Ministerial Transition Book for CIRNAC - March 2025

Mandate

In 2017, the Department of Indian Affairs and Northern Development was dissolved and the departments of Crown–Indigenous Relations and Northern Affairs Canada and Indigenous Services Canada were established so as to separate the process of designing and rebuilding new relationships with Indigenous Peoples from the administration of the Indian Act.

Crown–Indigenous Relations and Northern Affairs Canada promotes respecting the rights of Indigenous Peoples as recognized and affirmed by section 35 of the Constitution Act, 1982, and supports the implementation of the United Nations Declaration on the Rights of Indigenous Peoples. Key activities include:

• facilitating collaboration and cooperation with Indigenous Peoples and with the Provinces and Territories in relation to entering into and implementing agreements;
• the recognition and implementation of treaties concluded between the Crown and Indigenous Peoples;
• promoting self-determination, prosperity and well-being for the residents and communities of the Canadian North, taking into account their respective needs and challenges;
• addressing historical wrongs; and
• implementing Government of Canada priorities with respect to its relationships with Indigenous Peoples.

The Department supports Indigenous self-determination through the negotiation and implementation of self-government and comprehensive land claims agreements, the recognition and implementation of Indigenous and treaty rights, as well as through the settlement of claims relating to lands and historical grievances. It also consults and works with Indigenous Peoples, provinces and territories, and other stakeholders on policies, initiatives and legislation that could affect Indigenous communities. The Department's approach to partnerships with Indigenous Peoples is key to respecting their right to self-determination.

To achieve a coherent whole-of-government approach to Crown–Indigenous relationships, the work of Crown–Indigenous Relations and Northern Affairs Canada is often conducted in partnership with other government departments such as Fisheries and Oceans Canada, Justice Canada and Employment and Social Development Canada.

Of all federal departments, the effective delivery of Crown–Indigenous Relations and Northern Affairs Canada's work is highly dependent upon the close cooperation and collaboration with Indigenous Services Canada. Crown–Indigenous Relations and Northern Affairs Canada and Indigenous Services Canada are mandated to work together on a wide range of activities, such as capacity building to support the transfer of service delivery to Indigenous communities. Where Crown–Indigenous Relations and Northern Affairs Canada is responsible for continuing to modernize institutional structures and governance so that Indigenous Peoples can build capacity that supports self-determination, Indigenous Services Canada's primary responsibilities are focused on capacity building to improve access to high-quality services, and to support Indigenous Peoples in assuming control of the delivery of services at the pace and in the ways they choose.

Crown–Indigenous Relations and Northern Affairs Canada is also responsible for leading the Government of Canada's work in the North through the development, implementation and coordination of federal policy across departments in the North. It also leads the negotiation and implementation of the transfer of federal responsibilities to territorial governments (referred to as "devolution"), manages a number of federal regulatory and other functions not devolved through the Territorial acts, supports the negotiation and implementation of Indigenous land claims and self-government agreements, and delivers federal programs and initiatives in the region.

Crown-Indigenous Relations and Northern Affairs Canada also has responsibilities over the administration of lands in Yukon, the Northwest Territories and Nunavut. As well, it outlines the work to complete the devolution of authorities to territorial governments. The resource management regimes in the North are co-managed and implemented in large part by boards made up of representatives from Indigenous governments and organizations, the territorial governments, and the Government of Canada, as defined by land claim agreements. Until the devolution process is fully implemented, the Department maintains provincial-like responsibility for management of lands and water in Nunavut, which includes the approval of most water licences and land use permits issued in the territory. The Department is also responsible for the legislation governing environmental assessments and holds some decision-making powers involving environmental assessments and land use planning, as well as retaining responsibility for the management of offshore resources including oil and gas in all three territories.

Statutory Authorities of the Minister of Crown–Indigenous Relations and Northern Affairs

The Minister of Crown–Indigenous Relations and Northern Affairs has authority, in full or in part, over laws covering a wide range of subjects and responsibilities. The majority of these laws are related to the implementation of comprehensive land claims (e.g. Nisga'a Final Agreement Act, Nunavut Act) and self-government agreements, where Indigenous groups have assumed authority for governance, land and resource management (e.g. Westbank First Nation Self-Government Act, Sioux Valley Dakota Nation Governance Act). The Minister has authority over laws that bring First Nations out from under specific provisions of the Indian Act, such as for land management, fiscal management and local taxation powers (e.g. First Nations Land Management Act, First Nations Fiscal Management Act). The Minister also has authority, in full or in part, over statutes relating to Canada's territories (e.g. Nunavut Act, Yukon Act), management of Northern land, resources and environment (e.g. Territorial Lands Act, Mackenzie Valley Resource Management Act), the management of northern regulatory regimes (e.g. Northwest Territories Waters Act); and northern and polar science (e.g. Canadian High Arctic Research Station Act). The Minister continues to retain full accountability to Parliament for all of the statutes for which he or she is responsible. A complete list of statutes can be found in Annex A.

Financial Overview

Crown–Indigenous Relations and Northern Affairs Canada's 2025–26 Main Estimates total $12.9 billion.

The table below provides a clear overview of the budgetary allocations across different programs.

Crown–Indigenous Relations and Northern Affairs Canada's 2025–26 Main Estimates are comprised of:

• approximately $4.9 billion or 38% in operating expenditures;
• approximately $8 billion or 62% in transfer payments to Indigenous organizations;
• $325,000 in capital expenditures; and,
• $25.9 million in loan funding for claimants involved in negotiations.

CIRNAC Full-Time Equivalents

The table below represents a summary of human resources, in full-time equivalents (FTEs), for CIRNAC's core responsibilities and for its internal services for the previous five fiscal years, as reported in the Departmental Results Report for each respective year. For information purposes, the 2024-25 Departmental Plan forecast has also been included.

In 2024-25 full-time equivalents are forecasted to decrease by 296 mainly due to the transfer of full-time equivalents to Indigenous Services Canada following the dissolution of shared services with respect to Human Resources management services.

In 2023-24 full-time equivalents increased by 110, from 2,075 in 2022-23 to 2,185 in 2023-24, mainly due to increased funding for 1) Implementing the federal framework to address the legacy of residential schools, 2)  Internal services stabilization and 3) Implementing the Impact Assessment Act

In 2022-23 full-time equivalents increased by 57, from 2,018 in 2021–22 to 2,075 in 2022–23, mainly due to increased funding for 1) Recognition of Indigenous Rights and Self-Determination (RIRSD) tables and 2) New funding for Indigenous infrastructure projects.

* 2024-25 data is based on the Departmental Plan, while other years is based on the Departmental Results Report.

Text alternative for CIRNAC Full-Time Equivalents:

The chart represents a summary of human resources, in full-time equivalents (FTEs), for CIRNAC's core responsibilities and for its internal services for the previous five fiscal years, as reported in the Departmental Results Report for each respective year. For information purposes, the 2024-25 Departmental Plan forecast has also been included.

Core Responsibility	2020-21	2021-22	2022-23	2023-24	2024-25Table note 1
Grand Total	1,937	2,018	2,075	2,185	1.889
Table note 1 2024-25 data is based on the Departmental Plan, while other years is based on the Departmental Results Report. Return to table note 1 referrer

Negotiations

Many treaties were concluded between the Crown and Indigenous Peoples prior to Confederation, but a significant number of communities have outstanding claims, rights and interests, including those related to lands and resources, that have not been addressed. The Government of Canada believes that respectful dialogue and negotiation are important methods of resolving outstanding issues and reaching agreements that result in lasting solutions and benefit all Canadians. Through the negotiation of modern treaties, self-government agreements, and other constructive arrangements, Crown-Indigenous Relations and Northern Affairs Canada and Indigenous groups are creating the foundations for enduring relationships based on the recognition of rights, respect, cooperation and partnership. Successful negotiation and resolution of agreements, treaties, and other constructive arrangements facilitate improved economic prosperity and social well-being through the stability and predictability they enable.

The Government of Canada recognizes the inherent right of self-government as an existing Aboriginal right under section 35 of the Constitution Act, 1982. Recognition of the inherent right of self-government is based on the view that Indigenous peoples have the right to govern themselves in relation to matters that are internal to their communities, integral to their unique cultures, identities, traditions, languages and institutions, and with respect to their special relationship to their land and their resources. Through the negotiation of self-government agreements, First Nations are able to move out from under the jurisdiction of the Indian Act and assume responsibility for a wide range of powers and authorities

Modern treaties

Since 1973, the negotiation and implementation of modern treaties has been a key objective for the Government of Canada. Through a negotiated process, modern treaties deal with Indigenous rights that have been unaddressed by the pre-1975 treaty-making process in Canada. These treaties articulate the relationships, overall objectives and specific obligations and responsibilities that their signatories must achieve and execute. In light of the legal principle of pre-existing Aboriginal rights, modern treaties clarify rights and roles in land ownership, how lands and resources are managed, and the jurisdictions of Indigenous, federal, and occasionally provincial or territorial signatories. Once ratified, modern treaties have constitutional status under section 35 of the Constitution Act, 1982. This high level of constitutional recognition makes the obligations of signatories, in implementing these treaties and rights, legally enforceable in nature.

As a result of these long standing policies, the negotiation of modern treaties and self-government agreements and the coordination of their implementation is central to the Department's mandate. Modern treaties and self-government agreements are entered into between Indigenous groups and the Federal Crown as a whole. Virtually every federal department has a mandate that will intersect with Modern Treaty rights and it is their responsibility to uphold these obligations. Provincial and territorial governments carry out their own obligations under these arrangements.

The majority of Indian Act First Nations have yet to enter into a self-government arrangement although many are in negotiations to do so. Some bands, as well as Métis groups, seek to exercise their jurisdiction in certain sectoral areas only (e.g., education) whereas others wish to exercise self-government in a comprehensive manner. The Government of Canada is now implementing 27 signed modern treaties of which 19 contain provisions related to self-government or accompanying self-government agreements. Additionally there are 4 non-treaty, stand-alone self-government agreements and 3 sectoral self-government agreements related to education. 'Jurisdiction' to enact and enforce Indigenous laws is a key concept in Indigenous self-government. While the negotiation and implementation of modern treaties and self-government agreements are fundamental elements of the Government of Canada's commitment to improving economic well-being through increased Indigenous self-determination, these processes have been criticized by Indigenous partners and signatories as being long and cumbersome, with few negotiations reaching agreements in a timely manner. Reviews of the comprehensive land claims and self-government policies are ongoing.

To implement of modern treaties, Canada and Indigenous modern treaty partners co-developed Canada's Collaborative Modern Treaty Implementation Policy in 2023. It provides clear direction to federal departments and agencies to ensure the timely and effective fulfillment of obligations and objectives in the spirit in which the agreements were signed and with the purpose of strengthening intergovernmental relationships.

This policy provides new implementation tools to complement existing mechanisms and seeks to strengthen oversight and accountability by federal departments and agencies in carrying out Canada's modern treaty obligations. This will contribute to advancing a transformational shift towards genuine reconciliation. This policy is in effect but is a continually evolving document that will be updated over time, including as new annexes are collaboratively developed.

One example is the Nunavut Agreement, a modern treaty (comprehensive land claim agreement) where the self-government aspirations of Inuit are expressed through public government. This self-government agreement is unique due to the fact that the Nunavut government represents all the people residing in its territory.

Self-government agreements

Negotiated agreements can set out law-making authority in many areas, including: governance, social and economic development, education, health, lands and more. It varies from group to group, depending on their unique needs and priorities and their vision of self-determination.

While there is no "one-size fits all" approach to Indigenous self-government, all of the agreements negotiated to date have some things in common. This includes:

• No self-government agreement is possible without the approval of the Indigenous people through a community vote
• Self-government is negotiated within the Canadian constitutional framework and federal legislation is passed before the negotiated agreement takes effect
• Under self-government, Indigenous laws operate in harmony with federal and provincial laws. Indigenous laws protecting culture and language generally take priority if there is a conflict among laws
• However, the Canadian Charter of Rights and Freedoms, the Canadian Human Rights Act and other general laws such as the Criminal Code continue to apply
• Community members and non-member residents on Indigenous lands will have input into decisions that directly affect them

Self-government agreements address (among other things) the following key aspects:

• the structure of the new government and its relationship with other governments
• new funding arrangements
• the relationship of laws between jurisdictions, such as how different laws will work together
• how programs and services will be delivered to community members
• ways to promote improved community well-being, often with a focus on Indigenous languages, heritage and culture and socio-economic initiatives
• preparations for when the agreement takes effect, such as implementation planning

Another form of self-government is where law-making power is negotiated with an Indigenous group in only 1 or 2 key areas such as the Education Agreement in Nova Scotia and the Anishinabek Nation Education Agreement in Ontario.

Other types of negotiations

Indigenous groups are also pursuing greater self-determination, recognition of their rights and renewed relationships with other governments outside of self-government negotiations. This includes:

• exploring new ways of working together at Recognition of Indigenous Rights and Self-Determination discussion tables
• negotiating a number of collaborative agreements with the private sector to secure benefits from resource development for their communities as well as administrative agreements with provincial governments
• developing protocols with the federal and provincial or territorial governments to facilitate consultation and accommodation on development on their territories
• pursuing self-government arrangements that deal only with one subject area, such as greater control over the management of reserve lands
• creating a Comprehensive Community Plan that is initiated, designed and implemented by an Indigenous group for their community

Collaborative self-government fiscal policy

Canada is working with self-governing Indigenous governments to co-develop fiscal policy approaches to support self-government. These co-developed fiscal policy approaches form Canada's collaborative self-government fiscal policy. This policy:

• only applies to Indigenous groups with self-government arrangements
• replaces, and takes precedence over other existing federal policies for groups to which it applies

Canada's collaborative self-government fiscal policy is the basis for development of fiscal arrangements. These arrangements are sometimes called:

• financial transfer agreements
• fiscal financing agreement
• fiscal relationship agreements

Fiscal arrangements detail the ongoing funding relationship between the Indigenous government, Canada and, where applicable, provincial or territorial governments. The arrangement provides funding that supports the operations of the Indigenous government to effectively deliver programs and services to its members on an ongoing basis. These fiscal agreements generally have a 5 year term.

In addition to the collaborative work on the self-government fiscal policy, the Government of Canada has also been engaged since 2016 in collaborative processes to renew fiscal relationships with First Nations operating under the Indian Act. This separate process is coordinated by Indigenous Services Canada and the Assembly of First Nations with the support of Indigenous-led governance organizations. The work at both of these processes occurs separately and neither preclude the work of the other.

Negotiations with Robinson Treaties First Nations (Restoule and Whitesand Out-of-Court Settlement Negotiations)

The Stage 1 trial decision in Restoule and Whitesand, released in December 2018, concluded that annuity payments under the Robinson Treaties should have been augmented over time as a result of the resource revenues in the treaty territory, and that future annuity payments be increased after a negotiated process with the signatory First Nations.

In January 2023, 21 Robinson Huron Treaty First Nations put the Restoule action into abeyance to allow all parties to continue settlement negotiations. The 12 Robinson Superior Treaty First Nations elected to forgo negotiations in order to proceed with the Stage 3 Whitesand compensation trial.

In June 2023, Canada, Ontario and 21 Robinson Huron Treaty First Nations announced a proposed settlement to resolve claims related to past annuities. The settlement includes $5 billion each from Canada and Ontario, for a total settlement of $10 billion for past losses.

In January 2024, the Restoule Settlement Agreement was executed by Canada, Ontario and representatives of the 21 Robinson Huron Treaty First Nations. On February 26, 2024, the Ontario Superior Court granted a partial judgment on consent of the parties, settling past compensation for the Restoule litigation and finalizing the Agreement.

On July 26, 2024, the Supreme Court of Canada confirmed the Crown (Canada and Ontario) dishonourably breached the Robinson Superior Treaty of 1850 by failing to increase treaty annuity payments as economic conditions allow. The Court found that compensation must be paid to the 12 Robinson Superior Treaty First Nations.

The Supreme Court ordered a six month timeline for Canada and Ontario to engage meaningfully and honourably with the 12 Robinson Superior First Nations to try to reach a negotiated resolution. The parties were unable to reach a negotiated resolution and on January 27, 2025, Canada exercised Crown discretion with regard to the Robinson-Superior Treaty and informed the First Nations that it would pay $1.8 billion in compensation for past annuities, and an additional $20 million for legal costs.

The Robinson Superior First Nations have requested that the Ontario Superior Court review the process and compensation amount of the Crown's exercise of discretion, claiming that it does not align with the decision of the Supreme Court and is neither "just" nor "honourable." A hearing to review the decision is scheduled for June 2025.

The Supreme Court of Canada decision does not impact the Restoule Settlement Agreement, achieved with 21 Robinson Huron Treaty First Nations. However, the claim to past annuities by the 22nd Robinson Huron Treaty First Nation - Temagami - remains outstanding and negotiations are ongoing.

As negotiations with both the Robinson Huron Treaty First Nations and the Robinson Superior Treaty First Nations have focused only on compensation for the Crown's failure to augment past annuities, additional negotiations will be required between Canada, Ontario and the Robinson Treaties First Nations to address the treaty augmentation promise going forward.

Haida Nation Negotiations

The Haida Nation is located on Haida Gwaii, which is a remote archipelago situated 100 kilometers off the north coast of British Columbia. Under the Haida Constitution, governing powers are vested in the Council of the Haida Nation, which represents the Haida Nation in negotiations with Canada and British Columbia.

The Haida Nation entered the British Columbia Treaty Process in 1995. Since that time, negotiations have proceeded periodically alongside the Haida Nation's Aboriginal title and rights litigation for Haida Gwaii lands, airspace, and marine areas, which was filed in 2002. Recent negotiations were initiated in 2019.

In August 2021, the Haida Nation, British Columbia and Canada signed the GayGahlda "Changing Tide" Framework for Reconciliation, setting out an incremental approach for negotiating legally binding reconciliation agreements, with guiding principles, priority topics, and provisions for managing the relationship between negotiations and litigation.

In July 2023, the Parties signed the Nang K'uula • Nang K̲'úulaas Recognition Agreement. Bill S-16 An Act respecting the recognition of the Haida Nation and the Council of the Haida Nation received Royal Assent on November 7, 2024. Through the Nang K'uula • Nang K̲'úulaas Recognition Agreement, Canada and British Columbia recognize the Haida Nation as the holder of Haida Title and Rights, including inherent rights of governance and self-determination, and the Council of the Haida Nation as the authorized governing body under the Haida Constitution, with "natural person" powers supported by federal and provincial legislation.

On December 4, 2024, Haida and Canada signed the Chiixuujin • Chaaw Kaawgaa "Big Tide (Low Water)" Haida Title Lands Agreement, which recognizes Haida's Aboriginal title to the land of Haida Gwaii. Haida citizens voted 97% in favour of the Agreement, representing a historic moment for reconciliation.

On December 16, 2024, Canada served amended pleadings in the Haida title litigation to admit Haida has met the common law test for Aboriginal title to the land and foreshore to the low-water mark consistent with the agreement signed on December 4, 2024. Work on legislation to bring the agreement into force is actively underway.

On February 17, 2025, Haida and Canada celebrated the Chiixuujin • Chaaw Kaawgaa "Big Tide (Low Water)" Haida Title Lands Agreement at a ceremony in Skidegate, Haida Gwaii which was attended by the former Prime Minister, the Minister of CIRNA and over 350 community members.

At Haida's request, all parties are discussing the terms of a Consent Order for the Court's consideration. The Order would declare Aboriginal Title to Haida Gwaii's terrestrial lands and foreshore, aligning with the federal title agreement, which excludes submerged lands beyond the foreshore (recognized by BC).

The Order will include a 24-month suspended declaration against Canada to allow for the implementation of federal legislation. It will also expressly state that if more time is needed, Canada may seek an extension with Haida's consent or, failing that, from the Court.

The next steps are for Canada and the Council of the Haida Nation to negotiate a self-government agreement and prepare for the estimated five-year transition period to reconcile federal interests and jurisdictions with Haida Aboriginal title. Canada will also introduce implementing legislation to bring the Chiixuujin • Chaaw Kaawgaa "Big Tide (Low Water)" Haida Title Lands Agreement into effect. The trial for Haida's Aboriginal title and rights litigation is scheduled to take place in May 2026, and is expected to last for 300 days.

Advancing British Columbia Treaty Negotiations

In British Columbia, there are a number of tables in the British Columbia Treaty Process that are at a critical juncture and close to concluding agreements. Notably, Canada and the Province of British Columbia initialed treaties with Kitselas, Kitsumkalum, and K'ómoks First Nations in summer 2024. This was a critical step in closing treaty negotiations, signaling that the bulk of substantive negotiations is complete. All parties are now working towards ratification and to address remaining issues including overlap consultations with neighbouring First Nations.

For these most advanced treaties, ratification will begin in spring and fall 2025 with First Nation community votes, to be followed by BC and then federal ratification, expected to conclude in fall 2026, with signing targeted for 2026-27. Negotiations with a number of other British Columbia First Nations are not far behind.

Concluding treaties involves close collaboration with provincial and First Nations partners, and includes several steps, each of which can take several months:

• Final Land and Cash Offer (presented to the First Nation(s) by Canada and British Columbia);
• Chief Negotiators' Understanding (parties signal agreement on substantive negotiation topics with a limited list of items to finalize);
• Initialing (parties signal the conclusion of substantive negotiations, allowing for the beginning of the ratification process. Consultations with neighbouring Nations and final reviews continue after initialing);
• Ratification (the First Nation(s), followed by British Columbia and Canada, seek approval of the treaty via their respective processes. The First Nations hold community votes, while British Columbia and Canada require Cabinet-level approval);
• Signing (all parties sign the Agreement); and
• Effective date (the treaty takes effect, normally about two to three years after signing, in order to give all parties time to prepare for implementation by passing legislation and ensuring the Indigenous community's readiness. The Indian Act would no longer apply and the implementation process could begin).

The Government of British Columbia and the British Columbia Treaty Commission are in general agreement with the federal government on which tables are closest to concluding agreements and on the target timeframes for these tables. Concluding these treaties will support First Nations in moving forward as self-determining and self-governing nations, and allow Canada to demonstrate meaningful progress in advancing the reconciliation agenda and achieving results for Indigenous Peoples.

Métis Self-Determination Negotiations

Canada is engaged in discussions with Métis governing bodies to explore their interests in self-government and an enhanced government-to-government relationship with the Crown. The Supreme Court of Canada decisions in Powley (2003), Manitoba Métis Federation (2013) and Daniels (2016) are foundational to the legal landscape for Métis relations today. These Métis-specific decisions coincided with a shift in perspective across government that saw the prioritization of relationship renewal and reconciliation with Indigenous Peoples and a heightened focus on advancing self-determination.

Crown–Indigenous Relations and Northern Affairs Canada began engaging in Recognition of Indigenous Rights and Self-Determination discussions with the Manitoba Métis Federation, Métis Nation of Ontario, Métis Nation—Saskatchewan, Métis Nation of Alberta in earnest in 2016.

Canada and the Métis Nation of Ontario, Métis Nation—Saskatchewan and Métis Nation of Alberta signed separate Métis Government Recognition and Self-Government Agreements on June 27, 2019. These agreements committed Canada to introduce legislation following the signing which would one day give effect to the agreements and recognize these organizations as Indigenous governments with jurisdiction over core governance matters.

On July 6, 2021, Canada and Manitoba Métis Federation signed a Self-Government Recognition and Implementation Agreement recognizing the Manitoba Métis Federation as an Indigenous government with jurisdiction over core governance matters such as citizenship, elections, and internal affairs (though binding only on the Parties to the agreement). Unlike the agreements signed in 2019, it also committed Canada to negotiate a treaty on core governance to replace the agreement and take effect via future implementing legislation.

Shortly after Canada and the Manitoba Metis Federation signed this agreement, the Métis Nation of Ontario, Métis Nation—Saskatchewan and Métis Nation of Alberta requested their agreements be updated to align with the recognition techniques used in the Manitoba Métis Federation Self-Government Recognition and Implementation Agreement. Updated agreements with the Métis Nation of Ontario, Métis Nation—Saskatchewan and Métis Nation of Alberta were signed in February 2023.

The updated 2023 Recognition Agreements have the following key features:

• Upfront political recognition that Métis Nation of Ontario, Métis Nation—Saskatchewan and Métis Nation of Alberta represent the contemporary form of a historic collectivity, within their respective provinces;
• Recognition by Canada of Métis Nation of Ontario, Métis Nation—Saskatchewan and Métis Nation of Alberta's jurisdiction over core-governance functions (i.e., citizenship, leadership selection, and government operations); and,
• Commitment to continue negotiations towards the conclusion of replacement core governance Treaties, respectively.

Neither the updated 2023 agreements nor the 2021 Manitoba Metis Federation address land or harvesting rights.

Implementing legislation (Bill C-53) to provide a legislative framework to give legal force and effect to the self-government treaties contemplated for the Métis Nation of Ontario, Métis Nation—Saskatchewan and Métis Nation of Alberta agreements was introduced on June 21, 2023.

Following a March 28, 2024 Federal Court of Canada decision limiting the Métis Nation of Alberta Agreement, and the Métis Nation-Saskatchewan's decision to withdraw support from Bill C-53 in April 2024, Bill C-53 effectively stalled. Following the prorogation of government in January 2025, all government bills, including Bill C-53, died on the Order Paper.

Canada is currently working with the Métis Nation of Alberta on renegotiating their 2023 self-government agreement following the March 28, 2024 court decision. The renegotiated draft agreement is currently proceeding through federal approvals for initialing authority, after which consultations on the draft will be broadened beyond the Applicants to the Federal Court decision to ensure there are no adverse impacts on the rights of other Indigenous groups.

Negotiations with the Métis Nation—Saskatchewan toward the finalization of a draft treaty have been ongoing since May 2023, and are well-advanced though a number of key issues remain on which the parties have been unable to find sufficient common-ground for a path forward.

Discussions with the Métis Nation of Ontario have been effectively paused as the Métis Nation of Ontario focuses on internal work toward the development of a constitution, which is a requirement before a future self-government Treaty could be given effect. Negotiations on a draft self-government Treaty with the Métis Nation of Ontario have not yet begun.

On November 30, 2024, Canada and the Manitoba Métis Federation signed the Red River Métis Self-Government Recognition and Implementation Treaty, which affirms and builds on the agreement signed between the parties in 2021. Implementing legislation to give legal force and effect to the Treaty is being prepared for a potential introduction as soon as March 2025, though the timing for such an introduction is yet to be determined.

Some First Nations in Manitoba have expressed concerns, including through recent litigation from Dakota Tipi and Chanupawakpa Dakota First Nations, that the Manitoba Métis Federation Treaty may impact their section 35 rights, and in particular, rights over their traditional territories. Concerns with respect to outstanding recognition and implementation of the inherent rights of First Nations were also raised. Federal officials have emphasized that the Manitoba Métis Federation Treaty does not address lands, harvesting/hunting or rights beyond those relating to citizenship and internal government operations.

The Métis Nation British Columbia is currently undergoing an assessment of its claim to section 35 rights under the Constitution Act, 1982.

Resolution of Specific Claims

Specific 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 and the management of First Nation lands, monies, and other assets. The pre-1975 Treaties enabled the peaceful settlement and development of a large portion of the country, but Canada did not always fulfill its treaty commitments. First Nations have many grievances relating to the treaty implementation, some pertaining to a one-time historical breach of a treaty commitment, such as a treaty land entitlement shortfall, while others relate to ongoing treaty benefits like annual clothing allowances or annuity payments.

The 1973 Specific Claims Policy provides a voluntary alternative dispute resolution framework that allows the federal government to discharge its outstanding legal obligations through negotiated settlements, rather than through litigation. In 2008, the Specific Claims Policy was updated to reflect the adoption by Parliament of a legislative framework for specific claims resolution via the Specific Claims Tribunal Act. This legislation sets out specific timelines for the Government to assess and negotiate claims. It also created an independent Specific Claims Tribunal with the power to make legally binding decisions on the validity of specific claims and to make compensation awards up to a maximum of $150 million per claim.

Specific claims resolution is key to addressing historical grievances from First Nations and creating pathways to support nation-building, self-determination and economic development. Settlements are often used by First Nations to support their longer-term community plans and economic development objectives. The Specific Claims Program is a high-volume operation that engages Crown–Indigenous Relations and Northern Affairs Canada directly with First Nations across the country. Over the last five fiscal years (2020-21 to 2024-25), 203 claims were resolved for approximately $11.7 billion in compensation. Of these, three claims were resolved through a Tribunal decision for $146.4 million in compensation. Of the 203 claims settled through negotiations, 130 claims settled for less than $50 million; 58 settled for between $50 million and $150 million; and 12 claims settled for more than $150 million.

Agricultural Benefits Claims

Treaties 1 through 11 were signed between 1871 and 1921 between the Crown and First Nations, and are the only pre-1975 treaties that contained provisions for agricultural benefits.

In cases where multiple specific claims are of a similar nature, applying common compensation approaches may significantly expedite claim resolution timelines. This approach expedited the resolution of agricultural benefits claims with Treaty 8 First Nations (i.e.: claims that Canada did not provide the agricultural implements and benefits it committed to in the treaty).

To support streamlined claim processing and faster compensation negotiations, the Department has established an expedited resolution framework for agricultural benefits claims pursuant to treaties 4, 5 and 6. The accelerated resolution process includes:

• A faster submission and assessment process. The accelerated resolution process will consider a limited number of relevant factors so that research efforts pertaining to an agricultural benefits claim can be streamlined; and,
• A faster negotiation, settlement mandating and settlement process which includes some expediencies to Canada's internal processes and a compensation framework.

The negotiation from start to finish averages about 18 months, depending on how quickly a First Nation would like to proceed.

Strategic Management of Childhood Claims

Indigenous Childhood Claims Litigation includes class actions, individual and multi-plaintiff litigation related to the Sixties Scoop, Indian Residential Schools day scholars, Indian Days Schools, Indian Hospitals, Indian Boarding Homes, provincial residential schools, joint schools, and other education and care programming. The approach has been to resolve Childhood Claims outside of the courts, whenever possible. By negotiating resolution of Childhood Claims outside of the courts, settlements can balance individual compensation with forward-looking programming for healing, wellness, education, language, culture, and commemoration.

While significant progress has been made in resolving claims with clear federal liability, the second phase of Childhood Claims, including off-reserve child welfare and Métis and Non-Status Sixties Scoop, has required Canada to advance the litigation before the courts due to clear provincial and territorial involvement.

The approach to advance the resolution of historical abuse litigation, containing significant legal, financial, program, and relationship risks through reasonable settlements, as opposed to unpredictable court decisions. By negotiating resolution of Childhood Claims outside of the courts, settlements can balance individual compensation for past harms with forward-looking programming for healing, wellness, education, language, culture, and commemoration.

Commitment to this approach has been demonstrated through:

• the Anderson (Newfoundland and Labrador Residential Schools) Settlement Agreement (2016);
• the Prime Minister's formal apology to former students of the Newfoundland and Labrador Residential Schools (2017);
• the Sixties Scoop (Status Indian and Inuit) Settlement Agreement (2018);
• the McLean Federal Indian Day Schools Settlement Agreement (2019);
• the appointment of the permanent board of the Sixties Scoop Healing Foundation (2020);
• two separate settlements for Gottfriedson with both the Survivor and Descendant and Band classes (Day Scholars at Indian Residential Schools) (2021 and 2023);
• the launch of the McLean Day Schools Settlement Corporation (2021); and,
• the Percival (Federal Indian Boarding Homes) Settlement Agreement (2023).

In litigation related to areas of clear provincial areas of jurisdiction (such as the suite of off-reserve child welfare class actions, Métis and Non-Status Sixties Scoop and provincial day schools), the Government has opted to defend the claims before the Courts.

Indian Residential Schools Settlement Agreement Ongoing Litigation

In order to ensure the efficient and expeditious administration of the Indian Residential Schools Settlement Agreement, the courts determined that a streamlined process for addressing all matters that required court orders, directions, or consideration during the course of the administration was desirable. Two administrative judges–one in the East and one in the West–were appointed to provide judicial guidance on the administration of the Indian Residential Schools Settlement Agreement under the Court Administration Protocol.

Over 100 Requests for Direction seeking guidance on various issues related to claims, additions to schools, privacy of claimant information, administrative costs, legal fees, misconduct, and other administrative issues have been addressed through this Protocol. The vast majority of Requests for Direction are resolved. The limited remaining litigation involves St. Anne's Indian Residential School and orders regarding document production in the Independent Assessment Process. This ongoing litigation is contentious and attracts media coverage.

Additional court actions to wind up administrative aspects of the Indian Residential Schools Settlement Agreement – including closure of the fund used to pay Common Experience Payments, document management, and wind-up of governance bodies – will be required.

Missing Children and Burials: Calls to Action 72 to 76

The Truth and Reconciliation Commission of Canada reported that thousands of Indigenous children died while attending Indian Residential Schools. Children were often buried far from their home communities in unmarked or unregistered cemeteries near the schools. The deaths of children and the location of their final resting places were infrequently reported to families who were not able to bury their children in a culturally appropriate and respectful manner. The actual number of individual burial or cemetery sites associated with residential schools is unknown. However, 59 of the 140 institutions identified under the Indian Residential Schools Settlement Agreement had a documented cemetery on-site. The availability of records associated with these cemeteries varies significantly from school to school.

On June 7, 2021, the Residential Schools Missing Children Community Support Fund was launched to support Indigenous communities and partners in developing and implementing community-led initiatives to locate, document, and memorialize undocumented burial sites associated with Residential Schools and to honour families' wishes to identify and repatriate children's remains. This includes 140 residential schools referenced in the Indian Residential Schools Settlement Agreement and the 5 schools included in the Newfoundland and Labrador Residential Schools Settlement Agreement.

The Government of Canada has invested $323.1 million to date to support the implementation of Calls to Action 74 to 76 relating to the identification, protection and commemoration of burials. As of February 17, 2024, Crown–Indigenous Relations and Northern Affairs Canada has received 190 funding requests under the Residential Schools Missing Children - Community Support Fund totaling $704.3 million. 161 funding agreements totaling $246.7 million (2021-22 to 2024-25) have been put in place. Funding is in place until March 2026.

National Centre for Truth and Reconciliation - Indian Residential Schools Documents Advisory Committee

Crown–Indigenous Relations and Northern Affairs Canada leads a whole-of-government process to identify and manage the sharing of Indian Residential Schools-related documents (beyond those already disclosed to the Truth and Reconciliation Commission) to the National Centre for Truth and Reconciliation to increase community access to documents as follows:

• Complete an internal scoping exercise of records held across Crown–Indigenous Relations and Northern Affairs Canada and other federal departments, which may be associated with residential schools or the implementation of the Indian Residential Schools Settlement Agreement;
• Establish a parallel process for an Advisory Committee comprised of federal, Survivor, Indigenous community and expert representatives to provide guidance on prioritization, standards, where applicable; and, recommendations on broad approaches to different types of documents; and,
• Following this exercise, present options for a whole-of-government approach to identify and manage the sharing of additional documents and detail the associated resources required to complete the work.

The Scoping Exercise was initiated in Fall 2022 with Crown–Indigenous Relations and Northern Affairs Canada and twelve other federal departments that were identified for inclusion in the original Truth and Reconciliation Commission document disclosures. To date, approximately 23 million potentially relevant documents have been identified. It is anticipated that many of these documents may be duplicates of material previously disclosed to the Truth and Reconciliation Commission. Over 13 million of those documents are held by Crown–Indigenous Relations and Northern Affairs Canada.

Cadmus Delorme from Cowessess First Nation has been appointed as the independent Chair of the Advisory Committee. Current membership includes representatives from the 12 stakeholder departments identified through the Scoping Exercise, Indigenous Knowledge Keepers, Indian Residential School Survivors and Elders and a representative of the National Centre for Truth and Reconciliation. The Committee's inaugural meeting was held June 27-28, 2023.

The targeted completion date for this project is March 31, 2027.

The First Nations Fiscal Management Act

Economic self-sustainability is an important element of Indigenous self-determination. To support this goal, the Department has established programs and policies to bring greater economic flexibility to First Nation communities.

Through the First Nations Fiscal Management Act and the support of its fiscal institutions, First Nations build their capacity and are able to transition away from the Indian Act allowing for greater control over financial and fiscal management as well as providing access to long-term, low interest financing for infrastructure and socio-economic development projects.

• 376 First Nations (64% of all First Nations under the Indian Act) have opted into the First Nations Fiscal Management Act, with 299 having enacted financial administration laws, and 153 having enacted taxation laws which generate over $100 million in annual tax revenues.
• 179 First Nations are borrowing members of the First Nations Finance Authority, 95 of which have borrowed over $3.1 billion since 2014 (the first year the they issued its inaugural bond) for infrastructure and community economic development including financing to acquire equity stake in green energy projects (i.e. approximately $500 million), large businesses such as Clearwater Seafoods (i.e. $250 million loan for equity stake) as well as natural resource projects such as Cedar Liquefied Natural Gas (i.e. $1.4 billion over 4 years).
• The First Nations Finance Authority estimates that loans to its member First Nations since 2014 have resulted in the creation of 23,530 jobs and an economic output of $5.1 billion across Canada

Framework Agreement on First Nation Land Management

The First Nations-led Framework Agreement on First Nation Land Management provides mechanisms for communities to gain greater control of their lands and resources by withdrawing from the 44 land management provisions of the Indian Act. Over 212 First Nations have signed the Framework Agreement, and 118 First Nations now manage their lands. The Framework Agreement on First Nation Land Management Act, which received Royal assent in December 2022, now gives the force of the law to the Framework Agreement on First Nation Land Management.

The Framework Agreement lays out the process through which a First Nation resumes the authority to govern their lands according to a community approved land code, through which First Nation land laws derive. Land codes are unique to each First Nation and designed to meet a community's specific needs, rather than the one-size-fits-all approach of the Indian Act. Community self-determination over their land, environment, and natural resources provides more opportunities to realize the economic benefits arising from local control over their lands.

The Lands Advisory Board was created under the Framework Agreement to represent the signatory First Nations on key land-related issues. This Board is First Nation-elected and advocates for the rights of First Nations to improve management of their lands. A recent project advocated for, and led by the Lands Advisory Board, is to create the First Nation Land Governance Registry to support Framework Agreement First Nations in land management. This new, First Nation-owned and operated registry will be faster, more dynamic, and will support land and economic development at the pace for business First Nations require to support their economic needs.

Additions to Reserves

The Minister of Crown–Indigenous Relations is also responsible for the Addition of Lands to Reserves and Reserve Creation Act. This legislation facilitates the setting apart of reserve land for the use and benefit of First Nations. Lands are at the heart of First Nation traditions, identity and economic opportunities, and direct control over those lands advances self-determination. Through the Additions to Reserve and Reserve Creation process, First Nations are strategically expanding their land and resource base, including the development of urban reserves. These expansions are essential for generating own-source revenue and advancing First Nations' aspirations for self-determination and self-sufficiency.

A 2014 study demonstrated the significant economic impact of urban reserves, with a sample of six selected additions to reserve creating 3,060 jobs on-reserve, 4,328 jobs off-reserve, and approximately 600 seasonal jobs (Additions to Reserve Municipal Tax Loss Concerns (PDF)). The study also found that investment in urban reserves generated over $1 billion in economic benefits for both First Nations and neighboring communities, while providing millions of dollars in fiscal benefits for First Nations and local governments. These findings highlight how additions to reserve not only strengthen First Nations' economies but also contribute to regional prosperity, fostering positive relationships and shared growth opportunities.

The Department is also responsible for leading an initiative to redesign the Additions to Reserve Policy, addressing longstanding concerns that the current process is inefficient, overly complex, and prone to delays—resulting in significant missed opportunities. In 2021, CIRNAC launched an engagement process to collaborate with First Nations on improving the policy. This included preliminary engagement and a broad call for proposals, gathering specific policy change ideas from First Nation communities and organizations representing over 300 First Nations. In summer 2024, a Technical Advisory Committee was established to provide technical guidance on the policy redesign, which is expected to be fully redesigned and implemented in collaboration with First Nations within the next 3 years.

Whole of Government Coordination and Accountability

Whole of Government Coordination Issues Currently in the Public Eye

Rights Recognition: A Whole-of-Government Approach to Consultation

The Crown has a duty to consult and, where appropriate, accommodate when it contemplates conduct that might adversely impact potential or established Aboriginal or treaty rights. Government of Canada departments and agencies are responsible for understanding when their conduct might have adverse impacts on Aboriginal or Treaty rights and Crown–Indigenous Relations and Northern Affairs Canada supports other government departments in fulfilling their legal duties to consult. To support the whole-of-government approach to the Duty to Consult, Crown–Indigenous Relations and Northern Affairs Canada is currently engaging Indigenous groups on the renewal of the Guidelines for Federal Officials to Fulfill the Duty to Consult (2011).

The Federal Initiative on Consultation supports the co-development and implementation of consultation protocols and resource centres. Consultation protocols foster stronger relationships while clarifying engagement processes, laying out important parameters and standards necessary to the planning process. Resource centres support Indigenous partners to meaningfully engage in consultation by ensuring that they have the tools and capacity to manage and coordinate requests for consultation.

Crown–Indigenous Relations and Northern Affairs Canada also maintains the Aboriginal and Treaty Rights Information System, an online geography-based information system relied upon by federal officials to assist in baseline understanding of potential and established Aboriginal and treaty rights.

The Department also supports a coordinated approach for participation in the assessment of major projects under the Impact Assessment Act. This includes

• Coordination of the Department's subject matter expertise, including the duty to consult;
• Facilitation of issues resolution; and
• Participation in impact assessment governance structures.

The Department's participation in various major project-related policy initiatives has included

• Clean growth and regulatory efficiency initiatives, including cumulative effects
• Federal funding support, including the Critical Mineral Infrastructure Fund Committee
• Pre-planning of major initiatives such as the High Frequency Rail Project and the Regional Assessment for the Ring of Fire Region

The Department participated in approximately 47% of impact assessment projects in 2024-25.

Partnerships

In December 2016, the Prime Minister announced that Permanent Bilateral Mechanisms would be created with the Assembly of First Nations and First Nations, Inuit Tapiriit Kanatami and the four regions of Inuit Nunangat, and the Métis National Council and its Governing Members. Since then, work has progressed through these mechanisms. Additional formal partnerships have been established with the Self-Governing Modern Treaty Partners, and the Congress of Aboriginal Peoples. The Department plays an important leadership role in each of these partnerships, coordinating efforts across the Government of Canada to improve the relationship through these partnerships.

Assembly of First Nations Permanent Bilateral Mechanism

The Permanent Bilateral Mechanism between the Assembly of First Nations and Canada was established in 2017 through the signing of a Memorandum of Understanding on shared priorities. This Memorandum of Understanding commits Canada and the Assembly of First Nations to hold at least three leadership meetings per year to discuss joint priorities and monitor progress. One of these meetings is to be co-chaired by the Prime Minister and the National Chief.

Inuit-Crown Partnership Committee

The Government of Canada and Inuit Tapiriit Kanatami, the Inuvialuit Regional Corporation, Nunavut Tunngavik Incorporated, Makivvik Corporation, and the Nunatsiavut Government all participate in Inuit-Crown Partnership Committee, which enhances Canada's Whole-of Government approach to engaging with Inuit partners through cooperation, implementation, and accountability. The ICPC was established in February 2017 with the signing of the Inuit Nunangat Declaration on Inuit-Crown Partnership and currently has thirteen joint priority areas each with its own work plan that includes tangible deliverables.

Since its inception, the Inuit-Crown Partnership Committee has made important progress in key areas of shared priorities, including the co-development of the National Inuit Housing Strategy (2019), the Inuit Nunangat Policy (2022), and the Inuit-Crown Co-Development Principles (2022). The co-developed Inuit-Crown Partnership Committee evaluation report that looks back on the progress made over the last five years along with key recommendations for moving forward was endorsed in 2023-24.

Métis Nation Permanent Bilateral Mechanism

The Government of Canada and the Métis National Council and its Governing Members are advancing work on the joint priorities identified through the Canada-Métis Nation Accord, which was signed in April 2017 and forms the basis for their Permanent Bilateral Mechanism.

Intergovernmental Leaders Forum

Canada's Collaborative Modern Treaty Implementation Policy commits to the establishment of a permanent forum between the Prime Minister, appropriate federal Ministers, and leaders of Indigenous Modern Treaty and Self-Government partners. The purpose of the Intergovernmental Leaders' Forum is to provide an opportunity for direct conversations between leadership on shared priorities and significant matters of concern. The Forum is also an opportunity to ensure that federal departments better understand partner priorities so efforts can be advanced together.

The inaugural Intergovernmental Leaders' Forum took place on May 8, 2023, with all parties acknowledging the considerable progress made in regard to the announcement of Canada's Collaborative Modern Treaty Implementation Policy. The co-developed Forum agenda covered 10 established and emerging priorities that were spoken to by Indigenous Modern Treat and Self-Government leaders, as well as the Prime Minister and key federal Ministers.

Among the critical points discussed, some accomplishments that were noted at the Forum included the inclusion of a Modern Treaty Chapter in the United Nations Declaration Act Action Plan 2023-2028 and the progress made by the Collaborative Fiscal Policy Development Process on housing and infrastructure.

Relationships with Indigenous Women and 2SLGBTQI+ Peoples Representative Organizations

The Department currently supports three national Indigenous Women's organizations in advancing the unique priorities and interests of Indigenous women through Whole-of-Government relationship agreements, including their collaboration under Action Plan Measure 69 in the United Nations Declaration Act Action Plan. The Canada-Pauktuutit Inuit Women of Canada Memorandum of Understanding (June 2017), the Canada-Native Women's Association of Canada Accord (signed February 2019) and the Canada-Les Femmes Michif Otipemisiwak Declaration (signed August 2021) relationship agreements are critical vehicles to ensuring the inclusion of Indigenous women's perspectives.

Canada-Congress of Aboriginal Peoples' Political Accord

The Congress of Aboriginal Peoples is a self-determining, self-governing Indigenous representative organization advocating for the rights and interests of off-reserve Indigenous Peoples since 1971. It is the national voice for 11 provincial affiliate organizations, who work collectively to improve the socio-economic conditions of off-reserve Indigenous peoples, inclusive of Status and Non-Status Indians, Métis, and Southern Inuit of Labrador.

The Department and the Congress of Aboriginal Peoples signed the Canada-Congress of Aboriginal Peoples Political Accord (PDF) in 2018 and launched on March 4, 2020. Canada and the Congress co-developed the implementation process which seeks to address joint priorities through working groups co-led by various Departments and the Congress.

The Accord calls for a productive working relationship between Canada and the Congress of Aboriginal Peoples to address the socio-economic needs and interests of off-reserve Indigenous Peoples in Canada. Six joint priority working groups have been established and are co-led by the Congress of Aboriginal Peoples or one of its affiliates and a relevant federal department of the Government of Canada to help determine needs and gaps, and establish meaningful relationships.

International and Intergovernmental Relations and Obligations

The Government of Canada exercises leadership on work with Indigenous leaders on substantive federal-provincial-territorial issues, with a view to increasing the level of federal-provincial-territorial–Indigenous, and international engagement.

On the international stage, the Department has an active profile multilaterally, bilaterally, and in trade relations, collaborating with Indigenous and government partners to ensure that international work contributes to positive domestic outcomes for Indigenous Peoples.

The Department works to articulate national interests and promote/enhance Indigenous participation in international forums, and plays an important role in delivering on Canada's human rights obligations. The Department Canada works closely with other federal departments, such as Global Affairs Canada, to ensure that Canada's views are represented at international forums, such as the United Nations, the Arctic Council, and the Organization of American States. The Department also works closely with other government departments in the delivery of policies, including the Arctic Foreign Policy.

Special Considerations – Canada-U.S. Relations

As a result of the current status of the Canada-U.S. relationship, the Department is providing an overview of issues with implications for Indigenous Peoples.

Northern Governance

A focus of the Department has been the improvement of governance structures and mechanisms in the Canadian North. A key activity in this area has been the transfer of federal responsibilities for lands and natural resources to territorial governments (called "devolution") to ensure greater local control, as well as to fostering effective relations with territorial and Indigenous governments. Devolution was completed in Yukon (2003), Northwest Territories (2014) and, following the signing of the Nunavut Lands and Resources Devolution Agreement in January 2024, the full transfer is targeted for 2027 following a three-year implementation phase.

Nunavut Devolution

Since the 1960s, the federal government has gradually transferred responsibility to territorial governments for matters such as health, education, social services, housing, airports. Since the creation of the territory in 1999, there have been many discussions about the transfer and devolution of land and resource management to the Government of Nunavut.

On January 18, 2024, the Prime Minister, the Minister of Northern Affairs, the Premier of Nunavut, and the President of Nunavut Tunngavik Incorporated signed the Nunavut Lands and Resources Devolution Agreement in Iqaluit. The signing of the Nunavut Lands and Resources Devolution Agreement launched a three-year implementation phase towards bringing the Devolution Agreement into effect on April 1, 2027.

The Nunavut Lands and Resources Devolution Agreement signed in January 2024 relates to the official transfer of responsibilities for Nunavut's public lands, natural resources, and rights in respect to water from the Government of Canada to the Government of Nunavut. The signing of the Devolution Agreement is the result of collaborative work since the creation of the territory to support Nunavummiut's (the people of Nunavut) goal of self-determination.

An Implementation Plan, committed to in the Devolution Agreement, was developed to guide the parties' work to bring devolution into effect by Transfer Date of April 1, 2027.

• The Government of Canada in coordination with the Government of Nunavut and Nunavut Tunngavik Incorporated advanced deliverables required during the initial phase of implementation, and is on track to meet all 1-year obligations (2024).
• Engagement with Affected Federal Employees in the Nunavut Regional Office has been a CIRNAC priority. Following union engagement with Devolution management, preliminary letters were delivered to Affected Federal Employees in December 2024.
• Year 2 of implementation (2025) will be focused on continuing to advance the activities to meet the obligations of the Devolution Agreement with a particular focus on continued Affected Federal Employee engagement, drafting legislation and section 35 consultations.

Arctic and Northern Policy Framework

The Arctic and Northern Policy Framework was launched in 2019 and was co-developed with Inuit, First Nations, and northern Métis, the territorial governments of the Northwest Territories, Nunavut and Yukon, and the provincial governments of Manitoba, Quebec, and Newfoundland and Labrador. The Framework provides "a shared vision of the future where Arctic and northern people are thriving, strong and safe" and is intended to guide the Government of Canada's national and international policy objectives with the priorities of Northerners.

The Arctic and Northern Policy Framework marked a significant shift for the Government of Canada. Co-development of the Framework was undertaken in partnership with the North; the federal government worked collaboratively with representatives of territories, provinces, and over 25 Indigenous governments and organizations. The Framework implementation tables are unique in Canada, reflecting a fundamental change in federal engagement with the region and its people. This shift aims to move beyond the past approaches described by (now Governor General) Mary Simon in her 2017 report, A New Shared Arctic Leadership Model, emphasizing collaboration "with the North" rather than "for the North." Simply put, Arctic and northern leaders must be involved in crafting major decisions that affect them, through inclusive and mutually respectful processes and mutually agreed-upon principles of partnership.

Ongoing collaboration to implement the Framework's goals offers unprecedented opportunities for multiple governments and treaty partners to shape a shared vision. Regular meetings and diverse participation, including federal Ministers and Parliamentary Secretaries, highlight this broad, cross-cutting approach. The Framework exemplifies the evolving governance in the Arctic and North, underscoring the need for deeper collaboration across jurisdictions. Initial implementation activities have illustrated the need to further reinforce mechanisms for working together on an ongoing basis, to combine and align partners' efforts across jurisdictions. Implementation to date, only highlights the magnitude of the longstanding challenges and the range of areas in which improvements remain necessary to address ongoing gaps.

Crown–Indigenous Relations and Northern Affairs Canada continues to work with northern partners to implement Framework goals and objectives, and to ensure that Northerners' needs are met. Housing and infrastructure needs were key priorities raised by Framework partners in advance of the 2024 Leadership Committee meeting, along with Arctic and northern security and defense, international Arctic policy, and mental health and wellness.

Specific priorities noted during the 2024 meeting included a desire for coordinated and northern-specific approaches to investments on big projects such as the Mackenzie Valley highway, the Kivalliq fibre link, the Iqaluit hydro project, and the Grays Bay road and port; enhanced funding for the Canadian Rangers; greater coordination with territorial and Indigenous governments on emergency management and public safety; investments in local economies; climate change; economical air services; and cross-border mobility.

Implementation of the Safety, Security and Defence chapter of the Framework is led by the Department of National Defence. Implementation of the International Chapter is led by Global Affairs Canada with guidance from Canada's Arctic Cooperation and Advisory Committee, which includes Indigenous, territorial, provincial and federal representatives. The Committee met on February 11-12, 2025, and discussed Canada's Arctic Foreign Policy, Arctic Council engagement and the Team Canada approach to Arctic engagement with the United States.

Territorial governments are strongly supportive of a Team Canada approach, in terms of Canada-US relations. The three northern premiers took part in the premiers' mid-February visit to Washington, where they participated in a panel discussion on political, commercial and defence partnerships in the North.

Northern Indigenous partners, including the Council of Yukon First Nations, have also supported a Team Canada approach. The Gwich'in Tribal Council, in particular, has stressed that, in their traditional territories, their inherent rights as recognized through modern treaties with the Government of Canada and the territorial governments must be taken into consideration on discussions involving cross-border issues, such as the future of the Porcupine caribou herd.

Post-Secondary Education in North

In support of the implementation of the Framework, federal investments were made in Northern post-secondary education, including $1 million (Budget 2019) to establish a Task Force on Northern Post-Secondary Education to co-develop recommendations on developing a robust system of post-secondary education in the North. The Task Force completed its mandate and released its final report in March 2022 (A Shared Responsibility: Northern Voices, Northern Solutions — Report of the Task Force on Northern Post-Secondary Education (PDF)), which included 37 Calls to Action across 11 thematic areas, for all levels of government and northern post-secondary institutions, to work towards closing the post-secondary education gaps across the region.

Investments also included $12.97 million over 5 years to the Dechinta Centre for Research and Learning (based in Yellowknife) to support culturally-appropriate, land-based learning and research and post-secondary courses (accredited by the University of British Colombia), including support for Indigenous students interested in pursuing post-secondary education (Budget 2019). More recently, the Department contributed an additional $5.2 million over two years from Budget 2024 to enable Dechinta to continue their work supporting Indigenous youth to enter post-secondary education.

Northern Science and Technology

The Northern Affairs portfolio has long played a central role in supporting scientific research and technology in the North and Arctic through programs, partnerships and infrastructure to ensure domestic and international policy on key northern issues is better informed by a scientific knowledge base which includes Indigenous Knowledge. To do so, its focus is to: research and monitor contaminants and their impacts on the ecosystem and human health through the Northern Contaminants Program; assess, manage and communicate scientific data and results, and contribute expertise to help inform public policy-making and international controls on certain contaminants; lead Canada's participation in the Arctic Monitoring and Assessment Programme, the working group of the Arctic Council focused on issues of pollution and climate change and their effects on ecosystems and human health; and support the advancement of northern research infrastructure. This work is accomplished by working closely with partners, including POLAR Knowledge Canada.

Climate Change and Clean Energy

Indigenous and northern communities in Canada are most exposed and most sensitive to the impacts of climate change due to a combination of cultural and geographic factors. These impacts can exacerbate socio-economic barriers, increase public safety risks, and undermine access to section 35 rights. Proactive transition to more resilient and reliable systems presents social and economic opportunities at a community and regional scale, and can avoid contingent financial liabilities and economic disruption.

Through its six climate change programs, Crown–Indigenous Relations and Northern Affairs Canada is working with northern and Indigenous communities and partners to monitor the changing environment, assess impacts, and implement community-driven solutions that advance resilient and reliable energy and infrastructure systems. Projects are community-led, build and enhance local capacity and skills, and yield economic opportunities for communities.

The Northern Responsible Energy Approach for Community Heat and Electricity (REACHE) program supports and prioritizes Indigenous-led and partnered clean energy projects in the North, as well as supporting an enabling environment to help address energy security needs. Although small, the program has been instrumental in supporting early stages of larger projects from conceptualization, feasibility and planning work to de-risk projects and prepare for next stages and larger investments.

Food Security

Food security is a complex challenge with many variables. Food insecure households are those that are uncertain of having or are unable to acquire enough food to meet the needs of all their members. Food insecurity in northern and isolated communities poses significant challenges that directly affect the health and well-being of Northerners.

Nutrition North Canada is a Crown-Indigenous Relations and Northern Affairs program that helps make nutritious food and some essential items more affordable and more accessible in isolated, northern communities. It helps eligible communities through its food security programs including:

• Retail Subsidy
  • Includes local food producers, charitable organizations and food banks.
• Harvesters Support Grant
  • Supports for local food production, including food and harvesting infrastructure.
• Community Food Programs Fund
  • Supports a variety of community-led food security activities for retail, locally grown, and country food.

Nutrition North Canada subsidizes a list of nutritious eligible foods, as well as certain non-food items such as diapers and personal hygiene products, sold by registered retailers, suppliers, country food processors and local food growers. Food banks and charitable organizations are also eligible for the subsidy. Since its inception in 2011, the number of communities eligible for the subsidy has increased from 79 to 125.

Nutrition North Canada's food security programming was co-developed with Indigenous and community partners, and included involvement from all four Inuit modern treaty holders organizations and is the first formal federal recognition of the Inuit Nunangat Food Security Strategy.

The addition of the co-developed Harvesters Support Grant and the Community Food Programs Fund have been lauded by Indigenous and northern partners, who view sustained investments in these solutions as a core requirement to northern food security and sovereignty. Since the expansion of the program in 2021, Nutrition North Canada has transferred over $76 million to the four Regional Inuit Organizations through Harvester Support Grant and Community Food Programs funding. Between January 2023 and November 2024, over 150,000 kg of free food has been delivered to Nutrition North Canada communities via both air and ice road shipments.

Nutrition North Canada continues to evolve in response to recommendations from Indigenous and Northern partners. The program has increasingly taken a food systems approach and co-delivery with Indigenous partners to promote food security and food sovereignty in isolated and northern communities. Through its Food Security Research Grant, Nutrition North Canada continues to work with academics and Indigenous organizations to examine the retail subsidy and review the audit process in order to develop meaningful policy options to make the program work better for those it serves.

In February 2025, Aluki Kotierk was appointed as the Minister of Crown-Indigenous Relations and Northern Affairs Canada's Special Representative to conduct an external review of the Nutrition North Program. In this role, she is to meet with national and regional Indigenous organizations, stakeholders, and federal government organizations to evaluate the Program's effectiveness. A final report with recommendations for Program improvements is expected in 2026.

Emergency Management in the North

Climate change is impacting the North at a rate that is three times the global average. As demonstrated during the 2023 wildfire season, emergency management across Canada's three territories is faced with unique challenges due to large geographies, small populations, remote communities, and accelerated impacts of climate change. The 2023 fires in the Northwest Territories illuminated gaps in federal emergency management programming, mostly in terms of Indigenous eligibility and programmatic barriers to access in Public Safety's Disaster Financial Assistance Agreements, as well as Indigenous Services Canada's Emergency Management Assistance Program. In response, Crown–Indigenous Relations and Northern Affairs Canada provided one-time funding in the amount of $15 million to Northwest Territories Indigenous partners to address emergency management policy gaps.

Successful preparation for and response to emergencies in the North requires coordinated communication and cooperation between all levels of government, including (and most importantly) Indigenous governments and leadership. Following the 2023 fire season, Crown–Indigenous Relations and Northern Affairs Canada initiated work with other federal departments to develop a long-term strategy to address culturally appropriate emergency management services in the North. Analysis of existing federal programming identified an important gap in Emergency Management, particularly as it relates to planning and preparation for Indigenous communities who are not eligible under other federal programming including the Disaster Financial Assistance Arrangements operated by Public Safety Canada or Indigenous Services Canada's program (Métis, Inuit, and First Nations people living off reserve). Crown–Indigenous Relations and Northern Affairs Canada is engaging with Indigenous partners across the North, as well as with the territories, in order to further understand policy gaps and community needs. So far, these sessions have shown a need for increased community capacity in order to better prepare communities.

Norman Wells Proven Area Oil Field

The Norman Wells oil field is one of Canada's longest-operating petroleum sites, where Imperial Oil Resources has been producing oil since 1920. Two environmental assessments are underway as a result of referrals from Sahtu Secretariat Incorporated: Line 490 and Continued Operations. The Mackenzie Valley Environmental Impact Review Board is trying to complete the review expeditiously. There will be pressure on responsible ministers to make timely decisions, especially in the case of the Continued Operations decision, given Imperial holds a Type A Water License that expires on May 3, 2025 (the renewal process is halted while the environmental assessment is completed).

The Land and Water Boards do not have authority to extend licenses, although they do have authority to act in the public's interest and this includes decisions taken to avoid an emergency situation. In order to allow time for the environmental assessments to be carried out, the Board has initiated a process to renew the license for three years on an emergency basis, with no changes to the license. The Minister of Northern Affairs must approve the renewal prior to May 3, 2025, when the current license expires. The Sahtu Land and Water Board expects to make a recommendation to the Minister on the renewal before March 14, 2025.

If their Type A Water License is not renewed for the proposed 3-year term, Imperial may prepare to shut in operations, which will have a major impact on the Town of Norman Wells: 15% reduction in local workforce, $6 million annual property tax loss, and no locally produced natural gas to generate electricity (likely requiring diesel fuel as an alternative).

Mary River Iron Mine Project (Steensby Port and Railway)

Baffinland Iron Mines Corporation's Mary River Mine is located on North Baffin Island, in the Qikiqtani Region of Nunavut. Operations, which commenced in 2015, consist of mining high-purity iron ore (added to Canada's critical minerals list is 2024) for shipping to market without the need for concentrating or processing.

The Mary River Mine, which has been subject to numerous impact assessments given changes made (or proposed) since the project was first approved in 2012, continues to garner public interest, including internationally. Key concerns raised in relation to Mary River operations include potential impacts of ore transportation on marine mammals and caribou, and the impacts of the deposition of iron ore dust on ice, drinking water and wildlife.

The Mary River Mine is a major source of Inuit employment and has a significant impact on the economy of Nunavut, and the economy of the North Baffin region, in particular. However both support and opposition to the project have been expressed by various parties.

Baffinland seeks to advance project development related to the originally approved phase of the project for the nominal production of 18 million tonnes per annum of iron ore, to be transported south by a new railway to a new port at Steensby Inlet. Baffinland has applied for federal regulatory authorizations required to proceed with construction of the port and railway. Federal regulatory authorities are currently coordinating consultation on these authorizations.

The Nunavut Water Board is currently considering renewal of Baffinland's Type A water Licence, with public hearings scheduled in March. A recommendation is expected to be conveyed to the Minister responsible for Northern Affairs in May for decision. Discussions around reclamation security, and the negotiation of a Security Management Agreement between the Qikiqtani Inuit Association, Baffinland and the Department are happening in parallel.

Meliadine Gold Mine

Agnico Eagle Mines Limited's Meliadine Mine is located in the Kivalliq Region of Nunavut, approximately 25 kilometers north of Rankin Inlet. It consists of open pit and underground mining of gold. Commercial production began in 2019 and is expected to continue until 2032.

Agnico Eagle's two operating mines, Meadowbank and Meliadine, contribute 22% of Nunavut's GDP and the company is Nunavut's largest private employer with over 3,500 employees including 400 Inuit.

Agnico Eagle has technical and economic concerns related to marine testing requirements of Environment and Climate Change Canada's Metal and Diamond Mining Effluent Regulations, specifically the Acartia tonsa test method. Environment and Climate Change Canada has responsibility for the regulations but has worked closely with Natural Resources Canada and the Department to consider Agnico Eagle's concerns. The marine testing issues also have implications for Agnico Eagle's Hope Bay Mine, in the Kitikmeot Region of Nunavut. The Hope Bay mine is currently in care and maintenance. Agnico Eagle is considering redeveloping and reopening the mine, however their issues with the Regulations may be a limiting factor.

The Department continues to rely on the technical expertise of Environment and Climate Change Canada and Natural Resources Canada when it comes to issues with the Regulations; the Department's role is acting as a broker between departments and Agnico Eagle, while considering the Crown-Indigenous relationship, Indigenous self-determinations, and the integrity of the co-management regime and broad economic implications.

Northern Regulatory Initiative

Budget 2022 provided $3.8 billion to Natural Resources Canada for the implementation of a Canadian Critical Minerals Strategy. $40 million of this was allocated over seven years to the Northern Regulatory Initiative to advance regulatory priorities in the North. Examples of projects funded under the Initiative include:

• The design of a Regional Study in the Slave Geological Province in the Northwest Territories, as requested by the Tłı̨chǫ Government, is currently underway. The study will begin once the Minister approves the draft Terms of Reference and appoints Committee members to lead the study.
• $2.5 million to support five First Nation-led studies in areas of critical mineral and/or enabling infrastructure potential in Yukon. Funding First Nations to collect and share baseline and cumulative effects data (which informs land use planning, impact assessments, and permitting) will help prevent delays due to lack of information or understanding. It was designed in response to priorities raised by the Government of Yukon, Yukon First Nations, and industry, who will continue to be engaged through Northern Regulatory Initiative dialogues.
• Funding to develop a cumulative effects assessment framework for the Mary River Iron Ore Mine Project has been provided to the Nunavut Impact Review Board. The framework can be subsequently applied to other major projects in the Territory.
• Funding to support initiatives to improve data management. The Mackenzie Valley Environmental Impact Review Board and the Yukon Environmental and Socio-economic Assessment Board are working to update and improve how data and information can be accessed to inform regulatory processes. This work will consider linkages to other data platforms (e.g., the Open Science Data Platform led by NRCan and ECCC), will help provide data more efficiently, and will be used to house data and information collected through Northern Regulatory Initiative projects. The work is being developed with the goal of pan-northern data approach.

Budget 2024 laid the groundwork for a whole-of-government approach to advance clean growth initiatives, and the Northern Regulatory Initiative is an example of how the Government of Canada is advancing regulatory efficiency work to support these objectives.

Proposed Targeted Amendment to the Yukon Environmental and Socio-Economic Assessment Act

A proposal to amend the Yukon Environmental and Socio-economic Assessment Act (the Act) has been co-developed by the Council of Yukon First Nations, Government of Yukon, and Government of Canada (the Parties) to exempt certain projects from re-assessment with consent from affected Yukon First Nations. The Government of Yukon continues to promote this targeted amendment as key to efficient and responsive regulatory processes in the territory and has identified this item as a high priority. Member Chiefs of the Council of Yukon First Nations signed a formal Resolution in preliminary support of the proposal in January 2024 provided the final amendment maintains the requirement for First Nations consent and that a full review of the Act is initiated prior to 2027.

Consultations on the draft legislative proposal began in December 2024. The 2024 Fall Economic Statement announced the Government's intention to pursue this amendment in advance of a comprehensive review of the Act, which is targeted for 2026. The proposed amendment does not pose a high risk; however, the risk level will increase if consultation is not conducted in a meaningful manner. Tight timelines for near-term introduction to Parliament will be a factor to consider moving forward. Consultation for this work is still underway.

Recommended Nunavut Land Use Plan

The Nunavut Planning Commission was established in 1995, pursuant to the Nunavut Agreement. It is responsible for preparing land use plans in the Nunavut Settlement Area that provide for the conservation, development and use of land and marine regions; and that reflect the priorities and values of Nunavummiut.

A Nunavut-wide land-use plan, which would be one of the largest regional land use plans in the world, has been in preparation since 2007.

The fourth draft of the Plan, the 2021 draft Nunavut Land-Use Plan, was publicly reviewed and subject to five regional public hearings in 2022. Based on input received during this review process, the Nunavut Planning Commission made revisions and submitted the 2023 Recommended Nunavut Land Use Plan for decisions by the three parties on June 20, 2023.

Decisions on whether to accept or reject a land use plan are made jointly by Nunavut Tunngavik Incorporated, the Minister of Northern Affairs and the Nunavut Minister of Environment. If accepted by all three parties, the two ministers would seek approval of the Governor in Council and the Executive Council of Nunavut. If rejected by any party, it would be referred back to the Nunavut Planning Commission with written reasons for revisions. Under the Nunavut Planning and Project Assessment Act, there are no legislated timelines; decisions are to be made as soon as practicable.

To date, initial reactions from external stakeholders to the Recommended Plan have been mixed, with the mining industry indicating serious concerns and urging its rejection, and environmental non-governmental organizations expressing the view the Recommended Plan represents a solid foundation for land management in Nunavut and urging its approval.

Crown–Indigenous Relations and Northern Affairs Canada has coordinated the Government of Canada analysis of the Recommended Plan through a federal working group. Substantive discussions with the Government of Nunavut and Nunavut Tunngavik Incorporated began in fall 2024 and will continue through spring 2025, with the aim of reaching a joint decision whether to accept or reject the Recommend Plan. Crown–Indigenous Relations and Northern Affairs Canada is also conducting joint Crown consultation with the Government of Nunavut.

Once Crown consultation is complete and the Parties' discussions on concerns with the Plan and a path forward have concluded, a decision package will be routed to the Minister of Northern Affairs to accept or reject the Recommended Plan.

Northern Land, Resources and Environmental Management

While striving to increase the transfer of federal responsibilities to territorial governments as part of devolution, the federal government, through Crown–Indigenous Relations and Northern Affairs Canada's administration of Northern Affairs, retains responsibility over some lands and resources in the North. This, includes oversight for resource co-management legislation and certain resource management functions that reflects, respects and gives effect to the Northern resource co-management regimes set out in modern treaties.

As a result, several programs and policies focus on the co-management, sustainable development and regulatory oversight of the land, water, natural resources, and environment of the North. This includes leading legislative initiatives (including amendments, reviews, and regulatory and non-regulatory Order in Councils), managing oil and gas resource development; implementation of the offshore oil and gas accord; managing royalties in areas of federal responsibility, participating in impact assessment, land use planning, and regulatory processes for projects (and has a supporting the Minister's decision-making role in some instances) and ensuring completion of territorial land use planning; supporting the Critical Mineral Strategy's Northern Regulatory Initiative; and contributing to marine conservation and other ocean-related initiatives. Key is ensuring northern perspectives are captured in federal policies and programs. Northern Affairs also provides a supporting role on modern treaty negotiations on topics involving resource management, and leads consequential amendments to resource co-management legislation resulting from the finalization or modernization of treaties.

Northern Contaminated Sites Program

Through the Northern Contaminated Sites Program, the Department manages more than 160 contaminated sites across the North, representing an estimated $6.3 billion in environmental liability (Public Accounts of Canada, March 2023). The eight largest abandoned mine projects located in the Yukon and the Northwest Territories are administered through the Northern Abandoned Mine Reclamation Program; this includes the Giant Mine and Faro Mine remediation projects, two of the largest contaminated sites in Canada. Crown–Indigenous Relations and Northern Affairs Canada's remaining sites in the North are funded through Environment and Climate Change Canada's Federal Contaminated Sites Action Plan. The objectives of the Northern Contaminated Sites Program is to manage contaminated sites in a cost-effective and consistent manner, reduce risks to human health and the environment and associated federal environmental liabilities, while advancing partnerships and socio-economic opportunities for Northerners and Indigenous Peoples. Priority is given to those sites posing the highest risks.

National space for First Nations, Inuit, and Métis and Dedicated Algonquin Space

The Indigenous Peoples' Space at 100 Wellington Street in Ottawa is intended as a place to educate and raise awareness of First Nations, Inuit and Métis Peoples' contributions to Canada's past, present, and future. It is intended to be distinctions-based and reflect each of the three unique Indigenous groups in Canada – First Nations, Inuit and Métis – and the diversity within those groups. It will also provide a space for Indigenous governments to conduct intergovernmental relations and official business.

National Indigenous Organizations have had short-term access to 100 Wellington Street since October 2023. On March 4, 2025, the Minister of Crown-Indigenous Relations and Northern Affairs and the National Chief of the Assembly of First Nations, the President of Inuit Tapiriit Kanatami and the President of the Métis National Council signed a Letter of Intent and a Collaboration Implementation Framework that further solidifies the permanent First Nations, Inuit and Métis presence in the Parliamentary Precinct. The framework seeks to establish a common view of key activities that will support early planning for the project.

Historical Context of Crown–Indigenous Relationships

Indigenous Peoples' relationships with the Government of Canada have evolved over time, and continue to do so. Early interactions between European explorers and "Indians" (First Nations), Inuit, and, later, Métis, were based on mutually beneficial objectives and strategic alliances through treaties that largely focused on trade and protection, and eventually on land purchases. After the issuance of the Royal Proclamation of 1763 which established British authority in New France and addressed some First Nations' interests, the nature of Crown–Indigenous relationships changed from one built on concepts of nation-to-nation relations to one where the Crown exercised growing power and authority over Indigenous Peoples.

By the 19th century, new ideas and approaches towards these relationships began to take hold. Starting in the 1820s, different initiatives were undertaken to assimilate First Nations into British settler society. After 1867, Canada assumed responsibility for the management of "Indians and Indian lands" and adopted the Indian Act of 1876. This Act gave greater authority to the Department of Indian Affairs by permitting it to intervene in the lives of First Nations and oversee local governance of communities. Amendments to the Indian Act led to increased restrictions and even greater controls upon the lives of First Nations. The Department of Indian Affairs was mandated to manage reserve lands and to push policies and programs aimed at bringing about the cultural and social change of Indigenous Peoples. Of specific note, the Department of Indian Affairs used the Indian Act and other policies relating to educational programs to force a transformation of Indigenous societies. Residential schools were established in the 1880s to educate Indigenous children in a religious environment. These schools saw the removal of 150,000 Indigenous children, often forcibly, from their families and communities to attend faraway schools, resulting in a loss of Indigenous languages and culture.

Since Confederation in 1867, Inuit were outside the responsibility of the Department of Indian Affairs, as it was argued that the wording of the British North America Act only included "Indians" as a federal responsibility, and not Inuit. After a Supreme Court of Canada ruling in 1939 indicating that Inuit should be considered as "Indians" and be the responsibility of the federal government, programs and services were slowly developed for Inuit and other northern Indigenous Peoples. Although managed separately from the Department of Indian Affairs until 1966, programs and policies were largely ineffective and often inappropriate for northern regions. Since the 1970s, Inuit communities have negotiated land claims and governance agreements over their traditional lands, culminating in the creation of the territory of Nunavut as a public government.

By the mid-1940s, it was apparent that the policies to assimilate First Nations needed to be abandoned as First Nation communities rejected cultural assimilation into non-Indigenous society. This started a slow process of amendments to the Indian Act and other policies to gradually limit some of the authority of the federal government over First Nation communities. During the last half century, local control has been transferred through various programs, as well as through agreements on self-government, as a response to increasing calls for greater First Nation autonomy and growing recognition of an Indigenous right to self-government and self-determination.

While treaties to determine Indigenous land rights were in place up to the early 20th century, later policies ended the practice of treaty making and rejected Indigenous rights. By the 1970s, new policies, such as the Comprehensive Land Claims Policy and the Specific Claims Policy, were developed to address outstanding Indigenous claims and rights. After a series of landmark court decisions brought about an important shift in the recognition of Indigenous rights in Canada, the Policy on Claims of Indian and Inuit was announced to settle Indigenous claims to lands and resources through a negotiated process. Since 1975, there have been 27 such agreements, commonly known as "modern treaties," signed with Indigenous Peoples across northern Quebec, the Northwest Territories, Yukon, and British Columbia. In conjunction, a companion policy was created in 1973 to address claims of a more specific nature relating to historic grievances, such as for unfulfilled treaty obligations or improper land management, known as "Specific Claims." Since 2008, this process is supplemented by the Specific Claims Tribunal Act, which created an independent body known as the Specific Claims Tribunal with the authority to make binding decisions in respect to the validity of claims and compensation.

When the Canadian constitution was repatriated in 1982, First Nations, Inuit, and Métis political organizations succeeded in securing their respective places at the discussion table. These discussions culminated in the inclusion of section 35 to the Constitution Act, 1982, which recognized "existing Aboriginal and treaty rights" as well as a definition of Indigenous Peoples which included all three groups. Section 35 has become an important mechanism for Indigenous Peoples to define and clarify the extent of Indigenous and treaty rights.

Much like Inuit in Canada's North, Métis were long ignored by the federal government. Not recognized as an Indigenous group until 1982, Métis struggled to gain recognition of their rights or any federal responsibilities towards them. Since their recognition in section 35, provincial Métis organizations as well as the Congress of Aboriginal Peoples have used the courts to advocate for their place in Canada.

Since the adoption of section 35, new focus has been placed on addressing the errors of past policies and actions. After nearly a decade of discussions and negotiations, a settlement was announced in 2007 to compensate residential school survivors. As part of this settlement, the Truth and Reconciliation Commission was established to act as an independent body to provide a safe and culturally appropriate place for former students and others affected by the residential school system to share their experiences. On June 11, 2008, Prime Minister Stephen Harper offered a formal apology to former students of residential schools, their families and communities, and sought forgiveness for the students' suffering as well as for the impact of the schools on Indigenous cultures, heritage and languages. In 2015, the Truth and Reconciliation Commission issued its final report and Calls to Action calling for a sweeping overhaul of the relationship between Indigenous Peoples and Canadians. As Government of Canada and Indigenous partners continue to implement the Calls to Action, the announcement of unknown remains of children at the sites of residential schools continues to cause Canadians to confront the racist and discriminatory history of Canada's treatment of Indigenous Peoples.

Since the shift away from the policies of assimilation in the 1970s and the introduction of policies aiming to resolve outstanding claims and grievances, new processes have supported the advancement of relationships and reconciliation. Over the course of 40 years, 27 modern treaties have been signed with over a hundred Indigenous communities, while over 500 Specific Claims have been settled, bringing over $6 billion in compensation into First Nations communities. To date, 22 of the 27 modern treaties include self-government components. In addition, there are three stand-alone and ten sectoral self-government arrangements. These arrangements have helped enable Indigenous communities to take control of their own affairs, creating new opportunities for growth and change. Building on the recognition of Aboriginal and treaty rights in the Constitution Act, 1982, new ways of discussing how to better recognize and implement those rights have been established, which will help to restore Crown–Indigenous relationships and finding constructive paths to advance Indigenous economic and social participation and self-determination.

First Nations

First Nations are not a single group but include several different groups speaking different languages with a wide range of traditions and cultural practices. Despite this diversity, First Nations share similar experiences as a result of their interactions with the Government of Canada, life on reserves and the impact of specific laws, such as the Indian Act. This Act, which is a piece of federal legislation, legally defines which individuals are entitled to be registered as "Indians" based on their ancestry. These individuals are typically referred to as "status" or "registered" Indians. Section 6 of the act provides the basis for how status is or can be passed down from parents to children. Status and place of residence are key in determining an individual's eligibility for federal programs and services.

Within First Nation communities, there is also a difference between Status Indians who are recognized as members of a First Nation community (also known as a "band") versus non-band members. Through provisions of the Indian Act, some individual communities determine how band membership is established. Band membership may confer a variety of benefits, including acceptance as a member of the community and its culture and access to band-administered programs and services.

Another distinction lies between Treaty Indians – individuals who are members of First Nations having signed an agreement relating to historic land surrender (prior to 1975) or modern agreements (since 1975) with the Crown – and non-treaty Indians. Specific rights and benefits, such as treaty rights to hunt and fish or annual treaty annuity payments under the terms of the treaties, are available to Treaty Indians whether or not they live on reserve.

The Assembly of First Nations is a national advocacy organization that has been serving over 600 First Nations communities across Canada for decades. There are also other organizations at the national, regional and community level that advocate for First Nations women and 2SLGBTQIA+ peoples. These organizations include the Native Women's Association of Canada (since 1974), the Ontario Native Women's Association (since 1971) and Les Femmes autochtones du Quebec ("Quebec Native Women," since 1974) who are active advocates and policy and legislation influencers.

Inuit

Inuit are the Indigenous Peoples originating in northern Canada. Most Inuit reside in Nunavut, the Mackenzie Delta area of the Northwest Territories (Inuvialuit), as well as northern parts of Quebec (Nunavik) and Labrador (Nunatsiavut). Since the conclusion of land claims agreements with Inuit have been settled, they are most readily identified as beneficiaries of one of four land claim agreements:

• the Inuvialuit Final Agreement (1984);
• the Nunavut Land Claims Agreement (1993);
• the Labrador Inuit Agreement (2005); and,
• the Nunavik Inuit Land Claims Agreement (2006)/the Inuit-specific part of the Northern Quebec James Bay Agreement (1975)

Over time, through migration and the need to access services, many Inuit have settled outside of Inuit Nunangat. There are significant Inuit populations in the south, including Edmonton, Winnipeg, Ottawa, Montreal, and Halifax.

Inuit Tapiriit Kanatami is the national voice of approximately 70,000 Inuit, living primarily in 51 communities in four Inuit land claim regions: Inuvialuit Settlement Region (Northwest Territories); Nunavut; Nunavik (Northern Quebec); and Nunatsiavut (Northern Labrador). Pauktuutit Inuit Women of Canada is a national advocacy organization that has been working to advance the needs and interests of Inuit women, children and families for over 40 years. It works closely with Inuit Tapiriit Kanatami.

Métis

While there is no single or definitive legal definition of Métis, it is generally accepted that Métis are the descendants of First Nation women and European men who formed their own unique culture, traditions, language and way of life in distinct communities separate from other Indigenous and European communities.

Several court decisions have helped define Métis rights, such as the 2003 Powley decision where the Supreme Court of Canada held that for the purpose of establishing Indigenous rights, the term "Métis" in section 35 of the Constitution Act refers to distinctive peoples who, in addition to their mixed ancestry, developed their own customs, way of life, and recognizable group identity separate from their Indian and European forebears. In the 2013 Manitoba Métis Federation case, the courts signalled that the federal Crown needs to engage with the descendants of the Métis people of the Red River Valley in a meaningful way.

The Métis landscape is continuing to evolve. The Métis National Council includes two governing members: the Otipemisiwak Métis Government (formerly the Métis Nation of Alberta) and the Métis Nation of Ontario. The Manitoba Métis Federation, Métis Nation-Saskatchewan and Métis Nation British Columbia withdrew from the Métis National Council in 2021 and 2024, respectively. The Métis Settlement General Council represents the eight Métis settlements of Alberta and is the only land-based Métis organization.

Les Femmes Michif Otipemisiwak is a national organization advocating for Métis women and brings forward their perspectives to inform policy and program development.

Beyond those with defined Métis rights, a broader community of Métis of mixed Indigenous–European ancestry is located throughout Canada, including outside the Métis homeland east of Ontario and in the North. Some members of this community are represented by the Congress of Aboriginal Peoples.

There are between 3,000 and 5,000 Northwest Territories Indigenous residents who identify as Métis. They are represented by Métis locals in a number of communities including Fort Simpson, Fort Providence, Norman Wells, Fort Smith, Fort Resolution and Hay River. The Métis residing in the Northwest Territories are not represented by the Métis National Council and oftentimes are unable to access funding programs offered by Crown–Indigenous Relations and Northern Affairs Canada and Indigenous Services Canada. This has left a policy funding gap – one that various Northwest Territories Métis groups have expressed concern over since the creation of distinctions-based policies.

Indigenous Modern Treaty and Self-Governing Partners

Modern treaty and self-government arrangements outline a unique relationship with the Government of Canada and guide how partners are engaged. A modern treaty or self-government arrangement implies a unique relationship. Accordingly, National Indigenous Organizations do not represent Indigenous Modern Treaty Partners except where these partners indicate that they wish to be represented by such an organization (for example, in most circumstances, Inuit Modern Treaty Partners choose to be represented by Inuit Tapiriit Kanatami). Rather, Indigenous Modern Treaty Partners are represented by Indigenous governments and/or collective modern treaty organizations, depending on the context and partner preference.

Non-Status Indians

Non-Status Indians are persons who identify themselves as First Nation but who are not eligible to be registered under the Indian Act, as they do not meet the criteria established in section 6 of the Act, or choose not to register, and are thus not eligible for federal benefits flowing from registration. In 2016, the Supreme Court of Canada ruled in Daniels v. Canada that Non-Status Indians are "Indians" for the purposes of section 91(24) of the Constitution Act, 1867. Canada continues to work toward a response to the Daniels v. Canada decision that will address the unique circumstances of Non-Status First Nations and Métis.

The Congress of Aboriginal Peoples is a national advocacy organization (since 1971) that represents Non-Status First Nations as well as the interests of off-reserve Status First Nations, Métis outside the Métis Nation, and Southern Inuit of Labrador. Work is underway to better define the scope of the organization's membership, which resides across Canada, and where the vast majority live in urban areas.

Separate from non-status Indians, across the Yukon and Northwest Territories, there are First Nations without modern treaties where reserves weren't created and instead land was "set aside." As a result, these populations tend not to be eligible for the majority of the Indigenous Services Canada service-based funding.

Demographics

The Indigenous population is younger than the overall Canadian population and is growing more rapidly than any other segment of the Canadian population.

In the 2021 Census, 1.8 million people in Canada identified themselves as Indigenous, representing five percent of the Canadian population.

In 2021, 41 percent of the Registered Indian population lived on reserve. Among the other groups, the majority of Non-Status Indians and Métis (respectively 75 percent and 71 percent) lived in urban areas. While Inuit lived predominantly in northern and rural areas, the number of Inuit living in large urban centres has increased since 2016 up from 13.00 percent to 15.03 percent.

Land Claims Agreement Coalition

The Land Claims Agreements Coalition was formed in 2003 and includes many, but not all, Indigenous signatories to modern treaties. The Coalition's primary mission is to ensure that agreements are fully implemented, respected, and honoured in a manner that meets unique treaty objectives. The Coalition does not speak for treaty signatories with respect to the implementation of individual modern treaties, nor issues specific to individual treaties. Rather, the Coalition advances resolutions for changes to how Canada implements modern treaties through policy documents, and continued engagement with the Government of Canada and third parties at the bureaucratic and political levels. Current co-chairs are President Eva Clayton, Nisga'a Nation and President Aluki Kotierk, Nunavut Tunngavik Inc.

For more than 20 years, the Coalition called for Canada to create a modern treaty implementation policy, publishing a policy model in 2008. As well, the Coalition has long called for Canada to establish an independent review mechanism to provide oversight and accountability for modern treaty implementation, including a 2017 policy proposal to the Prime Minister. Throughout 2022, Crown–Indigenous Relations and Northern Affairs Canada worked with Indigenous modern treaty partners, including those part of the Land Claims Agreements Coalition, at the Common Process to develop Canada's Collaborative Modern Treaty Implementation Policy, released in February 2023. This policy commits Canada to continued co-development with Indigenous modern treaty partners on several areas of further policy work, including an independent oversight mechanism. The Coalition's advocacy for a mechanism was a key driver behind the co-development of Bill C-77, An Act respecting the Commissioner for Modern Treaty Implementation, which died on the Order Paper as a result of prorogation.

The Coalition has also been instrumental in advocating for an Indigenous Leaders Forum with the Prime Minister, similar to those in place with the National Indigenous Organizations. In 2023, following approval of Canada's Collaborative Modern Treaty Implementation Policy, the Indigenous Leaders Forum was established, meeting for the first time that same year and again in May 2024. Planning for a 2025 session of the Forum is underway.

Land Claims Agreements Coalition Membership Details by Province/Territory

• British Columbia: Tla'amin Nation, Tsawwassen First Nation, Nisga'a Nation, Maa-nulth Treaty Society (Huu-ay-aht First Nations, Ka:'yu:'k't'h'/Che:k:tles7et'h', Toquaht First Nation, Uchucklesaht First Nation, Yuułuʔiłʔatḥ First Nation)
• Yukon: Council of Yukon First Nations, Carcross/Tagish First Nation, Kwanlin Dün First Nation, Vuntut Gwitchin Government, Little Salmon/Carmacks First Nation
• Northwest Territories: Gwich'in Tribal Council, the Sahtu Secretariat Inc., Tlicho Government
• Nunavut: Nunavut Tunngavik Inc.
• Quebec: Makivvik Corporation and Naskapi Nation of Kawawachikamach

Enabling Legislation

• Department of Crown-Indigenous Relations and Northern Affairs Act S.C. 2019, c. 29

Comprehensive Land Claims Legislation

• British Columbia Treaty Commission Act S.C., 1995, c. 45
• Cree-Naskapi (of Quebec) Act S.C., 1984, c. 18
• Eeyou Marine Region Land Claims Agreement Act S.C., 2011, c. 20
• Gwich'in Land Claim Settlement Act S.C., 1992, c. 53
• James Bay and Northern Quebec Native Claims Settlement Act S.C., 1976–77, c. 32
• Labrador Inuit Land Claims Agreement Act S.C., 2005, c. 27
• Maanulth First Nations Final Agreement Act S.C., 2009, c. 18
• Nisga'a Final Agreement Act S.C., 2000, c. 7
• Nunavik Inuit Land Claims Agreement Act S.C., 2008, c. 2
• Nunavut Land Claims Agreement Act S.C., 1993, c. 29
• Sahtu Dene and Metis Land Claim Settlement Act S.C., 1994, c. 27
• Tla'amin Final Agreement Act S.C., 2014, c. 11
• Tlicho Land Claims and Self-Government Act S.C., 2005, c. 1
• Tsawwassen First Nation Final Agreement Act S.C., 2008, c. 32
• Western Arctic (Inuvialuit) Claims Settlement Act S.C., 1984, c. 24
• Yale First Nation Final Agreement Act S.C., 2013, c. 25
• Yukon First Nations Land Claims Settlement Act S.C., 1994, c. 34

Self-government legislation

• Déline Final Self-Government Agreement Act S.C., 2015, c. 24
• Kelowna Accord Implementation Act S.C., 2008, c. 23
• Sechelt Indian Band Self-Government Act S.C., 1986, c. 27
• Sioux Valley Dakota Nation Governance Act S.C., 2014, c. 1
• Westbank First Nation Self-Government Act S.C., 2004, c. 17
• Yukon First Nations Self-Government Act S.C., 1994, c. 35

Specific Claims Legislation

• Manitoba Claim Settlements Implementation Act S.C., 2000, c. 33
• Saskatchewan Treaty Land Entitlement Act S.C., 1993, c. 11
• Specific Claims Tribunal Act S.C., 2008, c. 22

Land Management, Fiscal Management and Taxation Legislation

• First Nations Fiscal Management Act S.C., 2005, c. 9
• First Nations Land Management Act S.C., 1999, c. 24

Northern Affairs Legislation

• Arctic Waters Pollution Prevention Act R.S.C., 1985, c. A-12
• Canada Lands Surveys Act R.S.C., 1985, c. L-6
• Canada Oil and Gas Operations Act R.S.C., 1985, c. O-7
• Canada Petroleum Resources Act R.S.C., 1985, c. 36
• Canadian High Arctic Research Station Act S.C., 2014, c. 39, s. 145
• Dominion Water Power Act R.S.C., 1985 c. W-4
• Mackenzie Valley Resource Management Act S.C., 1998, c. 25
• Northern Canada Power Commission (Share Issuance and Sale Authorization) Act S.C., 1988, c.12
• Northern Canada Power Commission Yukon Assets Disposal Authorization Act S.C., 1987, c. 9
• Northwest Territories Act S.C., 2014, c. 2, s. 2
• Northwest Territories Devolution Act S.C., 2014, c. 2
• Nunavut Act S.C., 1993, c. 28
• Nunavut Waters and Nunavut Surface Rights Tribunal Act S.C., 2002, c. 10
• Nunavut Planning and Project Assessment Act S.C., 2013, c. 14, s. 2
• Territorial Lands Act R.S.C., 1985, T-7
• Yukon Act S.C., 2002, c. 7
• Yukon Environmental and Socio-economic Assessment Act S.C., 2003, c. 7
• Yukon Surface Rights Board Act S.C., 1994, c. 43