to reserve process. CIRNAC and the AFN continued to advance ongoing bilateral work, including a joint review of obstacles, challenges and opportunities in collaboration with Indigenous Services Canada. CIRNAC also engaged directly with provincial governments to discuss key barriers and best practices in their respective regions, along with engaging with First Nations and other key partners such as the Lands Advisory Board, the National Aboriginal Lands Managers' Association and self-governing First Nations. Through an extensive review of past literature on additions to reserves, whereby approximately half of the reports were advanced by First Nations and First Nation organizations, CIRNAC developed and shared guiding principles to facilitate ongoing co-development with the aim of prioritizing First Nation interests. The review included the analysis of multiple reports, audits, case studies, and action plans related to additions to reserves that the Government of Canada, Indigenous Institutions, and First Nations advanced over nearly 2 decades.

The Government of Canada has been working towards full implementation of the 94 Calls to Action delivered by the Truth and Reconciliation Commission to advance the process of reconciliation. As of March 2024, over 85% of the 76 federally-led or shared Calls to Action were well underway, implemented or completed. All 94 Calls to Action aim to reduce disparity between Indigenous people and non-Indigenous Canadians, and close the socio-economic gaps.

Specifically, in 2023–24, CIRNAC continued to strengthen its relationship with Indigenous youth and Indigenous Youth Roots (formerly known as Canadian Roots Exchange) by focusing on delivery of the pilot project that responds to the Truth and Reconciliation Commission's Call to Action 66. The pilot has paved strong pathways for Indigenous youth from across the country to convene and support each other and engage federal institutions on key policy initiatives that impact youth and their communities. Indigenous youth-led projects spanned 13 provinces and territories and reached over 27,000 youth participants. In 2023–24, CIRNAC and Indigenous Youth Roots co-developed options for implementation of Call to Action 66. Budget 2024 extended the pilot project an additional 2 years to allow for engagement of national Indigenous-led organizations on these options.

The department continued to implement the Truth and Reconciliation Commission's Calls to Action 72 to 76 regarding Missing Children and Burial Information. The Residential Schools Missing Children – Community Support Fund is a responsive, request-driven program intended to support First Nations, Inuit, and Métis partners and communities in designing and implementing community-led, Survivor-centric, and culturally appropriate initiatives to identify children that did not return home from residential schools, to locate unmarked burial sites associated with former residential schools, and to honour families' wishes to repatriate children's remains. In 2023–24 the department provided $102 million to 41 new initiatives and 78 existing initiatives to document and locate the missing children and possible unmarked burial sites associated with former residential schools and to the National Centre for Truth and Reconciliation (NCTR). Since the Community Support Fund was established in 2021, 146 funding agreements have been put in place, providing over $216.6 million to community-led initiatives.

The NCTR is a key element of the Residential Schools Legacy Program. In 2023–24, the department provided almost $2.7 million to support the NCTR's continuing efforts to implement Call to Action 72 (National Indian Residential School Student Death Register and public-facing Memorial Register) and Call to Action 73 (National Indian Residential School Online Cemeteries and Burial Sites Register).

In 2023–24, the department also provided close to $2 million to the National Advisory Committee on Residential Schools Missing Children and Unmarked Burials National Advisory Committee (the Committee), which is co-administered by the department and the NCTR. The Committee serves as an independent and trusted source of technical advice for communities, supporting their efforts to locate, identify, honour, and memorialize children who died while at residential schools. The Committee held information webinars to support communities' efforts to search for their missing children and held knowledge sharing gatherings in Yellowknife, Northwest Territories, Regina, Saskatchewan and Truro, Nova Scotia.

This past year, CIRNAC continued to lead the whole-of-government approach in supporting the Indian Residential Schools Documents Advisory Committee. This included guiding the identification and review of Indian Residential Schools and Indian Residential Schools Settlement Agreement (IRSSA) administrative-related documents, while respecting Survivors' wishes, legislation, court orders, settlement agreements and ongoing litigation processes. The Advisory Committee will provide recommendations to support the development of options to share these documents with the National Centre for Truth and Reconciliation.

Finally, the department continued work towards finalizing the implementation of the Indian Residential Schools Settlement Agreement and sunsetting of the program. As well, the department continues to respond to remaining litigation stemming from the implementation of the IRSSA.

Indigenous Peoples advance their institutional structures and governance

The development of Indigenous-led institutions and governance is an essential step towards Indigenous self-determination. It is a fundamental principle of the United Nations Declaration on the Rights of Indigenous Peoples. CIRNAC worked to put in place effective mechanisms to support the transition away from colonial systems of administration and governance enabling Indigenous Peoples to advance their governance institutions. In 2023–24, CIRNAC focused on the following areas:

• Indian Act alternatives
• Jurisdiction over fiscal and land management
• Governance capacity enhancement

In 2023–24, CIRNAC continued work in partnership with the Lands Advisory Board on priorities related to the nation-to-nation Framework Agreement on First Nation Land Management. During this time, 6 additional First Nations became signatories to the Framework Agreement on First Nation Land Management for a total of 209 signatory First Nations. Of these, 113 are now fully operating in accordance with their community-approved land code laws including 8 First Nations who approved their land codes over the last 12 months and a fourth First Nation who transitioned to a comprehensive self-governance arrangement with the Government of Canada. Furthermore, Budget 2023 committed $35.3 million over 3 years (2023–2026) towards the co-development of a new First Nation Land Governance Registry system in partnership with the Lands Advisory Board. A funding agreement between the department and the First Nations Land Management Resource Centre was also signed to support the development of the First Nation Land Governance Registry that will be owned, managed and administered by a First Nation-led organization.

An amendment process to the current First Nations Land Registry Regulations is being prepared to allow for the disclosure of personal information under the Privacy Act and to facilitate the transfer of the administration of the new and modernized First Nation Land Governance Registry to an independent First Nation-led organization. This is intended to provide communities under First Nation Land Management Regime with more opportunities to realize the economic benefits arising from local control over their lands. The regulatory changes will advance once the First Nation Land Governance Registry project is further developed.

The opt-in First Nations Fiscal Management Act (FNFMA) supports reconciliation, self-determination, and socio-economic development of First Nations. The 4 institutions created under the legislation provide First Nations with the institutional supports, capacity building services and the tools they need to exercise jurisdiction in the areas of taxation, fiscal and financial management, infrastructure, and access to capital.

Bill C-45, an Act to amend the First Nations Fiscal Management Act, received Royal Assent on June 20, 2023. It brought forward legislative amendments to the FNFMA, co-developed with the FNFMA institutions and the First Nations Infrastructure Institute Development Board, which modernized the mandates of the First Nations Tax Commission and the First Nations Financial Management Board, stabilized their operations, and established a national First Nations Infrastructure Institute under the Act. Canada also invested $69.4 million over 5 years, from 2022 to 2027, to support these enhancements.

The department continued to work with the fiscal institutions, partner Modern Treaty First Nations and the Province of British Columbia on regulations to enable Treaty and self-governing First Nations to borrow using "other revenues". These include revenues from leases and other business revenues on reserve. Efforts also progressed on drafting regulations for the utilization of local revenues (property taxes), along with developing a policy approach for service-focused Indigenous organizations, such as health or education authorities, to leverage benefits from the Act. Finally, the department continued to support the FNFMA institutions' work on options for additional fiscal revenues, enhanced access to pooled insurance, capital, investment and assets management services for communities.

Throughout the year, CIRNAC offered funding under the Enhanced Capacity Building funding stream to support Indigenous groups participating in recognition of Indigenous rights and self-determination table discussions. These efforts contributed to Indigenous groups undertaking rights and self-determination preparedness activities prior to the implementation of agreements. The funding targets groups in negotiations or discussions to help them achieve objectives according to co-developed discussion and negotiation work plans. Enhanced capacity funding was provided to 10% of recipients that have reached a certain progress (negotiation of an Agreement in Principle) at their negotiation table.

Moreover, in 2023–24, to support the transition away from the Indian Act and enhance self-determination for First Nations, CIRNAC advanced work on a strategic approach to reform First Nation citizenship and membership. This included incorporating an action plan measure into the United Nations Declaration on the Rights of Indigenous Peoples Act Action Plan, involving consultations with First Nations and other impacted Indigenous groups to support the co-development of opt-in alternatives to Indian Act registration and membership (First Nation citizenship).

Indigenous Peoples determine their political, economic, social and cultural development

The Government of Canada is committed to renewing relationships with Indigenous Peoples based on the affirmation and implementation of their right to self-determination, including the right to self-government. In 2023–24, CIRNAC focused on the following areas:

• Permanent bilateral mechanisms and other relationship agreements
• Preliminary types of co-developed agreements
• Treaties, self-government agreements and other constructive arrangements
• United Nations Declaration on the Rights of Indigenous Peoples Act Action Plan

Permanent bilateral mechanisms (PBM) are established with First Nations, Inuit, and Métis Nation leadership to identify joint priorities to advance reconciliation, co-develop policies and monitor progress. The 3 distinctions-based representative National Indigenous Organizations are engaged in an annual PBM cycle. It consists of senior officials meetings, attended by federal Assistant Deputy Ministers, leaders meetings attended by various Ministers, and a Summit attended by the Prime Minister and various Ministers, all according to their respective priority areas.

In 2023–24, the Inuit-Crown Partnership Committee convened 2 Inuit-Crown leaders' meetings and 3 senior officials' meetings. These meetings are instrumental in supporting Inuit self-determination and advancing the goal of creating a more prosperous Inuit Nunangat. In 2023–24, the Committee added Homelessness as a new priority area. Other progress included the endorsement of the report Building a Partnership for Transformational Change and its associated recommendations, ongoing implementation of the recommendations outlined as part of the United Nations Declaration on the Rights of Indigenous Peoples Act Action plan, and outreach efforts to promote the implementation of the Inuit Nunangat Policy across federal departments.

Continuing to work towards fulfilling shared commitments set throughout the previous PBM cycle, Canada and the Métis Nation re-affirmed key priorities for 2023–24 at the June 1, 2023 Crown-Métis Nation Summit. These priorities include Principles of Co-Development, Health and Wellness, Economic Development, Languages, International Work, National Benefits Sharing and Primary and Secondary education. The parties agreed to add Emergency Management as a new priority. Justice and Policing was identified as a priority at the January 19, 2024, senior officials meeting. In addition to the Summit, a total of 3 senior officials' meetings and 1 leaders' meeting were convened in 2023–24. Notable successes include the endorsement of the PBM Terms of Reference, the International Workplan, the Justice and Policing working group Terms of Reference, the Justice and Policing Workplan, and the endorsement of the Principles of Co-Development. The Principles of Co-Development are scheduled to be signed at the next Summit.

The AFN-Canada PBM held 3 senior officials' meetings in 2023, focusing on prioritizing areas for future collaboration and advancing the co-development principles. New priorities were introduced at the leader's meeting in June 2024 and will be endorsed in the fall/winter 2024 at the Prime Ministers' Summit.

In 2023–24, the department provided a total of $4.5 million to the 3 national Indigenous women's organizations (Pauktuutit Inuit Women of Canada, Les Femmes Michif Otipemisiwak and the Native Women's Association of Canada) to implement the relationship agreements and advance common priorities. This funding supported the ability of the organizations to engage communities, identify needs and interests as well as work with federal and provincial governments. The importance of these relationships was confirmed in the development of the United Nations Declaration on the Rights of Indigenous Peoples Act Action Plan.

The inaugural Intergovernmental Leaders' Forum, established under Canada's Collaborative Modern Treaty Implementation Policy, took place on May 8, 2023, with all parties acknowledging the considerable progress made in regard to the implementation of modern treaties. The Forum agenda, co-developed with leaders of Indigenous modern treaty partners and self-governing Indigenous governments, outlined 10 priorities for discussion, which have served as a starting point for ongoing conversations.

CIRNAC also continued to advance work on the implementation of the Canada-Congress of Aboriginal Peoples (CAP) Political Accord, which aims to build a renewed relationship and narrow the socio-economic gap between off-reserve Indigenous Peoples and non-Indigenous Canadians. In 2023–24, 5 working groups met regularly to share information and discuss joint priorities related to justice, Indigenous languages, Missing and Murdered Indigenous Women and Girls, family programs and housing. CAP and federal partners worked collaboratively to complete a draft of the first joint progress report and continued key policy conversations on joint priorities.

In 2023–24, CIRNAC continued its work on the Collaborative Fiscal Policy Development Process, a whole-of-government initiative involving Canada and 26 self-governing Indigenous governments, to co-develop expenditure need methodologies and approaches as set out in Canada's Collaborative Self-government Fiscal Policy. These efforts will contribute towards self-governing Indigenous governments having sufficient fiscal resources to fulfill their responsibilities regarding infrastructure, lands, resources and treaty management, and language revitalization.

The Missing and Murdered Indigenous Women and Girls (MMIWG) Secretariat published the second Federal Pathway Annual Progress Report in 2023–24. This report provides an overview of work completed to date to address the immediate and long-term needs of Indigenous women, girls and 2SLGBTQQIA+ people, ensuring they live free from violence. Almost 20 federal departments and agencies participated in the development of the Federal Pathway's second Annual Progress Report, with the MMIWG Secretariat acting as the central coordinator.

As a first step toward creating a Red Dress Alert, the MMIWG Secretariat organized 16 pre-engagement sessions in 2023–24 to solicit preliminary feedback on the alert from over 150 representatives from national and regional First Nations, Métis and Inuit partners, Indigenous women's and 2SLGBTQQIA+ groups, urban Indigenous partners, Indigenous grassroots organizations, first responders, First Nations police services, and Indigenous service providers across the country.

On February 7–8, 2024, the MMIWG Secretariat coordinated the second National Indigenous-Federal-Provincial-Territorial Roundtable on Missing and Murdered Indigenous Women, Girls and 2SLGBTQQIA+ people. The Roundtable was attended by about 100 in-person and 130 virtual participants, including 72 national and regional Indigenous organizations representing First Nations, Inuit, Métis, Urban and 2SLGBTQQIA+ people. At this meeting, federal, provincial and territorial ministers, and national and regional Indigenous leadership discussed the development of a Red Dress Alert, the Minister's Special Representative's Report on Call for Justice 1.7 (Indigenous and Human Rights Ombudsperson), and oversight and monitoring of the implementation of the Calls for Justice. It also provided an opportunity for Indigenous partners and federal, provincial and territorial partners to share and discuss best practices and opportunities for cross-jurisdictional collaboration. A report summarizing the Roundtable will be published and shared with participants.

In 2023–24 a total of 30 multi-year projects were supported, representing $4.1 million in funding which was provided to regional and grassroots Indigenous women's and 2SLGBTQQIA+ organizations through the Supporting Indigenous Women's and 2SLGBTQQIA+ Organizations program. These multi-year projects provided the organizations with the ability to self-determine priorities and interests to inform policies and programs including those that are Indigenous-led. For example, the department provided funding for the Alberta regional Indigenous women's organization Esquao Institute for the Advancement of Aboriginal Women to host a gathering of Indigenous women leaders and organization representatives in February 2024. This gathering focused on advancing priorities and the identification of concrete substantive actions for the federal government. Esquao will present a report of recommendations in 6 key areas to the department and other relevant federal departments in early fall 2024.

The MMIWG Secretariat also funded 19 projects across the country in 2023–24 , inclusive of all distinctions, under the Indigenous-Led Data Research Projects Program. This initiative aims to improve data methodologies specific to missing and murdered Indigenous women, girls and 2SLGBTQQIA+ people.

On September 6 and 7, 2023, the Government of Canada chaired the Fifth Convening of the Trilateral Working Group on Violence against Indigenous Women and Girls in collaboration with Indigenous leaders from Canada, the United States, and Mexico. This initiative was undertaken in partnership with Indigenous women's organizations, including Pauktuutit Inuit Women of Canada, Les Femmes Michif Otipemisiwak and the Native Women's Association of Canada, and the Assembly of First Nations' Women Council. The 2 themes, Access to Justice and Human Trafficking, were selected in consultation with these organizations. The subsequent 2-day annual convening featured a panel discussion with Indigenous leaders, experts, and government officials, along with concurrent breakout sessions for Indigenous leaders and government representatives. As a result, officials agreed to continue protecting and upholding the rights of Indigenous women, learning from and implementing Indigenous-led approaches, providing accessible and culturally safe services, and supporting the preservation of Indigenous cultures and languages. Collectively, these commitments aim to address the root causes of violence affecting Indigenous women, girls, and 2SLGBTQQIA+ people in North America.

CIRNAC continued progress in its negotiations with Indigenous Peoples across the country. As of March 31, 2024, there were 173 active negotiation tables and 16 ongoing discussions to address Canada's annuity obligations with Treaty 8 First Nations. These negotiation tables explored new approaches to reaching agreements that recognize the rights of Indigenous Peoples and foster self-determination in the spirit of co-development and partnership. Results in 2023–24 stemming from these discussions include the signature of 17 agreements, 6 preliminary-type agreements, and the introduction of 3 pieces of enabling legislation. The conclusion of agreements is a critical piece of Canada's commitment to support the self-determination of Indigenous Peoples. Highlights of agreements concluded in 2023–24 include:

• The signature of A Self-Government Treaty Recognizing the Whitecap Dakota Nation / Wapaha Ska Dakota Oyate. The treaty, co-developed by Canada and Whitecap Dakota Nation, recognizes Whitecap Dakota Nation as one of the Aboriginal Peoples of Canada, affirming their inherent right to self-government under the Constitution Act, 1982. Through this Treaty, the Whitecap Dakota Nation can build on its success in creating economic opportunities and enhance community well-being for the benefit of its members for generations to come.
• The signature of the Nang K̲'uula Nang K̲'úulaas Recognition Agreement with the Haida Nation and British Columbia. Through this incremental reconciliation agreement, the Government of Canada recognized the Haida Nation as the holder of inherent rights of governance and self-determination, and the Council of the Haida Nation as the authorized governing body of the Haida Nation, as a step toward future agreements on Haida governance and other priority topics. This was followed by the introduction of Bill S-16, An Act respecting the recognition of the Haida Nation and the Council of the Haida Nation, to implement certain sections of the agreement.
• The signature of a historic Interim Land Reconciliation Agreement allocating 80.09 hectares of land to be set aside as a reserve for the Snuneymuxw First Nation.
• The signature of a Rights and Reconciliation Agreement with respect to Forillon National Park with the Nation Micmac de Gespeg. The Agreement provides for the establishment of a shared governance framework between the Nation Micmac de Gespeg and Parks Canada for initiatives and activities in Forillon National Park.
• The announcement of a $10 billion out-of-court settlement between Canada, Ontario and 21 Robinson Huron Treaty First Nations to provide compensation to address past claims and honour the Crown's Treaty obligations with respect to annuities. The settlement will support the Robinson Huron First Nations to invest in a brighter future for their communities and grow the local economies in the Treaty territory.
• The signature of a Memorandum of Understanding for Advancing Reconciliation with Standing Buffalo Dakota First Nation. The Memorandum of Understanding outlines how the parties will work together on shared solutions to deliver results on community priorities. Canada and Standing Buffalo Dakota First Nation will continue negotiating an agreement that builds upon the recognition of a distinct historical relationship between the Nation and the Crown.
• The signing of a Framework Agreement between the Huron-Wendat Nation and Canada. The co-developed Framework Agreement establishes a discussion process on a variety of subjects to explore arrangements that will address the interests and priorities of the Huron-Wendat Nation.

In addition, Canada presented formal settlement offers to 13 First Nations negotiating comprehensive treaty agreements. Canada also achieved chief negotiators' understandings with 3 First Nations negotiating under the British Columbia Treaty Process. All Nations that received financial offers in 2023–24 accepted those offers.

In 2023–24, CIRNAC continued to advance the implementation of the co-developed Recognition and Reconciliation of Rights Policy for Treaty Negotiations in British Columbia, in partnership with the other Principals to the British Columbia treaty negotiations process (the First Nations Summit and the Province of British Columbia). CIRNAC worked closely with the Province of British Columbia and participating Indigenous Nations to advance tripartite policy work with respect to the Policy: Commitments to Further Work, with a focus on land-related issues and specifically the constitutional status of lands. CIRNAC also worked closely with the Principals on the first tripartite-sponsored review of the Policy. The review, which concluded in October 2023, examined successes and challenges in implementing the Policy at negotiation tables and identified opportunities to support the Policy's implementation going forward.

CIRNAC played a significant role in the development of the United Nations Declaration Act Action Plan. During the development phase of the Action Plan, CIRNAC supported the Department of Justice by collaborating with Indigenous partners to co-develop many of the Action Plan measures. In particular, CIRNAC led the co-development of the Indigenous Modern Treaty Partner priorities chapter in the Action Plan in collaboration with a coalition of modern treaty partners. CIRNAC also worked directly with a variety of Indigenous partners to validate measures in the draft Action Plan through a round of engagement from April to June 2023.

Modern treaties and self-government agreements are the foundation for transformative change that move us away from colonial systems of administration and governance. Full and fair implementation of these agreements embodies a solemn commitment to the ongoing process of reconciliation with modern treaty and self-government Indigenous partners, and is key to strengthened and sustained nation-to-nation, Inuit-Crown and government-to-government relationships. In 2023–24, CIRNAC worked with partners to ensure meaningful implementation of 27 modern treaties, 3 stand-alone self-government arrangements and 9 sectoral education agreements. As a result, all public government institutions and modern treaty partners had stable and ongoing funding for their programs and services.

In 2023–24, CIRNAC and Indigenous Modern Treaty partners advanced work under Canada's Collaborative Modern Treaty Implementation Policy to support the full, effective, and timely implementation of all modern treaties in Canada. This is done by increasing understanding and awareness within the federal public service to advance a systemic shift in behaviour and culture, and address institutional legacies of colonialism. The Policy, released in early 2023, is also part of Canada's commitment to advance work with Indigenous partners to implement the aims and objectives of the United Nations Declaration on the Rights of Indigenous Peoples Act.

CIRNAC continued advancing work under Canada's Collaborative Modern Treaty Implementation Policy as well as ensuring this work aligned with the various Action Plan measures from the United Nations Declaration Act Action Plan, including:

• Working with partners to improve oversight and accountability of federal Modern Treaty implementation. Recommendations were co-developed with Indigenous Modern Treaties partners. The preferred oversight mechanism put forward was the Commissioner for Modern Treaty Implementation.
• Establishing an Intergovernmental Policy Circle, with representatives of Indigenous Modern Treaty partners and Government of Canada officials, to serve as a senior level forum for working collaboratively on cross-cutting implementation issues, and to discuss federal legislative, policy, and program initiatives. In 2023–24, 2 Policy Circle meetings were held.
• Discussions between CIRNAC, Indigenous Modern Treaty partners, and other federal government departments continued on a revised Cabinet Directive on the Federal Approach to Modern Treaty Implementation. This involved 14 sessions, between CIRNAC and other departments participating in the Modern Treaty Implementation Policy Working Group.

CIRNAC also delivers training on modern treaty and self-government implementation to promote awareness across the federal government. In 2023–24, CIRNAC delivered 38 training sessions to over 5,000 federal officials from over 15 departments and organizations.

CIRNAC offers guidance, systems and tools to federal officials in order to support Canada's whole-of-government approach to the Duty to Consult. In 2023–24, more than 1,300 inquiries for information, training, knowledge acquisition, etc. primarily related to consultation and accommodation were received by the Single Window, which serves as the point of entry for inquiries related to Consultation Support Services, including accessing information, system support, and other services on Indigenous consultation and engagement. In 2023–24, CIRNAC continued to provide funding for the co-development and implementation of consultation tools for Indigenous partners, such as Consultation Protocols and Resources Centres, enhancing foundational capacity for Indigenous Peoples to manage consultation consistent with their self-determination objectives. Budget 2023 provided $11.4 million over 3 years, starting in 2023–24, for CIRNAC to engage with Indigenous groups to renew the guidelines for federal officials to fulfill the Crown's duty to consult Indigenous Peoples. Engagement started in the Winter of 2024 and the first phase is near completion. In 2023–24, CIRNAC also formally established 3 regionally-based partnerships teams (North, West and East) to lead a whole-of-government approach to consultation and accommodation across the country in their respective regions, as well as manage the Federal Initiative on Consultation Program. CIRNAC also supported the Impact Assessment Horizontal Initiative by providing advice on the duty to consult to departments and agencies like the Impact Assessment Agency of Canada and the Canada Energy Regulator who are responsible for fulfilling the duty to consult on major projects they regulate and review. The advice, provided under the "Partnering with Indigenous Peoples" theme of the Horizontal Initiative, supports meaningful opportunities for partnering with Indigenous Peoples, thereby bolstering the Government of Canada's commitment to reconciliation. In 2023-24, CIRNAC provided advice on 27 major projects (47.4% of active major projects undergoing an impact assessment across Canada south of 60) during all phases of an assessment from pre-planning to post-decision.

Amplifying Indigenous voices and facilitating the sharing of Indigenous information is a key component of the Aboriginal and Treaty Rights Information System (ATRIS). ATRIS is not only a research tool that helps to provide a whole-of-government approach to Indigenous consultation, but one that acts as a relationship building tool between Indigenous communities and the Crown. This system houses information pertaining to potential or established Aboriginal or treaty rights to support federal departments, and others in engaging and consulting with Indigenous partners. In 2023, significant system enhancements were made to ATRIS which included updates to comply with Web Content Accessibility Guidelines. In 2023–24 more than 1,300 individuals were trained on ATRIS through diverse methods, including 63 webinars, 7 consultation training demonstrations and 31 tailored training sessions provided primarily to federal, provincial and territorial officials to support data needs. In 2023–24, 11 community and organization profiles in ATRIS were co-developed and validated with Indigenous partners to advance Indigenous data sovereignty and support Action Plan Measure 68 of the United Nations Declaration on the Rights of Indigenous Peoples Act Action Plan.

To support the government-wide strategy for reconciliation, in 2023-24, training on consultation and engagement was provided to 3,911 federal public servants, a 30% increase from the previous year. The objective was to provide guidance and knowledge to federal employees on their roles and responsibilities when consulting with Indigenous Peoples. In collaboration with Indigenous partners, training materials were co-developed and co-presented to ensure Indigenous perspectives are respected. A variety of training events were offered to federal employees, including 11 tailored trainings (fireside chats), 7 Engagement, Consultation, and Accommodation training sessions, 1 joint event with the Canada School of Public Service, and 1 engagement policy information session.

Finally, on behalf of Canada, CIRNAC is committed to developing relationships with Indigenous Peoples through the co-development of consultation protocols and resource centres. Consultation protocols create a process for federal departments to follow when consulting on potential adverse impacts to Aboriginal or treaty rights by facilitating engagement, promoting relationship building, and clarifying roles and responsibilities between governments and Indigenous communities. A consultation resource centre is a team within an existing Indigenous organization that supports capacity building for Indigenous communities to respond to requests for consultation, including training, developing best practices, coordinating research, and information gathering. Together, these tools serve to advance clarity for the government and proponents on Indigenous community expectations and requirements for consultation. In 2023–24, CIRNAC provided funding to each Indigenous consultation protocol holder and resources centre, and negotiating group, and finalized 2 consultation protocols (Kitselas and Première Nation Wolastoqiyik Wahsipekuk). Additionally, regionally-based departmental teams maintained active relationships and negotiations with Indigenous partners, supported by the Department of Justice, to enhance their consultation capacity. These efforts also further support CIRNAC's Recognition of Indigenous Rights and Self-Determination tables, where CIRNAC coordinates discussions with Indigenous partners interested in developing consultation protocols.

Indigenous Peoples strengthen their socio-economic conditions and well-being

The Government of Canada is committed to supporting Indigenous Peoples in achieving self-determination, with a focus on monitoring key indicators of socioeconomic conditions and well-being. In 2023–24, CIRNAC focused on the following areas:

• Community Well-Being
• Education agreements with a culturally-based curriculum
• Supports for missing and murdered Indigenous women and girls' family members and survivors

The Community Well-Being Index is a method of assessing socioeconomic well-being in Canadian communities. Various indicators are derived from Statistics Canada's Census of Population survey data, released every 5 years, to calculate summary measures. Index values are derived from 4 component scores: education, labour activity, income, and housing quality. The 2021 Community Well-Being Index scores were released in February 2024.

The average Community Well-Being Index scores have also been estimated distinctively for modern treaty First Nations, standalone self-governing First Nations, and modern treaty Inuit communities. While the average scores for modern treaty First Nation and standalone self-governing First Nations communities have increased from 2016 to 2021, from 66 to 67 for modern treaty First Nations communities and from 71 to 73 for standalone self-governing First Nations communities, the average score for modern treaty Inuit communities has remained stable over this period.

Moreover, under the Social Well-being Working Group at the Collaborative Fiscal Policy Development Process, Canada and self-governing Indigenous governments have continued to work collaboratively at identifying and developing indicators related to socio-economic well-being. In the fall 2023, CIRNAC officials and self-governing Indigenous government representatives agreed to focus on the Census of Population data to develop a set of core indicators to measure intermediate and long-term well-being outcomes, building off the Community Well-Being Index. In December 2023, self-governing Indigenous governments and Canada reached an agreement-in-principle on a set of core indicators to be used in relation to Canada's Collaborative Self-Government Fiscal Policy.

Investing in housing improves quality of life, narrows socio-economic gaps and increases Indigenous participation in the economy. Canada has committed to closing the infrastructure gap, including housing, that exists between Indigenous Peoples and non-Indigenous Canadians by 2030. Canada is dedicated to investing in improving housing and infrastructure for Indigenous Peoples through Modern Treaties and Self-Government Agreements. In 2023–24, CIRNAC supported housing and infrastructure programs through Budget 2021 funding, which provided $521 million to self-governing and modern treaty First Nations through the Indigenous Community Infrastructure Fund. Of this, $189.2 million was delivered to 29 self-governing and modern treaty First Nations partners in 2023–24. Most of self-governing and modern treaty First Nations have chosen to invest this funding in housing-related initiatives.

CIRNAC also manages $565 million, announced in Budget 2022, to support housing investments in self-governing and modern treaty First Nations communities. In 2023–24, $89.2 million of these funds were delivered to 28 self-governing and modern treaty First Nations partners. This funding is directly administered by self-governing and modern treaty First Nations and is intended to support community-led housing plans.

Additionally, in 2023–24, CIRNAC developed a plan for $4 billion in funding over 7 years, announced in Budget 2023, to implement the Urban, Rural and Northern Indigenous Housing Strategy, led by Canada Mortgage and Housing Corporation (CMHC). This strategy was developed following Indigenous-led public engagement with Indigenous housing and service providers, Indigenous governments and organizations, Indigenous Peoples living in urban, rural and northern areas, and advocacy organizations. This funding initiative is part of the Government of Canada's commitment to address the social determinants of health and advance self-determination in alignment with the United Nations Declaration on the Rights of Indigenous People.

In 2023–24, distinctions-based Inuit housing investments were delivered directly to Inuit partners, utilizing housing funds from Budget 2022 ($45.9 million) and Budget 2018 ($40 million), along with infrastructure funds from Budget 2021 ($517.8 million over 4 years). This approach, facilitated through the Inuit Nunangat Housing Strategy, represents a partnership between the Government of Canada, ITK and Inuit land claims organizations to advance Inuit self-determination in housing design and delivery, directly addressing Inuit-identified needs. Inuit partners took the lead in collaborating with provincial and territorial governments to enhance the effectiveness of these investments. CIRNAC housing funding delivery has been highlighted by Inuit partners as a key example of program delivery that respects the Inuit Nunangat Policy.

Over the last year, Inuit Treaty Organizations have continued to prioritize their self-determined housing programs, constructing 86 new units and repairing 58 units. The Inuit Crown Partnership Committee's Housing working group continued to focus on the implementation of the co-developed Inuit Nunangat Housing Strategy Implementation Plan and federal and Inuit partners also worked to advance the development of the Urban, Rural, and Northern Housing Strategy. The Housing Working group meets monthly and its work is guided by the co-developed Inuit Nunangat Housing Strategy Implementation Plan.

Since 2018, Métis communities have received housing investments totaling $690.2 million. In 2018, the Métis Nation Housing Strategy was put in place with an initial investment of $500 million over 10 years. This Housing Strategy aims to address the housing crisis faced by Métis communities in a culturally appropriate and distinctions-based manner. Budget 2022 announced an additional $190.2 million over 7 years to improve housing in Métis communities, including the north, of which approximately $127 million will enhance implementation of the Métis Nation Housing Strategy.

Over the past year, steady progress has been made by the Métis Nation Governing Members (the Métis Nation of Alberta, Métis Nation-Saskatchewan, Métis Nation of Ontario, Métis Nation of British Columbia) and the Manitoba Métis Federation to improve housing conditions for their citizens by further developing their housing programs and capacity to deliver. Cumulative numbers to date (starting in 2018) are:

• 1,575 new housing units were constructed or purchased
• 1,537 families were provided with downpayment assistance
• 4,600 housing units were renovated
• 9,528 families received rent subsidies

CIRNAC continues to meet regularly with Métis partners to collaborate, support the implementation of the Housing Strategy, and improve data collection practices. This year, over 22 meetings were held with Métis partners, annual reporting templates were updated in consultation with partners, and a housing needs assessment survey was designed.

Canada has entered into several sectoral self-government agreements on education which provide full jurisdictional control over education and governance. In 2023–24, CIRNAC continued to support the ongoing implementation of the existing sectoral self-government agreements, including 7 new agreements in British Columbia with 7 participating First Nations. In Nova Scotia, the implementation of the Mi'kmaq Education Agreement, for which Mi'kmaw Kina'matnewey serves 12 communities, is ongoing. During the year, CIRNAC also renewed the Anishinabek Education System Fiscal Agreement, which provides funding services to primary, secondary and post-secondary education, governance and minor capital to 23 participating Anishinabek First Nations. These agreements enable Indigenous Peoples to establish and control their education systems and institutions by providing services that better reflect student needs and by delivering culturally appropriate education. Notably, in 2023–24, all First Nations Schools associated with sectoral education agreements delivered culturally-based curriculum to their students.

CIRNAC is committed to supporting family members and survivors of missing and murdered Indigenous women, girls and 2SLGBTQI+ people in finding healing in forms that are meaningful to them. In 2023–24, the MMIWG Secretariat funded 12 projects across the country, inclusive of all distinctions, under the Support for the Wellbeing of Families and Survivors of Missing and Murdered Indigenous Women, Girls and 2SLGBTQQIA+ People Contribution Program. This support is directed towards Indigenous groups and organizations that provide assistance and services to aid the healing journeys of individual Indigenous family members and survivors affected by such violence.

CIRNAC continues to advance reconciliation by supporting the fulfilment of statutory obligations under the United Nations Declaration Act and supporting the use of the United Nations Declaration as an interpretive lens. In 2023–24, CIRNAC developed various tools and processes to support the implementation of the United Nations Declaration and the Act, including efforts to implement 55 Action Plan measures. The tools and processes developed include guidelines, a United Nations Declaration consistency assessment tool, and general training and awareness materials. Over 250 CIRNAC employees participated in training on the United Nations Declaration on the Rights of Indigenous Peoples provided by the department. An additional 390 employees from CIRNAC and ISC attended a joint training presentation offered by CIRNAC.

Gender-based analysis plus

Information on GBA Plus for the Crown-Indigenous Relations core responsibility is available in the supplementary information table.

United Nations 2030 Agenda for Sustainable Development and the Sustainable Development Goals

The following Sustainable Development Goals (SDGs) are supported by CIRNAC programs.

Innovation

CIRNAC is continuously working on renewing the government's relationship with Indigenous Peoples by testing and developing new ways to engage in co-development and advance Indigenous-led changes. Since 2016, CIRNAC supported an Indigenous-led development board that led to the establishment of the First Nations Infrastructure Institute, the fourth institution to be established under the First Nations Fiscal Management Act with the passage of Bill C-45 in June 2023. This new Institute will assist with addressing infrastructure gaps and barriers for Indigenous communities. CIRNAC continues to work with the Lands Advisory Board and their technical arm, the First Nations Land Management Resource Centre, towards the development and implementation of a new First Nation Land Governance Registry system for those First Nations that are operational under the Framework Agreement on First Nation Land Management and for self-governing First Nations that choose to use it. Through Budget 2023, the Government committed $33.5 million over 3 years to support this co-developed initiative.

As part of specific claims reform, CIRNAC is testing an early engagement approach through a pilot project with a First Nation. The project includes several specific claims from the First Nation, including claims that have not yet been submitted to CIRNAC and remain under development. The pilot project will help test some of the ideas under discussion as part of the co-development of specific claims reform.

CIRNAC, through the Permanent Bilateral Mechanism (PBM), is working in collaborative ways with Indigenous partners and other government departments on various policy areas identified at each of the 3 distinction-based PBMs as priority areas (co-development, economic development, justice and policing, etc.). As such, joint working groups have been created at each of the 3 distinction-based PBMs to help advance reconciliation, explore the scope of the priority areas, the ongoing costing required to address the identified needs. The PBMs are inclusive of other government departments so as to achieve a whole of government approach in dealing with each priority area.

In following the Inuit-Crown Partnership Committee model, Canada has engaged in the development of co-development principles at both the Métis PBM and the First Nations PBM. On January 31, 2024, Canada and the Métis Nation came to an agreement to endorse the co-development principles which will serve as a guideline on how the parties will work together on various initiatives. The next step will be the sign-off by the Prime Minister and the Métis Presidents at the 2024 Summit.

At the First Nation PBM, the parties will table a co-development principles draft for review by Leaders at the Spring Leaders Meeting.

Further, the Treaties and Aboriginal Government Learning Strategy is a learning initiative that supports federal employees by providing the competencies required to co-develop treaties, agreements and other constructive arrangements with Indigenous partners, provincial and territorial governments, and other federal officials in a manner that is compliant with the rights and provisions of modern treaties and self-government agreements. In 2023, CIRNAC rolled out its Learning Strategy. In 2023–24, various initiatives related to the Learning Strategy were implemented.

Moreover, in 2023–24, CIRNAC collaboratively engaged with negotiation First Nations through the Recognition and Reconciliation of Rights Policy for Treaty Negotiations in British Columbia to develop a proposed Enforcement Treaty Chapter for British Columbia Negotiating Nations. The Enforcement Chapter would be an innovation in treaty language that goes beyond the treaty chapters previously negotiated under the British Columbia Treaty Process. Development on the Chapter is ongoing, and the Chapter has yet to be implemented.

Table 3: Targets and results for Northern Affairs

Table 3 provides a summary of the target and actual results for each indicator associated with the results under Northern Affairs.

Additional information on the detailed results and performance information for the CIRNAC's program inventory is available on GC InfoBase.

Details on results

The following section describes the results for Northern Affairs in 2023–24 compared with the planned results set out in CIRNAC's departmental plan for the year.

Gender-based analysis plus

Information on GBA Plus for the Northern Affairs core responsibility is available in the supplementary information table.

United Nations 2030 Agenda for Sustainable Development and the Sustainable Development Goals

The following Sustainable Development Goals (SDGs) are supported by CIRNAC programs.

Innovation

The Northern Contaminants Program hosted a Results Workshop, February 27–29, 2024, in Ottawa. The workshop had a total of 266 registrants, both virtual and in-person. 94% of post-workshop survey responses indicated that the workshop met or exceeded expectations and was well organized. All respondents strongly or somewhat agreed that they gained a better understanding of contaminants issues in the North by attending.

There were delays in establishing a Plastics Advisory Committee, but the Northern Contaminants Program Management Committee affirmed its support to establish this committee in 2024–25. It will inform and advise the Northern Contaminants Program Management Committee on knowledge gaps, the development of a plastics monitoring plan for the North, urgent research needs, and planning for the development of a Canadian Arctic Contaminants Assessment Report on plastic pollution.

Moreover, upgrades to the Polar Data Catalogue and the Arctic Science and Technology Information System (now called the Arctic Discovery and Access Portal) improved accessibility and transparency for all Canadians who want to access data and publications generated through projects funded by the Northern Contaminants Program.

NNC programming is expanding to address northern food security more broadly. On-going improvements to its retail subsidy are being driven by research initiatives, both supported by the Food Security Research Grant and through partnerships with researchers, and on-going engagements with Northerners. The recent addition of the Harvesters Support Grant, the Community Food Programs Fund, and the Food Security Research Grant, reflect strong partnerships with Indigenous and northern partners. Building on these successes, there are clear opportunities, and indeed a requirement, to secure long-term and predictable food security funding, including further investments in local capacity. NNC also continues to work with food banks and charities to register them for the subsidy.

Analysis of the past 3 years of spending

Analysis of the next 3 years of spending

For the period of 2024–25 to 2025–26, spending is expected to decrease from $10,913 million to $6,609 million. The decrease of $4,304 million is mainly due to:

• Agricultural benefits claims (-$2,803 million)
• Federal Indian Boarding Homes Litigation (Percival) (-$518 million)
• Federal Indian Day Schools Settlement (McLean) (-$430 million)

For the period of 2025–26 to 2026–27, spending is expected to decrease from $6.6 billion to $4.5 billion. The decrease of $2.1 billion is mainly due to the settlement of specific claims.

More detailed financial information from previous years is available on the Finances section of GC Infobase.

Table 8 reconciles gross planned spending with net spending for 2023–24.

Analysis of budgetary actual gross and net planned spending summary

The revenues netted against expenditures in the table above are for the provision of internal support services under section 29.2 of the Financial Administration Act. CIRNAC provides internal support services to another department, including human resources services, audit and legal services, correspondence management and reporting services, and access to information and privacy services.

Information on the alignment of CIRNAC's spending with Government of Canada's spending and activities is available on GC InfoBase.