Appearance before the Standing Committee on Public Accounts of Canada on OAG Report 8: Emergency Management in First Nations Communities - Indigenous Services Canada, March 20, 2023

Indigenous Services Canada (ISC)

• Minister Patty Hajdu (in person)
• Gina Wilson, Deputy Minister (in person)
• Valerie Gideon, Associate Deputy Minister (in person)
• Joanne Wilkinson, Senior Assistant Deputy Minister, Regional Operations Sector (in person)
• Kenza El Bied, Director General, Sector Operations Branch, Regional Operations (in person)
• Rory O'Connor, Director General, Regional Infrastructure Delivery Branch, Regional Operations (in person)

Related Audits

• 2021 Reports of the Auditor General of Canada to the Parliament of Canada
  Report 11—Health Resources for Indigenous Communities—Indigenous Services Canada
• 2021 Reports of the Auditor General of Canada to the Parliament of Canada
  Report 3—Access to Safe Drinking Water in First Nations Communities—Indigenous Services Canada
• 2013 Reports of the Auditor General of Canada to the Parliament of Canada
  Chapter 6—Emergency Management on Reserves

In the Media

On November 15, 2022, various news outlets ran stories outlining the findings of the OAG Report, including the finding that the Government had not provided First Nations with appropriate supports to respond to emergencies.

• Feds failing First Nations in response to wildfires, floods: AG | CTV News
• Canada's auditor general to release reports on homelessness, cybersecurity - National | Globalnews.ca
• Politics Briefing: Auditor-General releases reports on Ottawa's performance in areas including Arctic defence and homelessness - The Globe and Mail

On November 16, 2022, the Assembly of Manitoba Chiefs released a statement in response to the OAG Report, arguing that "It is deeply concerning that this 2022 Auditor General of Canada's report to the Parliament of Canada on Emergency Management in First Nations outlines the same issues we have been advocating on for years… It is a devastatingly slow response time and an irresponsible funding model. We must advocate and lobby for a new way of delivering Emergency Management Services".

• The AMC calls out Canada for Inadequate Emergency Management Measures in First Nations – Assembly of Manitoba Chiefs

A recent article (February 15, 2023) in The Narwhal on flood mapping in Manitoba also referenced the OAG Report and ISC's role in Emergency Management.

• Manitoba First Nations could see new approach to flood mapping | The Narwhal

OAG Recommendation

Indigenous Services Canada should work with First Nations to implement a risk-based approach to inform program planning and decisions on where to invest in preparedness and mitigation activities to maximize support to communities at highest risk of being affected by emergencies.

Departmental Response

The department's response. Agreed. In collaboration with First Nations, Indigenous Services Canada is committed to implement a risk-based approach to inform funding decisions. Targeted investments by the department will consider, as it has to date, the communities' willingness, readiness and interest in undertaking emergency preparedness activities by empowering First Nations to take the lead in preparing for and managing emergencies, as well as the likelihood of being impacted by an emergency event. The department is committed to support First Nations in their endeavors to identify their unique communities' level of risk and priorities to seek funding from the department to enhance emergency preparedness.

Description of Final Expected Outcome/Results

ISC is committed to using an updated risk-based approach to better inform funding decisions by integrating climate change projections and by clarifying the dimensions of risk, including causes, likelihood of occurrence and possible severity of consequences. The outcome of this recommendation will be an updated risk-based formula that will be used to best allocate funding by the beginning of fiscal year 2024-2025.

Expected Implementation Date

Full implementation expected by FY 2024-2025.

Key Interim Milestones

• Review of current program planning, funding and risk formulas used by the Emergency Management Assistance Program – by April 2023
• Analyze the current risk-based approach and determine gaps in the existing approach – by June 2023
• Further the analysis of risk factors that impact communities and engagement with internal and OGD partners to inform risk-based approach – by October 2023
• Engagement of First Nation partners to ensure participation in the formula governing emergency management funding allocation – by December 2023
• Complete analysis identifying communities at highest risk of an emergency event – by December 2023
• Development of new risk-based approach that better informs the allocation of mitigation and preparedness funding in order to maximize support for communities at the highest risk of being impacted by emergency events (i.e. consider public risk management approach) – by February 2024
• Implementation of new risk-based approach – beginning in April 2024
• Post-implementation feedback to be gathered on an ongoing basis from regional offices and First Nation communities to ensure effectiveness of updated approach and adjust as required – ongoing from April 2024

Responsible Organization/Point of Contact

Indigenous Services Canada – Emergency Management Directorate, Programs, supported by Policy

OAG Recommendation

Indigenous Services Canada should work with First Nations communities to address the backlogs of eligible but unfunded structural mitigation projects and unreviewed structural mitigation projects to effectively allocate resources to reduce the impact of emergencies on First Nations communities.

Departmental Response

The department's response. Agreed. Indigenous Services Canada is currently working with First Nations to identify the infrastructure gap, which includes structural mitigation needs. The department will support First Nations to work towards closing that gap in the long term. In addition, the department is committed to work with First Nations, as well as collaborate with central agencies, other government departments and all levels of government to leverage partnership opportunities and explore alternate financing options to meet the needs of First Nations in structural mitigation while working toward the transfer of infrastructure services.

Description of Final Expected Outcome/Results

ISC will continue to work with First Nations to identify and invest in structural mitigation projects to help communities become more resilient to potential hazards and mitigate the most urgent and safety risks.

Expected Implementation Date

Ongoing - with an immediate focus on highest priority projects.

Key Interim Milestones

• ISC will continue to work with First Nations to determine which eligible unfunded structural mitigation projects remain a priority for their community, if there are other sources of funds available to First Nations to address these priority projects, and update Integrated Capital Management System (ICMS) with project information as required – by April 2023
• Identify implementation timelines based on an understanding of the communities at highest risk and availability of funding for the remaining eligible unfunded priority projects:
  • In the short term for fiscal year 2023-24 identify what projects could be implemented using available resources – by May 2023
  • In the medium and long term, use Other Community Infrastructure (OCI) funding as available until 2027-28, and pursue new infrastructure funds, to address structural mitigation projects remaining eligible and unfunded – ongoing to March 2028
• ISC will work with partners to review unreviewed structural mitigation projects – by April 2024.

Responsible Organization/Point of Contact

Indigenous Services Canada - Regional Infrastructure Delivery Branch

OAG Recommendation

Indigenous Services Canada should, on the basis of an assessments of risks, regularly update outdated departmental and regional emergency management plans and take immediate action to develop regional emergency management plans for the 3 regions that do not have them. These plans should be used to make informed decisions and take concrete actions to assist First Nations communities with managing the risks related to emergencies.

Departmental Response

The department's response. Agreed. Indigenous Services Canada, in collaboration with First Nations, will proceed to review and update the department's national Emergency Management Plan and regional plans and will develop customized regional emergency management plans based on an assessment of risks.

Description of Final Expected Outcome/Results

Indigenous Services Canada has a national and regional Emergency Management plans that include a process for periodically reviewing and updating them. These plans will have been written up with input from First Nations and EM partners and stakeholders and final approved versions will be communicated back to them for awareness as public facing documents.

Expected Implementation Date

Review, update or create EM plans by March 2024, and ongoing implementation beyond that date with, at a minimum, a review process every three years.

Key Interim Milestones

• Pursue continued engagement of ISC Regional EM staff to review existing EM Plans and identify leads in each region – by April 2023.
• Development and agreement on a template for the National EM Plan and Regional Annexes – by June 2023.
• Engagement with First Nation partners on EM National and Regional Plans – by December 2023
• Update EM Plans and Annexes, including input from First Nations, PTs and other partners – by December 2023.
• Internal Reviews and Approvals – by January 2024.

Responsible Organization/Point of Contact

Indigenous Services Canada – Emergency Management Directorate (W/ collaboration with each Regional Office)

OAG Recommendation

Indigenous Services Canada, in collaboration with First Nations, should determine how many emergency management coordinator positions are required and allocate funding for these positions on the basis of risk and need to ensure First Nations have sustained capacity to manage emergencies.

Departmental Response

The department's response. Agreed. Indigenous Services Canada is committed to working in partnership with First Nations to build emergency management capacity. The department also agrees that funding for emergency management positions, provided through the Emergency Management Assistance Program's capacity enhancement funding stream, should be expanded. Emergency management coordinators, of which the department currently funds 196 full or part-time positions across the country, provide First Nations with valuable emergency preparedness and planning capacity. The department is diligently working to secure additional funding to provide more positions to First Nations communities, on the basis of risk.

Description of Final Expected Outcome/Results

Candidates for additional community-based EMC positions will be identified on the basis of risk and need as determined by the risk based approach being developed concurrently as part of this plan. Should additional resources for capacity enhancement be secured ISC would then fund these positions.

Expected Implementation Date

Utilizing the above risk based data, we will identify and determine where community-based EMCs are needed and allocate them in a way that aligns with risk model, pending additional resources.

Key Interim Milestones

• ISC to analyze information received in previous engagements and complete further planned engagements with current EMCs and First Nations to identify program gaps. ISC will also identify areas that lack EMC positions and their relative risk in comparison to other communities. This exercise will prioritize areas for EMC allocation  – by April 2024
• ISC will utilize risk-based data gathered through the development of a new risk based approach to inform the distribution of community-based EMCs  – by April 2024

Responsible Organization/Point of Contact

Indigenous Services Canada – Emergency Management Directorate

OAG Recommendation

Indigenous Services Canada should, in collaboration with First Nations, provincial governments and other service providers, ensure that First Nations communities receive the emergency management services they need by

• establishing emergency management service agreements and wildfire agreements in all jurisdictions that include all First Nations
• establishing mutually agreed-upon evacuation service standards in the jurisdictions that lack such standards
• increasing support for First Nations-led approaches to emergency management

Departmental Response

The department's response. Agreed. Indigenous Services Canada is committed to engage and work in partnership with First Nations and emergency management partners to establish comprehensive emergency management service agreements, inclusive of mutually agreed-upon service standards, and increase supports for First Nations-led approaches to emergency management.

Description of Final Expected Outcome/Results

New multilateral emergency management service agreements are inclusive of First Nations as full and equal partners and are negotiated and established at a pace set by First Nations. Such agreements will outline mutually agreed-upon evacuation service standards.

Wildfire agreements are renewed or established in all jurisdictions and ensure the provision of wildfire suppression services for all First Nations.

There is an increase in First Nations-led approaches to emergency management that better meet the realities of the communities that are served and contribute to the establishment of culturally appropriate evacuation service standards.

Expected Implementation Date

Provide continued and new funding, as available, to support First Nation-led engagement on their vision for emergency management and the development of new emergency management models and regional specific strategies. (April 2025)

Continue existing negotiations and launch new negotiations with First Nations and provincial and territorial governments related to establishing new emergency management service agreements with willing partners in all jurisdictions. Should a First Nation not agree to be included in new multilateral service agreements, activation procedures will continue to be followed and ISC will look for opportunities to increase support for First Nations-led approaches to emergency management. (April 2026)

Establish or update wildfire agreements in all jurisdictions. (April 2026)

Key Interim Milestones

• ISC will continue to work with and support First Nations to engage with their members on their vision for emergency management, and will provide additional funding to initiate and enable First Nation partners to develop their own First Nation-led emergency management models. This will help set the stage for multilateral discussions that bring all partners together to develop new multilateral service agreements – by April 2025
• ISC will continue to work to advance existing multilateral conversations and initiate new conversations with First Nations, Indigenous leadership, and with all provincial and territorial governments across Canada on the future of emergency management service agreements. The department will work with partners to develop region-specific strategies and plans for advancing a new agreement(s) (e.g., negotiation models and plans for engagement) – April 2025
• As part of establishing new multilateral service agreements, ISC will continue to assess internal capacity and work with partners to develop mutually agreed-upon service standards, costing models, governance structures, and implementation plans – by April 2027
• In jurisdictions where wildfire agreements already exist (BC, AB, SK, MB, ON, and QC), ISC will engage with the provincial government and First Nations to review the wildfire agreement and propose changes to be implemented the following fiscal year or at the nearest agreement renewal cycle (e.g., prior to any expiry dates) – by April 2025
• In jurisdictions where wildfire agreements do not exist -, ISC will engage with provincial governments and First Nations to establish wildfire agreements. Should a Province and/or First Nation not agree to establish a new wildfire agreement, ISC will ensure activation procedures will continue. ISC will develop regional specific plans for new agreements by April 2024  and establish new agreements  – by April 2025

Responsible Organization/Point of Contact

Indigenous Services Canada – Sector Operations Branch

OAG Recommendation

Indigenous Services Canada should develop performance indicators to allow the department to measure progress against the United Nations' Sustainable Development Goals and use these indicators to track and report publicly on progress.

Departmental Response

The department's response. Agreed. Indigenous Services Canada agrees that certain performance indicators could be improved to better measure progress against the United Nations' Sustainable Development Goals. Moving forward, the department will ask its programs that use performance indicators related to emergency management to review and consider revising how they measure progress against the Sustainable Development Goals. The review process will involve programs analyzing both the federal and departmental sustainable development strategies as well as the Sustainable Development Goal targets to understand how the programs could best measure progress and to identify which performance indicators should be utilized to do so.

The Government of Canada also reports on progress made to achieve the Sustainable Development Goals domestically and uses performance indicators from the Canadian Indicator Framework (see Taking Action Together – Canada's 2021 Annual Report on the 2030 Agenda and the Sustainable Development Goals). The Department supports this whole-of-government process by providing information on relevant departmental actions and initiatives that contribute to the Sustainable Development Goals.

Description of Final Expected Outcome/Results

In consultation internal partners, ISC will review and revise how it measures progress against the SDGs within the next annual reporting cycle. The expected outcome is that new performance indicators will be developed to measure progress made against the UN SDGs.

Expected Implementation Date

While internal work with begin immediately, the department is aligned with Statistics Canada's strategic three year review of the "Canadian Indicator Framework scheduled for April 2024.

Key Interim Milestones

• Pursue additional and new reviews of current program and performance indicators used by the Emergency Management Assistance Program (EMAP) done in collaboration with regional colleagues, to measure progress made against the United Nations Sustainable Development Goals (SDGs) – by August 2023. 
• Development of new indicators, in consultation with internal and First Nation partners, to measure progress against the SDGs – by December 2023
• Approval of new indicators – by March 2024
• Implementation of new indicators to measure the SDGs Fiscal Year 24-25 – by April 2024
• Reporting on progress made against the UN SDGs with new indicators through the Departmental Results Report – by March 2025

Responsible Organization/Point of Contact

Indigenous Services Canada – Emergency Management Directorate

Indigenous Services Canada - Chief Finances, Results and Delivery Officer, Strategic Policy

OAG Recommendation

Indigenous Services Canada should, in collaboration with First Nations, provincial governments and other service providers, ensure that First Nations communities receive the emergency management services they need by

• defining what is meant by comparable services for First Nations in relation to those available to municipalities of similar size and circumstance in each jurisdiction
• monitoring the services provided to First Nations to ensure that they are comparable to services provided to non-Indigenous communities, are culturally appropriate, and address the needs of marginalized groups
• identifying and addressing shortcomings by monitoring emergency management service agreements and conducting lessons-learned exercises

Departmental Response

The department's response. Agreed. Indigenous Services Canada is committed to work in partnership with First Nations and emergency management partners to establish comprehensive emergency management service agreements that will define comparability of services and monitoring and reporting components to identify and address shortcomings for continuous improvement.

Description of Final Expected Outcome/Results

Future multilateral comprehensive emergency management agreement negotiations will include and define agreed upon EM service standards and monitoring and reporting mechanisms that will allow gaps to be addressed as part of a continuous improvement approach.

Expected Implementation Date

A calendar with timelines and milestones will be developed in partnership with First Nations and Emergency Management Stakeholders. (December 2023)

Key Interim Milestones

Under bilateral service agreements

• Review and further the existing analysis of bilateral agreements to determine if existing reporting requirements are effectively monitoring services provided – July 2023
• Work with regional offices to assess if, and how, they define and assess municipal comparability, culturally appropriate services, and meeting the needs of marginalized populations; and if and how they conduct lessons-learned exercises – August 2023
• Engage with First Nation partners to understand how ISC can measure and understand the provision of culturally appropriate services – by December 2023
• Develop an interim report template whereby ISC, P/Ts and third parties can conduct lessons learned on how services can be improved to be more culturally appropriate, and better address the needs of marginalized people – December 2023
• Support First Nations to develop their own EM service standards (in lieu of monitoring based on municipal comparability) that are culturally appropriate and address the needs of marginalized people – Beginning in March 2023

Under multilateral service agreements

• Develop a calendar with timelines and milestones for reaching multilateral agreements, in partnership with First Nations and Emergency Management Stakeholders – March 2023
• In negotiation with First Nations and PTs, integrate First Nation-led EM service standards and lessons learned reporting into multilateral agreements –  As per dates identified in calendar above

Responsible Organization/Point of Contact

Indigenous Services Canada – Emergency Management Directorate

Issue Summary

• The Emergency Management Assistance Program's (EMAP) response funding stream provides appropriate and necessary actions to manage the short-term consequences of an imminent or occurring emergency.
• EMAP has seen a notable increase in annual costs associated with response efforts. Almost $700M has been reimbursed over the last ten years and to date, $180M was reimbursed in fiscal year 2022-2023 for response efforts.

Key messages

• The department provides timely response activities to First Nations that experience an emergency event, takes actions to prevent loss of life or injury and mitigate damages to infrastructure and environment.
• The department aims to provide response services to First Nations that are comparable to non-First Nation communities.
• The department has developed a Building Back Better Strategy Guide that supports risk reduction and community recovery. One of the key principles of this guide is to provide social, cultural and psychological support to aid community recovery.
• With increased pressures from climate change and a notable increase in the frequency and severity of emergency events, the EMAP's response pillar is essential in protecting the health and safety of on-reserve First Nations members and their infrastructure from hazards.
• The department continuously strives to meet the changing needs of First Nations communities. One recent initiative was the inclusion of Health Emergencies into EMAP Terms and Conditions (April 2022), which allows ISC to better support communities with their response to health emergencies.
• The department supports the resiliency of First Nation communities to respond to and recover from emergency events by encouraging collaborative partnerships, ensuring provincial comparability, and supporting cultural continuity. 

Background

• The response pillar protects the health and safety of on-reserve First Nations members and their infrastructure from natural or accidental hazards.
• Eligible response activities may include measures to mitigate damages and protect people and infrastructure, actions that decrease the chance of evacuations or support evacuations when unavoidable, and actions associated with addressing health emergencies.
• A health emergency may include communicable disease outbreaks, food and waste contamination, environmental health hazards and mental wellness emergencies.
• ISC works with provincial and territorial governments to ensure First Nation communities have access to comparable emergency assistance services available to other residents in their respective jurisdictions.
• In relation to evacuations, the response program aims to:
  • address the gap between the much higher likelihood of evacuation on reserve as compared to off reserve,
  • minimize the impacts on First Nations during evacuations.

Current Status

• Due to an increase in the frequency and severity of emergency events, the costs associated with response activities has increased over time.
• EMAP's Response & Recovery A-Base funding of $29.3M has consistently not been sufficient and annual off-cycle requests are required to meet response needs. 
• With Budget 2022, EMAP was able to access additional A-base funding of $85.7M per year over 3 years for Response and Recovery.
• On average, First Nation communities experience 54 flood emergencies, 32 wildland fires and 36 other emergencies.
• Over 145,000 First Nation community members living on reserve have been evacuated since 2009.

Issue Summary

• The Emergency Management Assistance Program's (EMAP) recovery funding stream supports measures taken after an emergency to repair and restore conditions to an acceptable level that existed prior to the emergency.
• EMAP has seen a notable increase in annual costs associated with recovery efforts. Over $460M has been reimbursed over the last ten years and over $68M was reimbursed in fiscal year 2022-2023 for recovery efforts.

Key Messages

• The department supports the resiliency of First Nation communities to recover from emergency events by returning evacuees to their communities as quickly and as safely as possible, by encouraging collaborative partnerships, ensuring provincial comparability, and supporting cultural continuity. 
• The department has developed a Building Back Better Strategy Guide that supports the restoration of communities and assets in a manner that reduces the vulnerability of First Nation communities to disasters and strengthens the First Nations' community resilience. In consultation with impacted First Nations, a recovery project plan may include mitigation measures to improve its planning for future emergency events.
• With increased pressures from climate change and a notable increase in the frequency and severity of emergency events, the EMAP's recovery pillar is essential to assist First Nations with the remediation work required on impacted infrastructure and houses to restore them to pre-disaster conditions as rapidly as possible.
• The department continuously strives to meet the changing needs of First Nations communities. One recent initiative was the inclusion of Health Emergencies to EMAP Terms and Conditions (May 2022). This allows the department to better support communities with recovery activities in relation to health emergencies by providing holistic and culturally appropriate strategies to address health and social concerns following an emergency.

Background

• The recovery pillar involves efforts which serves those on-reserve residents that have damages to their primary residence and community infrastructure.
• Recovery measures may commence during the response phase. 
• First Nation residents are supported in the clean-up, restoration, repair, and replacement of basic and essential property through the recovery stream of EMAP.
• Building back better is a recovery framework that centres on supporting the restoration of communities and assets in a manner that achieves two goals:
  1. Reduces the vulnerability of First Nation communities to disasters
  2. Strengthens the First Nations' community resilience
• First Nations, tribal councils, provincial, territorial and other emergency service partners will be supported to adopt and implement activities that support the EMAP build back better goals.
• Mitigation enhancements undertaken within repair or reconstruction projects of damaged infrastructure to reduce vulnerability to future emergencies are considered for EMAP eligibility.

Current Status

• Due to an increase in the frequency and severity of emergency events, the costs associated with recovery activities has increased over time.
• EMAP'S Response & Recovery A-Base funding of $29.3M has consistently been exceeded and annual off-cycle requests are required to meet response needs. 
• With Budget 2022, EMAP was successful in accessing additional A-base funding of $85.7M per year over 3 years for Response and Recovery.

Issue Summary

• The Auditor General of Canada's report, Managing Emergencies in First Nations Communities, included a number of findings on the Department's mitigation and preparedness programs, notably that ISC's actions were more reactive than preventative and that ISC had not identified capacity needs of First Nations communities and highest-risk First Nations communities.
• ISC's Emergency Management Assistance Program (EMAP) directly supports on-reserve communities through the Non-Structural Mitigation and Preparedness funding stream, FireSmart program and the Capacity Enhancement program. These program elements strengthen communities, build resilience and directly support: (1) mitigation - activities and practices designed to avoid or minimize impacts of an emergency; and (2) preparedness - planning and readiness measures to enable effective response to and recovery from an emergency.

Key Messages

• The department's Non-Structural Mitigation and Preparedness funding stream, and its FireSmart, and Capacity Enhancement programs are part of the proactive approach to emergency management and directly support First Nations across the country.
• In alignment with our mandate to transfer services, ISC's mitigation and preparedness programs support First Nation communities to identify needs and develop specific projects to address emergency events. This includes enhancement of emergency management capacity by increasing emergency coordinator positions in communities. ISC will continue to support these positions as requested by First Nations to ensure the sustainably of capacity to manage emergencies.
• ISC is committed to respecting First Nation and Tribal Council autonomy during all phases of emergency events and supports communities as they administer their own emergency services. As such, the department respects that Emergency Management plans are community owned and updated when the First Nation deems necessary.
• The Risk level of a community is considered by ISC regional offices during the proposal review process in conjunction with the First Nation Partner who has requested ISC funding. The Risk level is also taken into account by EMAP in the determination of regional allocations for the preparedness funding streams using the following criteria: cost of First Nation emergencies, population, number of community-reported Emergencies, remoteness, and number of First Nation bands.
• Funding for mitigation and preparedness proposals has increased over the last years due to increased visibility of ISC programs and an awareness of the benefits of mitigation and preparedness measures. However, we acknowledge that more needs to do be done, so we are continuing to expand our reach and support initiatives across the country in collaboration with First Nations, especially in high risk areas.

Background

• The Non-Structural Mitigation and Preparedness program ($69 million over 5 years, starting in FY 2019-2020) supports small-scale projects undertaken by First Nations communities on reserve to prepare for and mitigate emergencies caused by natural disasters. Programming includes emergency management plan development and testing, all-hazard risk assessments, flood mapping, and emergency management forums.
• The FireSmart program ($47.72 million over 5 years, starting in FY 2019-2020) enhances First Nation communities' wildfire management capacity by supporting wildland fire non-structural mitigation and preparedness initiatives. Programming includes training First Nations teams in wildfire suppression duties, wildfire risk assessments, as well as fuel management and vegetation clearing, which reduces the intensity and spread of wildfires.
• The Capacity Enhancement program ($43.6 million over 5 years, starting in FY 2019-2020; $12.9 million ongoing) supports community disaster resilience by providing funding for First Nations to hire emergency management coordinators.

Current Status

Proposals for the mitigation and preparedness programs are reviewed on an ongoing basis until funding is exhausted. The mitigation and preparedness programs stay flexible to adapt and answer needs identified by First Nation communities as they prepare for future potential emergencies.

Issue Summary

British Columbia has seen a series of emergencies over the past five years, with devastating fire seasons in 2017, 2018 and 2021 and compounding impacts of fires and flooding due to an atmospheric river in 2021. Following the 2018 Standing Committee on Indigenous and Northern Affairs report, From the Ashes (PDF), ISC negotiated a tripartite Memorandum of Understanding with the First Nations Leadership Council and the Province of British Columbia to work collectively to advance meaningful recognition and enhanced capacity of First Nations within all pillars of emergency management. As a next step to the existing tripartite Memorandum of Understanding, and in response to increasingly intense and frequent emergency events, the parties are discussing the pathway to negotiate a new emergency management agreement with the Province of British Columbia and the First Nations Leadership Council to advance inclusion of First Nations in the four pillars of Emergency Management. The First Nations Leadership Council put forward two of three resolutions at the Union of British Columbia Indian Chiefs and First Nations Summit Annual General Assemblies related to First Nations involvement in negotiations on a new tripartite agreement for Emergency Services Funding. British Columbia Chiefs directed the First Nations Leadership Council to engage with First Nations in British Columbia and provide possible negotiation models for First Nations consideration in order for First Nations to engage in negotiation with Canada and British Columbia on the new trilateral agreement. The First Nations Leadership Council will report back to the British Columbia Chiefs with a final negotiation model for consideration. It is anticipated that the British Columbia Assembly of First Nations will put forward a resolution at the March Annual General Assembly.

Key Messages

• There is a continued priority to implement the current tripartite Emergency Management Services Memorandum of Understanding with the First Nations Leadership Council and the province of British Columbia and establish a new multilateral relationship for First Nations Emergency Management in British Columbia.
• Over the past year, progress has been made in British Columbia towards creating a new pathway for Emergency Management in British Columbia, and investments have been made to support First Nation-led service delivery, which builds regional capacity.
• Canada is committed to true and lasting reconciliation with First Nations in British Columbia and will work to develop a new relationship that implements the United Nations Declaration of the Rights of Indigenous Peoples and respecting First Nation knowledge, laws, values and approaches to ensure the inclusion of First Nations within emergency management.
• A five-year extension to the Collaborative Emergency Management Agreement with the Tsilhqot'in National government was signed in May 2022, to advance a government-to-government framework for emergency and wildfire management. The agreement is the first of its kind, and the extension includes funding for implementation.
• The 2021 and 2022 wildfire season and the Atmospheric River Event resulted in complex and challenging recovery issues for First Nation communities across British Columbia. ISC recognizes the need for increased preparedness and mitigation for First Nations in British Columbia. We are working together with First Nations, Emergency Management and Climate Resilience British Columbia, the First Nations Emergency Services Society and the First Nations Health Authority with the goal to co-develop approaches for sustainable changes to improve emergency management.
• Since 2021 ISC has committed over $80 million in recovery funding to  affected First Nation communities in British Columbia. ISC is working closely with First Nations and partners to support complex recovery efforts, including loss of reserve land, replacing critical infrastructure and mitigating land erosion. The recovery funding provided through the Emergency Management Assistance Program is in addition to the funds provided through the Disaster Financial Assistance Arrangements program to the Province of BC.
• There is also significant recovery work with the Nlaka'pamux Nation Tribal Council, which includes Lytton First Nation, which is rebuilding following wildfires in line with Commitment Letters signed by the Provincial and Federal governments to work collaboratively in new ways together.
• In 2022-2023, the department provided over $11 million to the First Nations Emergency Services Society to support their work in all four pillars of emergency management: Preparedness, Mitigation, Response and Recovery in support of First Nations communities in British Columbia. Transferring emergency management service delivery to First Nations organizations is a key part of the department's work to improve emergency management programming

Background

Current Status

Issue Summary

• Alberta's efforts to support First Nation communities in preparing for, and responding to emergency events.

Key Messages

• Our program funds Alberta Emergency Management Agency to collaborate with First Nations to create and maintain disaster plans, focusing on future emergency events and how to prepare for them.
• We engage with First Nations to determine if additional resources, training and development are required in wildfire prevention and protection, Emergency Preparedness, and Disaster Mitigation and fund eligible activities based on First Nations' priorities.
• Our Government continues to engage with Indigenous leaders to support emergency preparedness, mitigation, response and recovery from emergency events, in collaboration with the province and non-governmental organizations.

Background

Current Status

• The agreement with Alberta Emergency Management Agency will expire in 2024, however, there is a possibility of an extension. Further, the wildfire agreement is set to expire in 2025. This agreement may also be extended.
• Engagement sessions with Indigenous communities in Alberta on the future of emergency management are ongoing. As of August 31, 2022, 14 First Nations, and one tribal council have participated in initial engagement discussions. The First Nations and tribal council will provide further comments on the future of emergency management in Alberta.
• Funding totaling $45,488,029 has been provided to Dene Tha' First Nation for reimbursement for expenses incurred in responding to the disaster event. ISC regional staff continues to work with the Nation to identify additional funding needs.

Issue Summary

• The Saskatchewan Region consists of 9 Tribal Councils and 70 First Nations (10 of which are Independent from a Tribal Council). The Region is susceptible to emergency events including wildfire, flood, severe weather, extended power outages and impacts to critical infrastructure resulting from natural disasters. The region is also susceptible to health and social emergencies, brought on by the lingering effects of the pandemic, intergenerational trauma, and gaps in community infrastructure.
• As of April 1, 2022, the Emergency Management Assistance Program (EMAP) expanded its scope to better respond to all-hazard emergency situations within current authorities, including public health emergencies in First Nation communities. By working in partnership, Indigenous Services Canada is advancing reconciliation through an all-hazard emergency management approach that includes four phases: mitigation/prevention, preparedness, response and recovery.
• The Emergency Management Assistance Program along with the Health Emergency Management/Communicable Disease Emergencies Program has developed  processes to meet the needs of our First Nation partners. Moving forward, ISC will work to ensure the consistent delivery of EMAP (within current authorities) and its work to advance self-determination. The department is committed to continuing to engage and work with Indigenous partners to establish shared priorities as they relate to All Hazards Emergency Management working towards a more coordinated and inclusive approach to support all hazards preparedness, response, and recovery.
• ISC encourages and supports the development of emergency response plans that includes a health component and in which community responsibilities and processes are consistent and efficient. This includes support for dedicated Emergency Management Coordinator positions at the community level to develop all-hazard emergency plans, community risk assessments and training.

Key Messages

• ISC Saskatchewan Region has adopted an all-hazard approach to emergency management. Integrated emergency management is a shared responsibility between all levels of government and First Nations partners. Within Indigenous Services Canada (ISC), Emergency Management (EM) and Health Emergency Management (HEM) are aligning themselves to work together when responding to on-reserve emergency events.
• In partnership with First Nations communities, Tribal Councils, and provincial and non-government organizations, Indigenous Services Canada's Emergency Management Assistance Program (EMAP) supports First Nation communities on reserve to access emergency assistance services comparable to services provided off reserve.
• EMAP aims to be flexible, culturally sensitive, responsive to the unique strengths and customs of First Nation communities, and adaptive to the evolving challenges resulting from emergency events.
• This all hazards approach to Emergency Management supports the direction of Indigenous partners within Saskatchewan Region during emergency events to provide access to additional emergency supports in a streamlined manner. This approach also provides Indigenous partners with up-to-date information and communications on current status in the community and creates an opportunity for partners to have direct access to updates and ISC supports.
• Indigenous Services Canada (ISC) Regional Emergency Management Program engages and has built relationships with First Nations, Tribal Councils, Indigenous organizations (Saskatchewan First Nations Emergency Management, Northern Inter-Tribal Health Authority), and federal/provincial/agency partners (i.e., Saskatchewan Public Safety Agency, Public Safety Canada, Saskatchewan Health Authority, Canadian Red Cross) to ensure a full spectrum of supports are in place to support First Nations during emergency events.
• ISC continues to engage closely with First Nations partners to establish shared priorities as they relate to Emergency Management.
• ISC Saskatchewan Region has developed a Critical Response Team (CRT) approach, working collaboratively with partners, to ensure regional coordination, program support and expertise during event response to support First Nations. This streamlined methodology aligns with the department's service excellence approach and provides partners a one window approach to emergency response.
• A recent emergency event that occurred in the Region that impacted a First Nation (James Smith Cree Nation) required extensive coordination and communication with the community's emergency management coordinator and leadership, as well as multiple Tribal Council emergency management coordinators and mental wellness providers to ensure community requests for supports were coordinated in a timely and effective manner.
• Throughout the event, ISC senior leadership, staff and partners remain fully engaged with First Nation leadership and representatives for situational awareness updates, requests for support, coordination of resources, communications with internal and external partners and ensuring essential services and supplies requested by the community were in place to support response.
• The Regional coordinated response supports First Nation natural disaster and health emergencies, implementing lessons learned from First Nation responses and investments into capacity development to manage emergency events and are supported through ISC's All Hazards Emergency Management Assistance Program. 

Background

Current Status

• Regional Emergency Management continues to engage and work with First Nations, Tribal Councils, and federal/provincial partners to support First Nations capacity development on reserve through all pillars of emergency management. This includes identifying areas for additional resources and supports for planning, training, and human capacity to move forward in managing and decision-making.
• ISC Saskatchewan Region continues to support First Nations needs related to emergency management preparedness, response, and recovery as they are brought forward. At the request of the First Nation, the Regional Emergency Management Team coordinates and leverages program supports inclusive of health emergencies, impacts to infrastructure, and environmental hazards.
• Funding has been distributed to five Tribal Councils (Meadow Lake, Prince Albert, Saskatoon, Yorkton, and File Hills Qu'Appelle) to fund a temporary resource in each Tribal Council who would engage with their member communities to conceptualize their vision for emergency management and develop all-hazards concept models. This will help communities be in a position to begin engaging with ISC and the province on the contents of a multilateral service agreement.

Issue Management

• Indigenous Service Canada's (ISC) Manitoba Region has a service agreement with the Canadian Red Cross to provide response services to First Nation communities during emergency events at the request of the Nation. This agreement expires on March 31, 2023. It is expected that this agreement will be extended for the next fiscal year.
• Multilateral relationships are being explored with Indigenous Organizations in Manitoba, to assist in supporting First Nations affected by emergency events.
• ISC-Manitoba Region maintains an annual agreement with the Province of Manitoba's Wildfire Services for wildfire suppression on reserve.

Key Message

• The Government of Canada continues to engage with Indigenous leaders to support emergency preparedness, mitigation, response and recovery from floods, in collaboration with provinces and non-governmental organizations.
• The department is committed to supporting First Nation communities requests for long-term plans and strategies to prepare for and mitigate against the increasing number of emergency events, which in turn reduces response activities.
• ISC's capacity enhancement funding provides support to all First Nations and Tribal Councils in Manitoba to enhance capacity by employing emergency coordinators.
• Record breaking spring and summer weather systems in 2022 brought significant rain to southern Manitoba, causing overland flooding, loss of road access and evacuations. ISC worked directly with First Nations, the Province of Manitoba, and the Canadian Red Cross (CRC) to provide support to evacuated community members.
• Peguis First Nation evacuees are currently transitioning to long-term evacuee supports through the Canadian Red Cross. 688 members remain evacuated.
• ISC has provided payments in the amount of $18.8M to Peguis in fiscal year 22-23 for response and recovery activities. This includes a payment in the amount of 2.5 million for the Nation's Season 2023 Flood Preparation Plan.  
• ISC, Peguis First Nation and the Province of Manitoba will establish a working group to actively and comprehensively plan for long-term solutions.

Background

ISC established a 5-year service agreement with the CRC effective April 1, 2017, which provides preparedness and response services to First Nations in Manitoba during emergency situations as requested by the Nation. The agreement was renewed for an additional year, expiring March 31, 2023.

In emergencies such as wildfire and flood, First Nations in Manitoba can request the supports of the CRC, through ISC, to provide evacuee services. This may include emergency lodging and meals, reception, activities, personal services and family reunification services, financial assistance to address incremental costs of being out of their homes, the process of returning to their community once an emergency is over and it is safe to return.

Due to record levels of precipitation beginning in the spring and through the summer of 2022, widespread unprecedented overland flooding occurred throughout the central and southern portions of Manitoba. 

ISC supported the following related to the 2022 spring and summer flooding:

• 27 First Nation communities requesting supports for flood mitigation and response activities;
• 8 First Nation communities declaring a state of local emergency;
• 7 First Nation communities experiencing partial evacuations due to road closures and flooding of houses and community infrastructure; and,
• 1 First Nation community experiencing a full evacuation.

Current Status

In 2022, two major events affected First Nations in Manitoba: spring and summer weather conditions (widespread flooding, extreme precipitation, over saturation of soils) and a 53,000ha wildfire in northwest Manitoba.

Due to flooding, the Peguis First Nation experienced a full evacuation, supported by the Canadian Red Cross beginning May 1, 2022.

Due to the wildfire and subsequent long-term hydro outage, Mathias Colomb Cree Nation experienced a full evacuation of 2,173 individuals, supported by ISC and the Canadian Red Cross, for a total of 52 days.

In 2022-23 (April 1 – October 31), the Regional Emergency Management team:

• Received 95 initial emergency calls to the ISC-RO 24/7 Duty Officer from 28 First Nations and 9 stakeholders.
• Responded to 18 severe weather events and three wildfires impacting 30 First Nations and 2 Nations experiencing issues with community safety.
• Supported the full evacuation of one Nation due to wildfire (2173 evacuees).
• Supported partial evacuation of 12 First Nations (2384 evacuees) due to flooding and severe weather events.
• Supporting 15 Nations through post event recovery efforts.

Issue Summary

Indigenous Services Canada (ISC) works closely with communities to support their response efforts, administering response and mitigation funding through the Emergency Management Assistance Program. First Nations communities along the James Bay and Hudson Bay coasts are disproportionately affected by flooding. During the 2022 flooding season, ISC introduced the Joint Command Approach to accelerate emergency management risk assessments and decision-making processes with key partners.

Currently, ISC and the Province of Ontario have a bilateral Emergency Management Service Agreement to ensure that First Nations on reserve receive emergency management services when needed. The department recognizes the opportunity to work with First Nations as full and equal partners in emergency management service agreements and response activities. To address this, the department is undertaking initiatives to develop and implement multilateral service agreements with Indigenous-led organizations across the province.

Key Messages

• Our Government continues to engage with Indigenous leaders as full and equal partners to support emergency preparedness, mitigation, and response and recovery efforts, in collaboration with provincial and non-governmental organizations.
• The Joint Command approach to emergency management was implemented during the 2022 spring flood season to ensure the full and equal participation of First Nations and Indigenous partners, streamline the processes for risk assessments, evacuation decision-making, and funding approvals so that partners could implement rapid responses.
• Given that there is no one-size-fits-all model, the department is advancing multilateral service agreements with Ontario and Indigenous-led organizations, while also prioritizing capacity building, so that First Nations are best equipped to manage emergencies in their communities.

Background

• Under the Emergency Management Assistance Program, ISC provides funding to First Nations, Tribal Councils, Indigenous Representative Organizations and other Indigenous-led organizations to mitigate and recover from emergencies. The Canadian Armed forces accepted the request for assistance to evacuate communities impacted by 2022 spring flooding along James Bay and Hudson Bay, including Kashechewan, Fort Albany and Attawapiskat. All persons evacuated have been repatriated back to their respective communities.
• The 2022 wildfire season saw significantly fewer fires (221) than the 10-year average of 825, and last year's peak of 1,198 total wildfires. Nevertheless, the department's commitment to build First Nation emergency response capacity and to build back better will help ensure Indigenous communities are prepared for future events.
• ISC funds a network of Emergency Management Coordinators, which include Indigenous subject matter experts who are able to deploy to First Nations in crisis. Funding support for coordinator positions are allocated to Indigenous organizations where most of the emergencies historically happen, aiding in rapid response efforts.
• The current 10-year bilateral agreement between ISC and Ontario expires in 2028, however work is underway to engage First Nations on the development of  multilateral agreements that recognize First Nations as full and equal partners in decision-making processes and implementation mechanisms, supporting the right to self-determination, and building a foundation for the department's service transfer mandate.
• Indigenous Services Canada funded a cost-effective community-driven initiative for evacuations during the COVID-19 pandemic. Kashechewan First Nation is in northern Ontario on the western coast of James Bay. The on-reserve population in 2019 was 1,825 band members. Kashechewan is a fly-in community without an all-season road. The closest urban community is Timmins, about 460 kilometres away.  Every year since 2012, the community has been evacuated because of flooding or as a precaution because of the risk of spring flooding. Typically, the community was evacuated to host communities in northern Ontario. In both 2020 and 2021, community members were evacuated because of the risk of flooding. Rather than staying in a host community, the First Nation requested and received funding from Indigenous Services Canada to remain on their land and move to higher ground on their traditional hunting camps. Each of these evacuations lasted about 6 weeks. While they were living on their land, members participated in safe and culturally relevant activities, such as traditional community food harvesting and gathering, intergenerational knowledge sharing, and Indigenous language education. The cost of the 2 evacuations in 2020 and 2021 was about $140 per person per day compared with about $235 per person per day to evacuate to host communities in 2018 and 2019.

Current Status

• ISC supports First Nations affected by emergencies with expedited response and recovery invoice reconciliation processes and funding. The department is also advancing funding for projects that prepare for and mitigate risks ahead of the 2023 flood season.
• ISC is continuing to make investments in Indigenous-led and culturally appropriate training at the community level such as: ISN Maskwa all female evacuation support specialty security training in Thunder Bay in March 2022; mental health first aid; evacuation support specialist protection training in 2021; basic security guard training including first aid and CPR; critical incident stress debriefing; and search and rescue.
• ISC is working with partners to develop a regional strategy for multilateral emergency management service agreements. A proposed approach has been circulated to guide discussions with First Nation partners, including Chiefs of Ontario and other Indigenous-led organizations, as well as the province of Ontario.
• The department has proposed the following phased approach:
  • Bolster First Nation Emergency Management leadership, which includes formalizing the Joint Command approach;
  • Identify First Nation partners;
  • Engage on the new Emergency Management paradigm;
  • Develop a Multilateral Memorandum of Understanding
  • Co-develop the new paradigm with First Nation partners;
  • Develop Authority to Sign new agreements; and,
  • Implement Multilateral Service Agreements
• Concurrently, ISC is working with the province and First Nation partners on a "lessons learned" process to evaluate and improve existing emergency management mitigation and response processes. Looking forward, to respond to concerns from the province of Ontario, ISC will work with partners to clarify roles and responsibilities associated with the communication and dissemination of timely and critical information, in addition to review options for safe and culturally appropriate evacuation facilities.
• ISC has engaged regularly with the province on formalizing the Joint Command Governance Model and on moving forward with Indigenous partners to develop a multilateral service agreement.
• In December, 2022, Deputy Minister Wilson and Public Safety's Deputy Minister Tupper, met with Ontario's Deputy Minister Derible (Emergency Management) and Deputy Minister Batisse (Indigenous Affairs) where consensus was reached on the need for a new multilateral agreement in the province. Deputies also agreed to meet again in the spring to ensure there is mutual agreement on a path forward with First Nation partners.
• ISC continues to meet with Missanabie Cree, Mushkegowuk Council, and the Independent First Nations Alliance to secure their participation in moving forward with engaging on a new multilateral approach to emergency management.
• ISC has also reached out to other First Nations, Tribal Councils, and Indigenous Regional Organizations to invite them to meet with ISC and discuss how they see themselves being involved in multilateral discussions moving forward. 
• ISC is hoping to have a first multilateral meeting with all engaged partners in April to discuss a governance structure and forward approach.
• A Wildfire Management Agreement was signed with the province in 1991. The agreement has no set termination date and continues to reimburse the province for costs incurred for wildfire suppression services on reserve.
• Significant events in Ontario First Nations communities include:
  • Wabaseemoong Independent Nations: Evacuated to Kenora and Winnipeg due to Water treatment plant failure on December 21st. Community is currently planning repatriation. Community infrastructure suffered burst pipes while evacuated. Repairs are ongoing.
  • Oneida Nation the Thames: Community aquifer reached critically low levels in December 17th. Water was shipped to the community in short-term. By January 25th Aquifer had stabilized and situation resolved.
  • Attawapiskat: Impacted by flooding in May 2022, 111 people evacuated for ~5 days to Mississauga.

Issue Summary

• Discussions with the Government of Quebec (between 2010 and 2019) resulted in an agreement to reimburse the Province of Quebec for response and recovery expenses only (it does not include the other pillars, i.e. prevention-mitigation and emergency preparedness).
• The agreement with Quebec remains fragile as; First Nations and Indigenous organizations were not consulted, the agreement excludes communities that are not considered on reserve, and it does not consider emergency management in a holistic manner (public health and social crises are not considered).
• The province has asked Indigenous Services Canada (ISC) to commit to updating the list of communities eligible for the EMAP. The interpretation of the eligibility of communities for EMAP will need to be clarified within ISC.

Key Messages

• Discussions with representatives of the Government of Quebec will be necessary in order to encourage the recognition of First Nations as partners in emergency management in Quebec, notably within multilateral agreements.
• Maintaining and growing the capacity of First Nations is a priority of ISC and the Quebec region and, as a result, initiatives are currently in place to support capacity building of Indigenous communities and organizations.
• The region is exploring, with Indigenous partners, possible actions to advance the assumption of emergency management services by them.

Background

Key Partners

• The Grand Council of the Waban-Aki Nation (GCNWA) provides support to First Nation communities in Quebec before, during and after disasters, in coordination with tribal councils and various levels of government. It works within the four pillars of emergency management: prevention, preparedness, response and recovery in support of local communities. The GCNWA do not have the mandate to speak on behalf of all Quebec First Nations for emergency management, but have taken a keen interest in developing their capacity to support First Nations in the province. As a result, ISC funds 5 Emergency Management Coordinator positions within GCNWA.  
• The Assembly of First Nations of Quebec-Labrador (AFNQL) and its commissions hold monthly discussions with the ISC Regional Office. The First Nations of Quebec and Labrador Health and Social Services Commission (FNQLHSSC) have shown an interest in becoming involved in supporting communities in emergency management. Discussions with the AFNQL will have to take place on the tripartite approach to emergency management (First Nations - federal - provincial).

Current Status

Issue Summary

• Emergency Management, regional overview and key events for First Nations in Nova Scotia, New Brunswick, Prince Edward Island and Newfoundland and Labrador.

Key Messages

• The Atlantic region consists of 33 First Nations with reserve lands, and approximately 50 inhabited communities throughout four Atlantic provinces. The region is susceptible to emergency events that include hurricanes, overland flooding, severe weather events such as ice storms and failures of critical infrastructure.
• ISC Atlantic Emergency Management Assistance program staff engage regularly with regional emergency management partners including the provincial emergency measures organizations and Public Safety Canada. While dialogue is good, there is room for growth including formal multilateral agreements to support Indigenous partners being an equal player and decision maker at the table.
• Following Hurricane Fiona, Indigenous Services Canada (ISC) received reports of flooding, erosion, downed trees, damages to infrastructure as a result of winds and power outages. Currently, the department is supporting recovery efforts in affected provinces.

Background

Current Status

• While significant accomplishments have been made in the Atlantic region on emergency preparedness, we recognize there is more work to be done – this includes additional planning, training and additional human capacity to focus on preparing for and responding to emergency events.
• The emergency management capacity positions established in the Atlantic region in fiscal year 2020-2021 are key to emergency preparedness and continue to provide valuable support and resources as they are active full-time positions. These dedicated positions coordinate preparedness work and support their member communities during emergency response and through the recovery process. The positions were also fully involved with the COVID-19 pandemic response, coordinating supports during outbreaks that impacted First Nation communities.
• ISC's Atlantic region has been able to support eligible preparedness and nonstructural mitigation projects as they are received. With no deadline for proposals, ISC Atlantic can respond to First Nations needs as they are brought forward, allowing flexible planning for First Nations. ISC Atlantic Emergency Management staff have also collaborated with First Nation and Inuit Health Branch programs to support First Nations emergency management projects and capacity positions.
• At this point in time, there are no formal multilateral emergency management service agreements in place between ISC, the four Atlantic provinces and First Nations. We recognize this is a gap and are working diligently with partners on a path forward. With the relationships established between the parties, we hope to build on that and formalize multilateral services agreements.
• The bilateral service agreement between ISC and Prince Edward Island has been in place for over five years; it is renewed annually and there is a good relationship between the province, ISC and First Nations. Through this relationship, work is underway and negotiations continue on a multilateral service agreement to have First Nations at the table as full and equal partners.
• ISC have had initial discussions with one Tribal Council in New Brunswick on a multilateral service agreement and work is underway to engage the other two Tribal Councils. Through initial discussions with New Brunswick Emergency Measures Organization, they are supportive of a multilateral agreement and currently provides emergency management support to First Nations.
• Discussions of a multilateral agreement in Nova Scotia date back to 2013-14 and since COVID-19, discussions have stalled as the focus turned to COVID-19 response. The department is looking to reengage these discussions, particularly since Capacity positions have been established in the two Tribal Councils in Nova Scotia that represent all First Nations in the province.
• In Newfoundland and Labrador, no discussions on a multilateral service agreement have occurred to date. The provincial stance on the topic is emergency management for on-reserve is a Federal responsibility. Despite this, during the wildland fire in Newfoundland during the summer of 2022, First Nations and ISC work collaboratively with the province as well as neighbouring communities during the response.

Kashechewan First Nation

• In 2017 the Government of Canada and Kashechewan First Nation signed an agreement to explore options for relocating the community to higher ground. Beginning in 2020, Kashechewan First Nation began an On-The-Land Initiative where community members an estimated 1,400 residents from Kashechewan and 500 from neighbouring Fort Albany self-isolate in their traditional hunting camps for approximately one month.
• Indigenous Services Canada (ISC) approved funding of up to $4.2 million through the Emergency Management Assistance Program to support the purchase of necessary provisions, supplies and equipment for the On-the-Land initiative, as well as for the transportation of residents to and from the hunting camps.

Peguis First Nation

• Peguis First Nation was relocated in 1907 to its current location at the flood-prone Fisher River delta. The community experiences flooding every 3-4 years on average.
• Peguis First Nation experiences recurring flooding and has had long term evacuees since 2011. Despite recurring flooding, the community has no permanent flood mitigation measures and relies on temporary measures such as sandbagging when flooding occurs.
• To support flood mitigation efforts during the 2022 floods, the Government of Canada provided Peguis First Nation with $2.5 million in funding.

Flood Insurance:

• In light of the growing threat to the safety of Canadian communities due to climate change and continued urbanization in high-risk flood areas, the Government of Canada is moving forward with a number of measures to help Canadians reduce their financial and physical vulnerability to flooding.
• Public Safety Canada has been mandated to review and advance a flood risk plan for Canada; one of the plan's components includes establishing a national task force to review and develop options for a national affordable flood insurance program and measures for potential relocation. As part of that effort, Public Safety has recently released Adapting to Rising Flood Risk: An Analysis of Insurance Solutions for Canada which outlines options for bringing affordable flood insurance to Canadians.
• To ensure the considerations of First Nations on reserve are included in this work, ISC and the Assembly of First Nations (AFN) co-lead a Steering Committee and a Technical Working Group on First Nations Home Flood Insurance Needs to gain a baseline understanding of flood insurance on-reserve and to capture on reserve needs through First Nation-led engagement.
• The Steering Committee on First Nations Home Flood Insurance Needs will provide an opportunity for First Nation communities to contribute their knowledge and lived experiences in preparing for and responding to flooding.
• Flood insurance can be purchased through insurance providers. Many First Nations communities face such an extreme risk of flooding that insurance firms are unwilling in offer flood insurance on those reserves. Uninsured properties on-reserve that suffer flooding damage are covered under ISC's Emergency Management Assistance Program's Response and Recovery funding.
• Residential insurance accessibility is limited on reserve as many insurance firms are hesitant to provide insurance on reserve. Insurance firm hesitation stems from a variety of factors such as lack of risk data/analysis, unclear liability, lack of accredited services on reserve (ex: firefighting), or high costs to insure.
• The cost of flood insurance is often unaffordable in First Nation communities that face a high risk of floods. This reality leaves ISC's Emergency Management Assistance Program as the only remaining option for financial compensation for flood damage on-reserve.

Flood Mapping:

• ISC's Emergency Management Assistance Program provides funding through its Non-Structural Mitigation and Preparedness funding stream to support flood mapping activities on reserve. Some communities have conducted their own flood mapping project but the results of which are not recorded by ISC.
• Off reserve, flood mapping is largely conducted by provincial governments and its public accessibility varies by province. There is currently no publicly available national flood risk map.
• Public Safety Canada is exploring options of more comprehensive flood mapping to provide a better understanding of flood risk across Canada.

High Risk Areas:

• First Nation communities, in aggregate, face some of the highest risk of flooding in the country.
• Due to a lack of available flood mapping data, the extent of flood risk faced by First Nation communities is not clear.
• ISC is working to support Public Safety Canada efforts to create more comprehensive and accurate flood mapping tools to ensure communities, both Indigenous and non-Indigenous, are aware of the risks they face and are able to mitigate those risks.

Issue Summary

• Currently, Indigenous Services Canada (ISC) has eight bilateral agreements with provinces and territories (P/Ts) to deliver emergency management services to on-reserve First Nations.
• As First Nations were not included as signatories in these agreements, ISC is now moving towards establishing multilateral emergency management service agreements to include First Nations as full and equal partners.
• New agreements will ensure First Nations are at the forefront of decision making when it comes to strengthening capacity and resiliency to better equip communities for the effects of climate change and increases in emergencies.

Key Messages

• As First Nations continue to express a desire to be considered as partners in the delivery of emergency management services, the department is actively listening and working to develop new multilateral agreements. The department is also working to strengthen capacity and engaging First Nations on approaches that are aligned with their vision.
• The department is taking steps to develop multilateral service agreements. This includes engaging and initiating conversations with all partners to identify the right tools. New regional strategies are being used to inform a cohesive national approach for the future of emergency management service delivery for all on-reserve First Nations.
• New initiatives, such as the signing of a Trilateral Memorandum of Understanding in British Columbia and an innovative Joint Command Governance Model in Ontario, demonstrate the collaborative direction that we are moving towards which supports our service transfer mandate.
• Multilateral agreements will help advance the transfer and control over the development of emergency management services to First Nations and support their right to self-determination.

Background

• Eight bilateral agreements have been established across Canada. As some of these agreements are set to expire within the next few years, ISC is using this as an opportunity to transition its approach to move forward with multilateral agreements that include the department, provinces and territories or third parties, and First Nation communities as full and equal partners.
• To ensure the full engagement of First Nation partners, ISC is working to develop regional strategies that take into account each regional context.
• British Columbia has made notable progress towards developing a multilateral agreement by signing a Tripartite Memorandum of Understanding (MOU) with the First Nations Leadership Council (FNLC) and the Province of British Columbia in 2017. This MOU established a process to advance meaningful recognition and enhance capacity in emergency management. This preliminary agreement outlines the ongoing commitment to incorporate Indigenous knowledge, and  Indigenous decision-making, and ensures First Nations have the capacity to prevent and respond to emergencies.
  • The Union of British Columbia Indian Chiefs and the First Nations Summit have put forward resolutions requesting approval to develop negotiation models for First Nations' consideration in order for them to engage in negotiation with Canada and British Columbia on the new multilateral agreement.
  • The FNLC has agreed to develop a framework agreement to support negotiations, modelled after other frameworks for Health, Education and modern treaties. Work is anticipated to begin in Fall 2022.
• Ontario has also made progress towards the development of a multilateral agreement. In 2022, a Joint Command Governance Model was developed between ISC, Indigenous partners and the province in advance of the wildfire and flood season to streamline the process from when a First Nation makes a request for help to the point of providing a coordinated emergency response.
  • As part of this Joint Command, ISC will help fund two First Nation-led proposals, which in turn help strengthen capacity and create emergency management models for First Nations to build from when establishing multilateral service agreements.
• In Manitoba, multiple First Nation-led partners have expressed an interest in leading emergency management for First Nations in their region. Interested partners include, but are not limited to, the Assembly of Manitoba Chiefs, the Southern Chiefs Organization, Manitoba Keewatinowi Okimakanak Inc., and individual First Nations.

Current Status

• Over  the past 3 years, from 2019-20 to 2021-22, $1.37 million was made available to support First Nations-led engagement on emergency management services agreements. This provided an opportunity for First Nation communities to share their views on emergency management and articulate their vision for the future, however many of these engagements and discussions were put on hold due to the COVID-19 pandemic.
• Now that the country is learning and adapting from the COVID-19 pandemic, a renewed approach is being sought between ISC and its partners to discuss multilateral service agreements particularly with one that integrates health emergency preparedness and preparing/adapting to climate change impacts.

Issue Summary

• Since the inception of the Emergency Management Assistance Program (EMAP) in 2014, which created a single-window approach for First Nations on-reserve to access emergency management supports, the emergency management landscape has evolved and become more complex.
• Climate change has increased the frequency and severity of emergencies, and First Nation partners are increasingly looking for autonomy in program development and delivery, and to be considered as partners in governance and decision making tables.
• Additionally, the Office of the Auditor General (OAG) indicated that emergency management service agreements and wildfire agreements should include all First Nations.
• As a result, an emergency management transformation is needed to better meet the needs of First Nations and provide communities and organizations with the necessary supports to exercise self-determination and self-governance. EMAP is looking at meeting these challenges through creating more financial flexibility, specifically when dealing with mitigation and preparedness measures, moving forward.

Key Messages

• ISC is committed to developing a nation-to-nation relationship with First Nation partners, who are increasingly expressing a desire to be more involved in the development and delivery of emergency management services.
• The OAG has indicated that First Nations should be included in the establishment and implementation of service agreements.
• The department is actively working to develop new multilateral emergency management service agreements in each region with First Nation partners to create full and equal partnerships.
• Engaging Indigenous leaders, and implementing adaptation measures and new or innovative approaches is key to reducing impacts and increasing resiliency in communities. The Government will continue to work with communities to use their local knowledge.
• The Government is committed to enhancing First Nations community capacity and preparing for emergency events, especially in the context of climate change. It plans to do this through increasing financial flexibility, increasing access to funding for First Nation communities, and the freedom to use the funds in a manner best suited to their community.
• Following recommendations in the OAG Report, the department has put forward plans to update EMAP to allow for more proactive funding measures and increasing the program's ability to adapt to needs identified by First Nations. The department aims to make the program more flexible in order to better align with a true all-hazards approach to emergency management.

Background

• Since April 1, 2014, the Department has been providing emergency management services under four pillars – mitigation, preparedness, response and recovery – to on-reserve First Nation communities through the EMAP. Services were traditionally governed by emergency management service agreements between the Government of Canada and the provinces and territories.
• Budget 2019 provided $201 million over five years, starting in 2019-20, with $49.4 million per year ongoing to support increased resiliency and emergency management on-reserve, including health emergencies. This led to the establishment of key program streams, such as the implementation of Emergency Management Coordinators in on-reserve First Nation communities and the establishment of the Firesmart program.
• In April 2019, ISC signed a Tripartite Memorandum of Understanding on Emergency Management Services with the First Nation Leadership Council (FNLC) and the Province of British Columbia. This established a foundation with First Nation partners to create a relationship based on full and equal partnership and begins a shift from bilateral service agreements between ISC and the provinces and territories to establishing agreements with the full inclusion of First Nation partners.
• Further program evolution occurred in 2021 where EMAP's Treasury Board Submission served as a vehicle to permanently include health emergencies under the program to support a more holistic approach to emergency management response and recovery. Building on this success, ISC is now exploring forward looking program changes that could broaden the scope of EMAP and lead to improved service delivery in on-reserve First Nation communities.

Current Status

• ISC is developing a strategic path forward to develop a consistent approach to developing multilateral service agreements, focusing on financial flexibility, with First Nation partners and provincial and territorial counterparts. These plans are being informed through engagement with Regional Office colleagues and First Nation partners.
• ISC will build on 2019 investments and continue to target funding opportunities to expand EMAP and the department's ability to provide more timely, and higher-quality services to First Nation on-reserve communities.
• ISC will continue to engage First Nation partners and other partners on how to expand and enhance the EMAP program to better meet the needs of First Nation communities, and create an environment of First Nation-led service delivery.

Emergency Management Assistance Program

EMAP helps communities on reserve access emergency assistance services, including health emergencies. The program also provides funding to provinces, territories and non-government organizations to support on-reserve emergency management.

ISC partner programs within emergency management:

• First Nations & Inuit Health Branch: Health EM provides funding support for health emergency preparedness, capacity building and knowledge mobilization.
• Indigenous Community Support Fund: The "single window" funding approach that provided more than $1.8B to Indigenous leadership and organizations to prevent, prepare and respond to COVID-19.
• First Nation Infrastructure Fund (FNIF): Strategic investments in critical and permanent infrastructure support on-reserve communities by modifying hazards and making the design and construction of assets more resilient.
• Structural Fire Protection: core capital funding to First Nations on an annual basis that can be used for fire protection services as well as fire insurance.

Co-Chairs of Cabinet Committee on Safety, Security and Emergencies

"You will exercise leadership and coordinate efforts to strengthen emergency management in Canada, ensuring a strategic, integrated and proactive approach across all hazards, including public health emergencies."

"Work with First Nations and provincial and territorial government partners to strengthen the governance and service delivery for First Nations emergency preparedness, management and recovery."

Total over 5 years: $169 million (ISC) + $48 million (Fire Smart/Public Safety)

• $1.37 million over 3 years: Collaboration & Governance
  • to engage FNs across CA in development of trilateral emergency management service agreements
• $43.63 million: Capacity Building
  • For funding dedicated to EM notional positions in FNs (planning, training, response).
• $69 million over 5 years: Prevention, Mitigation and Preparedness
  • Over 5 years for projects for preparedness & non-structural mitigation (e.g. training, planning, & exercises, etc.)
• $48 million over 4 years: Infrastructure/structural mitigation
  • In new costs over 5 years to support structural mitigation projects.
• $48 million over 5 years: FireSmart
  • for work over 5 years to prevent and prepare against wildland fires (e.g. fire mapping, training, fuel reduction, etc.)
• $7.2 million: 11 FTEs
  • For salaries and O&M for surge capacity & to increase ISC's capacity to deliver EM services related to natural disaster emergencies

Text alternative for: FN EM notional positions

Total nominal positions funded of Emergency Management coordinators in each province/territory:

• Yukon: 1
• Northwest Territories: 1
• British Columbia: 13
• Alberta: 10
• Saskatchewan: 15
• Manitoba: 22
• Ontario: 21
• Quebec: 6
• Atlantic provinces: 7

First Nations Emergency Management

• BC has three Indigenous Representative Organizations (BC Assembly of First Nations, First Nations Summit, and the Union of BC Indian Chiefs) who come together to work on common interests as the First Nations Leadership Council (FNLC).
• There are 203 First Nations in BC, the majority of whom have never signed treaties with the Crown. As the rights and title holders, these First Nations must be consulted individually by Canada. They are not represented by the political organizations, tribal councils or the FNLC.
• In BC, the EM service agreement is with Emergency Management British Columbia (EMBC).
• Upon signing in 2017, BC First Nations objected under the principle of "nothing about us without us". As a result, following resolutions to negotiate from the three political assemblies, ISC, EMBC and the FNLC negotiated a Tripartite MOU on EM Services that was signed on April 27, 2019. The intent of the MOU is to ensure that First Nations are included as full partners in both the governance and operations of emergency management on-reserve. As a next step, Canada and BC have declared their desire to negotiate a new service agreement that includes First Nations.
• Through EMBC, ISC reimburses eligible response and recovery costs. In addition, EMAP supports First Nation partners in their efforts to increase community-based capacity and disaster resilience through mitigation and preparedness activities.
• ISC also has a service agreement with BC Wildfire Service to provide wildfire suppression support on reserve.

First Nations' Emergency Services Society (FNESS)

• FNESS evolved from the Society of Native Indian Fire Fighters of BC (est. 1986). Initial objectives were to help reduce the number of fire-related deaths on reserve, but changed emphasis to incorporate a greater spectrum of EM services. In 1994, the Society of Native Indian Fire Fighters of BC changed its name to FNESS to reflect its growing diversity of services provided.
• In BC, First Nations increasingly link EM to broader issues, including climate change and land use stewardship. First Nations and their political organizations are seeking to advance self determination and inherent jurisdiction within the context of EM.
• FNESS works closely with communities, EMBC, ISC and stakeholders, to support the implementation of EM activities with First Nations communities. FNESS supports First Nations in developing and sustaining safer and healthier communities and delivers EM focused programs and services.
• FNESS delivers approximately $2,364,678.67 per year under the Fire Smart program on behalf of ISC. In 2022-2023, ISC provided over $11M to FNESS to support their work in all four pillars of emergency management. This includes: $2.7M for community fire services; $2.6M for forest fuel management; and $5.8M to support emergency planning, preparedness, response and recovery.
• The Province also recently provided a grant of $10M to support First Nation emergency response.
• FNLC has expressed their support for the FNESS and the need for increased capacity and funding. ISC is currently engaged with the FNLIC and the Province on implementing the current EM Services MOU and establishing a new trilateral relationship.
• FNESS is currently engaging with First Nations to determine the best governance structure to ensure that it represents all BC First Nations.

After action reports and priority actions

Joint Command Governance Model

When there is an emergency event in a first nation community, a request for help goes to a no wrong door approach. The request can go to IFNA, emergency services, emergency management coordinators, (tribal councils), Indigenous Services Canada duty officer, provincial emergency operation center, Missanabie Cree First Nation/ISN Maskwa duty officer, or the "stronger together" team. These groups come together in a joint command call to do a risk assessment, decision making and approval process. This call includes various levels such as federal, Ontario/provincial and Indigenous partners. As required, and at the request of the chief, other partners can be notified, including Indigenous partners, other First Nations leadership, host communities, health and social service providers, NGOs, provinces, and other federal departments. All partners that are notified then work together to produce a response to the emergency event.

Pathway To A New Multilateral Relationship In Ontario for Emergency Management

Joint Command Governance Model

When there is an emergency event in a first nation community, a request for help goes to a no wrong door approach. The request can go to IFNA, emergency services, emergency management coordinators, (tribal councils), Indigenous Services Canada duty officer, provincial emergency operation center, Missanabie Cree First Nation/ISN Maskwa duty officer, or the "stronger together" team. These groups come together in a joint command call to do a risk assessment, decision making and approval process. This call includes various levels such as federal, Ontario/provincial and Indigenous partners. As required, and at the request of the chief, other partners can be notified, including Indigenous partners, other First Nations leadership, host communities, health and social service providers, NGOs, provinces, and other federal departments. All partners that are notified then work together to produce a response to the emergency event.

Indigenous Partner Leads for 2022 season

Alberta

10-year bilateral agreement signed in 2014 between the Alberta Emergency Management Agency and Indigenous Services Canada

British Columbia

• 10-year bilateral agreement signed in 2017 with the Government of British Columbia
• Tripartite Memorandum of Understanding signed in 2019 between the Government of British Columbia, the First Nation Leadership Council and Indigenous Services Canada
• A Collaborative Emergency Management Agreement was signed in 2018 between the Tsilhqot'in National Government and Indigenous Sberrvicietsicsahnacdaolumbia

Manitoba

5-year bilateral service agreement signed in 2017 between the Canadian Red Cross and Indigenous Services Canada, renewed on an ongoing basis

N.W.T.

Bilateral agreement signed in 2015 between the Government of the Northwest Territories and Indigenous Services Canada

Ontario

10-year bilateral agreement signed in 2018 between the Government of Ontario and Indigenous Services Canada

P.E.I.

5-year bilateral agreement signed in 2015 between the Government of Prince Edward Island and Indigenous Services Canada, renewed on an ongoing basis

Quebec

• 5-year bilateral agreement signed in 2019 between the Government of Quebec and Indigenous Services Canada
• 5-year bilateral agreement signed in 2017 between the Canadian Red Cross and Indigenous Services Canada for preparedness and training

Yukon

• 7-year bilateral agreement signed in 2016 between the Government of Yukon and Indigenous Services Canada

There are no signed service agreements in:

• Newfoundland & Labrador
• Nova Scotia
• New Brunswick
• Saskatchewan
• Nunavut (as there are no First Nation reserves in the territory)

Yukon:

• In June and July 2022, seven First Nation communities experienced flooding events, with one community requiring partial evacuation. All evacuees have been repatriated.
• There is a strong interest among First Nation communities in Yukon to become involved in emergency services. ISC is planning to hold a Forum to engage First Nations in the region on a multilateral agreement within the next year.
• The current bilateral service agreement between ISC and the Yukon Government is expiring March 2023, but will likely be renewed for an additional 1-2 years

Northwest Territories:

• In May 2022, K'at'lodeeche First Nation – one of the two on-reserve communities in the territory – experienced a flooding event requiring evacuation. There are nine long-term evacuees from this event who have not been repatriated as of February 2023.
• The two First Nation communities have small on-reserve populations and lie either adjacent to or within other municipalities. Both First Nations are considered low-risk for emergencies and natural hazards.
• There is a bilateral service agreement between ISC and the Government of the Northwest Territories to provide emergency services to the two on-reserve communities, which will expire March 2023, and will be renewed for an additional year.

Nunavut:

• In August 2022, Iqaluit declared a state of emergency due to water shortages as a result of lack of rain over the summer months. The state of emergency did not require evacuation.
• Search and rescue, and equipment and resource allocation are the main priorities for the Nunavut Government in emergency management.
• The Climate Change Preparedness in the North program at Crown-Indigenous Relations and Northern Affairs supports Indigenous communities in Nunavut by funding climate change adaptation projects. This indirectly supports community capacity building to address emergencies at the local level.

Performance Measurement

• EMAP reports annually on outcomes and results of its program indicators.
• There are numerous indicators the program uses to measure progress for each of its funding streams, however, there are two main indicators primarily reports on. The first is the "percentage of long-term evacuees who have returned home or have a scheduled date within two years after their evacuation". Results for this indicator have fluctuated over time, as many factors can increase the repatriation date for long-term evacuees, including but not limited to: infrastructure issues, health and safety concerns, logistics, community remoteness, etc. The results for this indicator in 2021-2022 was 77.5%. Last year's result is comparatively lower than previous years as many current long-term evacuees are from the 2021 British Columbia Atmospheric River event, which had widespread and catastrophic impacts.
• The other main indicator the program reports on is the "percentage of evacuees that have returned to their community within three months". Results for this indicator have remained consistently high, and typically sit at over 97%. The results for this indicator in 2021-2022 was 97.9%
• Data collection is continuous, however, reporting on indicators occurs towards the end of each fiscal year, ahead of the release of the ISC's Departmental Results Report.
• In addition to indicators, the program reports on progress made towards its transfer payment programs, GBA+ data collection, and the United Nations' Sustainable Development Goals.
• EMAP also measures its performance through its Integrated Business Plan, which outlines the program's planning, business and Human Resources commitments for the upcoming fiscal year. Work on the Integrated Business Plan begins halfway through the fiscal year and takes several months to complete.
• ISC is renewing its Departmental Results Framework for the upcoming fiscal year. The renewal process will result in various programs, including the Emergency Management Assistance Program, being consolidated and realigned into six different service areas. EMAP will now fall under the Infrastructure and Environments program inventory.