Appearance before the Standing Committee on Public Accounts on OAG Report 3: Access to Safe Drinking Water in First Nations Communities, November 30th, 2023

Logistics

Date: November 30th, 2023
Time: 11am – 12:40 p.m.
Location: Room 225–A West Block

Subject: Follow-up Study on Report 3, Access to Safe Drinking Water in First Nations Communities — Indigenous Services Canada, of the 2021 Reports 1 to 5 of the Auditor General of Canada.
Follow-up to Report, Socio-economic Gaps in First Nations Reserves—Indigenous Services Canada, (specifically on Education Information System)

Appearing

Context on Committee Membership

MP Valerie Bradford (LIB – ONT) At the November 25, 2022 PACP appearance on emergency Management, she asked about unmet structural mitigation needs being met, especially the backlog of projects in Alberta and British Columbia, as well as what further work could be done by the Department without further resources.

MP Jean Yip (LIB – ONT) at the previous PACP meeting on Drinking Water asked about the Wastewater Hub model being used in Ontario (Hansard, June 14, 2022).

MP Maninder Sidhu (LIB – ONT) has spoken about the potential for nuclear power to be used as an alternative to diesel power in northern and remote communities (Hansard, June 7, 2022).

MP Peter Fragiskatos (LIB – ONT), Parliamentary Secretary National Revenue, has spoken on Indigenous issues including Indigenous over-representation in the correctional system (Hansard, October 19, 2018), Attawapiskat First Nation (Hansard, April 10, 2019), and supporting Indigenous cultural production (Hansard, June 13, 2022).

MP Brenda Shanahan (LIB – QC) at the June 14, 2022 PACP appearance, asked about complexities of water systems, especially those in remote areas.

MP John Williamson (CPC – NB) (Chair), has spoken regarding Atlantic fishing rights for Indigenous groups: "Indigenous communities are already a part of Canada's traditionally regulated fishing communities. It started small. It is growing, but it is happening. They hold licences. They adhere to DFO guidelines, and they follow the rules. When the government works in silos to change the rules of the game, it is working to undermine the progress that has already been made," (Hansard, October 19, 2020).

MP Stephen Ellis (CPC – NS), recently said in the House that "the final thing we need to really understand, as the government talks about preventive medicine, is that the government refuses to get clean water to indigenous nations in this country. It is shameful." (Hansard, February 8, 2023).

MP Michael Kram (CPC – SK) has spoken in support of Indigenous economic opportunities specific to the Alaska to Alberta railway (Hansard, November 2, 2020). At the November 25, 2022 PACP appearance, his questions focused on specific communities (Kasheschewan and Peguis), as well as how the Department tracks performance indicators in its Departmental Plans and Departmental Results Reports.

MP Kelly McCauley (CPC – AB) spoke about "setting targets for government contracts for indigenous businesses" relating to PPE contracts during the COVID-19 pandemic (Hansard, June 15, 2021). At the November 25, 2022 PACP appearance, he asked about the Department's shift from being reactive to being proactive in terms of emergency management. He also spoke in the House about recent OAG reports: "Indigenous Services Canada paid out hundreds of millions for remediation because it repeatedly ignored calls to fix infrastructure," (Hansard, December 7, 2022).

MP Nathalie Sinclair-Desgagné (BQ) (Vice-Chair), Critic for Public Accounts; Pandemic Programs; Economic Development Agencies, has been vocal in her advocacy for Québec-related issues. At the June 14, 2022 PACP appearance, she asked about the unacceptable delays in ending long-term drinking water advisories, and when the government would finally end the remaining advisories.

MP Blake Desjarlais (NDP – AB), Critic for Treasury Board; Diversity and Inclusion; Youth; Sport and Post-Secondary Education, is Indigenous, born in Edmonton and raised in the Fishing Lake Métis Settlement. At the June 2022 PACP meeting on drinking water, he asked about the delays in ending all drinking water advisories, as well as the need for full consultation and engagement beyond the AFN. He was critical of what he called unacceptable delays, and asked when all long-term drinking water advisories would be ended (Hansard, June 14, 2022).

Previous Appearances at PACP on OAG Report 3 — Access to Safe Drinking Water in First Nations Communities (April 29, 2021 and June 14, 2022)

This appearance will follow the Department's appearance at PACP in June 2022 (and April 2021) on the same subject. At the previous appearance the general themes of the questions from Committee Members included: meeting indicator targets set in Departmental Plans; delays in lifting all advisories and lack of results; regulatory and legislative updates; the Circuit Rider Training Program and water treatment plant operator recruitment and retention; recurring short-term advisories; complexities of water systems in remote areas; consultation and engagement; and wastewater treatment hub models.

There were four follow-ups stemming from the previous appearance (June 2022) which related to statistics on advisories; infrastructure spending; water system status updates; and, recurring advisories.

Socio-economic Gaps in First Nations Reserves – ISC

The committee will also question the minister concerning the report entitled Socio-economic Gaps in First Nations Reserves—Indigenous Services Canada, as the committee agreed that the response provided to the Committee by Indigenous Services Canada, indicating that it would send a final report on the Education Information System by 31 December 2024, was unsatisfactory. Thus, the Committee decided to invite the Department to appear before it to discuss this issue in the same meeting.

PACP Background

Pursuant to Standing Order 108(3) of the House of Commons, the mandate of the Standing Committee on Public Accounts is to review and report on:

• The Public Accounts of Canada;
• All reports of the Auditor General of Canada;
• The Office of the Auditor General's Departmental Plan and Departmental Results Report; and,
• Any other matter that the House of Commons shall, from time to time, refer to the Committee.

When the Speaker tables a report by the Auditor General in the House of Commons, it is automatically referred to the Public Accounts Committee. The Committee selects the chapters of the report it wants to study and calls the Auditor General and senior public servants from the audited organizations to appear before it to respond to the Office of the Auditor General's findings.

Meeting Proceedings

The meeting is scheduled for November 30th, 11 am to 1 pm. First hour will be Minister and officials and the second hour will be officials only.

The Chair will call the meeting to order and provide instructions for the meeting proceedings. He will then introduce the witnesses and invite the Minister to deliver opening remarks. This will be followed by a Q&A period (details below).

It is recommended that all speakers speak slowly and at an appropriate volume to ensure they are heard by the interpreters. All witnesses are asked to mute their microphones unless they are speaking.

Following the opening remarks, there will be rounds of questions from Committee members (as listed below). The rounds of questioning will repeat when the second panel commences in the second hour.

Committee members will pose their questions in the following order:

• First round (6 minutes for each Party)
  • Conservative Party of Canada
  • Liberal Party of Canada
  • Bloc Québécois
  • New Democratic Party of Canada

• Second round
  • Conservative Party of Canada (5 minutes)
  • Liberal Party of Canada (5 minutes)
  • Bloc Québécois (2.5 minutes)
  • New Democratic Party of Canada (2.5 minutes)
  • Conservative Party of Canada (5 minutes)
  • Liberal Party of Canada (5 minutes)

The meeting can be watched via ParlVU, however there may be an up to 70-second delay with the webcast.

Other Information for Appearing In-Person

• Witnesses should arrive early to allow time for security screening. Screening could take 30 minutes or more for those without a Hill pass.

Key Messages

• The 2021 Office of the Auditor General's Report 3: Access to Safe Drinking Water in First Nations Communities found that the Department was not on track to eliminate all long-term drinking water advisories on public water systems in First Nations communities by March 31, 2021.
• The Department's efforts were constrained by a number of issues, including an outdated policy and formula for funding the operation and maintenance of water infrastructure. Also, a regulatory regime was not yet in place for managing drinking water in First Nations communities. ISC was working to co-develop a new legislative framework with First Nations to ensure drinking water protection comparable to other communities across Canada.
• Implementing sustainable solutions requires continued partnership between the Department and First Nations. Until these solutions are implemented, First Nations communities will continue to experience challenges in accessing safe drinking water.

Background

Current Status

• ISC has been, and continues to work in partnership with First Nations partners to improve water infrastructure in First Nations communities and support access to safe, clean and reliable drinking water.
• ISC continues to provide sustainable investments to address long-term advisories, prevent short-term advisories, expand delivery systems, build capacity of and retain local operators, support regular monitoring and testing, and support First Nations-led engagement processes to develop new water legislation.
• The Department provides the OAG with regular status updates on the milestones and on-going activities included as per ISC's detailed action plan.
• The Government Response was ratified at the Cabinet Committee on Operations.
• ISC provided the three required annual progress reports to the Committee on March 31, 2023.

Recommendations from OAG and PACP reports, and ISC responses

4. Office of the Auditor General Recommendations & Progress Towards Addressing the Recommendations

5. Detailed Action Plan

To the recommendations of the Report 3 – Access to Safe Drinking Water in First Nations Communities—ISC Report of the 2021 Reports 1 to 5 of the Auditor General of Canada

Introduction

The Government of Canada welcomed the Standing Committee on Public Accounts (the Committee) report, presented in June 2021 and re-adopted in February 2022, on the important issue of safe drinking water in First Nations communities. Improving access to clean, safe drinking water in First Nations communities is a key priority of the Government of Canada. The Minister of Indigenous Services tabled the Government Response in the House of Commons in June 2022. The Response included the first four reports requested by the Committee.

Presented herein are the three progress reports requested by the Committee:

• Report 1 – Progress on resolving long-term drinking water advisories and implementing long-term solutions, due March 31, 2023;
• Report 2 – Final report on operations and maintenance funding, due April 30, 2023; and,
• Report 3 – Progress on developing and implementing a regulatory regime, due April 30, 2023.

Through these reports, the Government will demonstrate the efforts that have been made to date toward each of the recommended actions highlighted in the Committee's report as well as efforts Canada continues to make towards improving water infrastructure and building a sustainable foundation that ensures that First Nations communities have access to safe drinking water now and into the future.

Background

The Government of Canada works with First Nations partners to ensure all First Nations communities have reliable access to safe, clean water. On reserve, the provision of safe drinking water is a shared responsibility among First Nations communities and the Government of Canada. First Nations manage and operate their water and wastewater systems, and are responsible for the planning, design, procurement, construction, and operation and maintenance of the infrastructure. First Nations also monitor water and wastewater systems and issue and rescind drinking water advisories, typically on the recommendation of an Environmental Public Health Officer.

Indigenous Services Canada (ISC) provides advice and financial support to First Nations communities for their public water and wastewater systems, and ensures that drinking water quality verification monitoring programs are in place. To that end, ISC works directly with First Nations to assist communities in monitoring drinking water quality in all water systems at the tap. This includes providing advice and guidance about drinking water safety and wastewater disposal and reviewing infrastructure project proposals from a public health perspective. ISC also provides funding for water services and infrastructure, including the construction, upgrade, operation and maintenance of water treatment facilities on First Nations reserves. Funding is based on community plans and priorities and also supports the training and certification of water system operators.

Drinking water advisories are tools used to ensure public safety and represent a sign of a well-functioning public health prevention system. Drinking water advisories are issued to protect the public from drinking water that is potentially unsafe, or confirmed to be unsafe.

A short-term drinking water advisory (ST DWA) means there is a temporary water quality issue on a specific water system. A drinking water advisory that has been in effect for more than 12 months points to a more systemic issue and is referred to as a long-term drinking water advisory (LT DWA). Drinking water advisories are put in place for various reasons. For instance, a community may issue an advisory if there are problems with the overall water system, such as water line breaks, equipment failure, or poor filtration/disinfection during water treatment. Communities may also choose to issue a drinking water advisory as a precautionary measure, such as when there are emergency repairs in the water distribution system or if a community does not have a trained water system operator.

Since 2016, the Government of Canada has committed over $5.6 billion for First Nations to build and repair water and wastewater infrastructure and support effective management and maintenance of water systems on reserves. This includes commitments made as part of Budget 2021 of $1.043 billion over two years, starting in 2022–23, to support water and wastewater infrastructure projects. The funding will ensure that ISC can continue to support First Nations in the planning, procurement, construction, and commissioning of water and wastewater capital projects both for new builds, as well as system repairs and upgrades. Budget 2021 also announced an additional $125.2 million over four years, starting in 2022–23, and $31.3 million ongoing thereafter, to continue to support First Nations communities' reliable access to clean water and to help ensure the safe delivery of health and social services on reserve. This funding supports the continued provision of environmental public health services on reserve, including water quality monitoring programs. In addition, Budget 2022 committed $247 million over two years, starting in 2022–23, to support water and wastewater infrastructure and enable the completion of water and wastewater projects to ensure the lifting of LT DWAs and ST DWAs from public systems on reserve.

Since 2016, and as of December 31, 2022, more than $3.03 billion of targeted funding (excludes departmental operational funding and operations and maintenance (O&M) funding for First Nations) has been invested to support water and wastewater projects in 589 First Nations communities serving approximately 470,000 people. With support from the Government of Canada, First Nations have replaced or renovated water and wastewater infrastructure, built capacity by training operators, lifted LT DWAs, and prevented short-term advisories from becoming long term. First Nations have used Government of Canada funding to launch 1,058 water and wastewater projects, consisting of 123 new water and wastewater treatment plants and lagoons, 705 projects to renovate or upgrade existing infrastructure, 131 feasibility studies and design projects, and 99 supporting projects and initiatives such as operator training and support, development of source water protection plans, and other water and wastewater related studies and assessments.

The Government of Canada is committed to supporting First Nations in the daily operation and maintenance of their water and wastewater systems. Annually, ISC spends approximately $15.7 million to provide hands-on support for First Nations water and wastewater operator training through the Circuit Rider Training Program, as well as an additional $8.1 million for technical service delivery Hubs in the Ontario Region. As long-term capacity building supports, both the Circuit Rider Training Program and Regional Hubs in Ontario provide on-site training and mentoring services to First Nations operators directly in their communities. ISC also continues to work closely with First Nations partners and other partner organizations to expand capacity building measures and identify additional support measures for operator training and retention in First Nations communities.

Further demonstrating the Government's ongoing commitment to improve sustainable access to clean water in First Nations communities, on December 22, 2021, the courts approved a Settlement Agreement to resolve class action litigation related to safe drinking water in First Nations communities. This Safe Drinking Water for First Nations Class Action Settlement Agreement addresses important concerns identified by First Nations represented in the class action lawsuits. The terms of the settlement agreement include the following:

• Approximately $1.5 billion in compensation for individuals deprived of clean drinking water during LT 
• The creation of a $400 million First Nation Economic and Cultural Restoration Fund;
• A renewed commitment to Canada's Action Plan for the lifting of all LT 
• The creation of a First Nations Advisory Committee on Safe Drinking Water;
• Support for First Nations to develop their own safe drinking water by-laws and initiatives;
• A commitment of at least $6 billion to support reliable access to safe drinking water on reserves; and
• The planned modernization of Canada's First Nations drinking water legislation.

ISC is also supporting Indigenous peoples to independently develop and deliver services to address the socio-economic conditions in their communities. ISC is working with First Nations on a community-by-community basis to develop and implement programs and initiatives that will increase capacity building and readiness for the transfer of service delivery, with an understanding of the need for a holistic, community- based approach. ISC is also building partnerships with First Nations organizations that have a mandate from their leadership to advance the shared objective of transferring infrastructure service delivery from ISC to First Nations. As of December 31, 2022, $89.4 million (excluding operating expenses) has been invested toward 196 programs and initiatives that support self-determination by building capacity and readiness.

At the regional level, the Atlantic First Nations Water Authority (AFNWA), through engagements with First Nations leadership, communities, and technicians, has finalized the creation of an opt-in First Nations-led utility to serve participating First Nations communities in the Atlantic region. In November 2022, the Minister of ISC and the Water Authority signed a Service Delivery Transfer Agreement which initiates the transfer of responsibility for the operation, maintenance, and capital upgrades of all water and wastewater assets in participating First Nations to the Indigenous-led AFNWA. The transfer agreement enables First Nations to now officially join the AFNWA after receiving approval from their community members. This first-ever agreement of its kind presents a new approach and funding model to support participating First Nations living on reserve in the Atlantic provinces to take full control of water and wastewater service delivery. Through Indigenous Services Canada, the federal government has committed approximately $257 million in funding for this work, including $173 million over 10 years from Budget 2022 that will provide sustainable funding for operations and capital programs.

Key Messages

• The Government of Canada works with First Nations partners towards ensuring all First Nations communities have reliable access to clean water, and remains committed to lifting all long-term drinking water advisories in First Nations communities.
• There are currently no long-term drinking water advisories in effect on public systems in First Nations communities in British Columbia, Alberta, Quebec, and the Atlantic Region.
• In every community with a long-term drinking water advisory, there is an action plan in place to resolve it. Initiatives are now underway in 26 communities to resolve the remaining 28 long-term drinking water advisories, and the Government of Canada is committed to accelerating long-term solutions where interim solutions have been used to provide clean water to communities.

Background

Current Status

Key Messages

• The Government of Canada recognizes the importance of operations and maintenance in ensuring First Nation communities have sustainable infrastructure. That is why as part of Budget 2019, the Government of Canada invested $605.6 million over four years, with $184.9 million per year ongoing, to support the operations and maintenance of First Nations' community water and wastewater assets.
• On November 30, 2020, an additional $1.5 billion was announced as part of the 2020 Fall Economic Statement, which includes $616.3 million over six years, and $114.1 million per year ongoing, to increase the support provided for operations and maintenance of water and wastewater infrastructure on reserves.
• In 2022-2023, the Department regularized operations and maintenance funding based on 100 per cent of the modernized formulas. By 2025, with these new investments combined, the Government of Canada will increase the annual funding it provides to support the operations and maintenance of water and wastewater systems on a permanent basis by almost four times.

Background

• Responsibility for safe drinking water on reserves is shared between First Nation communities and the Government of Canada.
• First Nations are responsible for the daily operation and maintenance of their water and wastewater systems, and decide how operations and maintenance funding is used in the community, including determining operator salaries.
• As part of Budget 2019, the Government of Canada invested $605.6 million over four years, with $184.9 million per year ongoing, to support the operations and maintenance of First Nations' community water and wastewater assets.
• On November 30, 2020, an additional $1.5 billion was announced as part of the 2020 Fall Economic Statement, which includes $616.3 million over six years, and $114.1 million per year ongoing, to increase the support provided for operations and maintenance of water and wastewater infrastructure on reserves.
• The additional funds announced on November 30, 2020, will enable an increase to 100 per cent, up from 80 per cent, of formula-based funding for operations and maintenance, and will support First Nations to better sustain the approximately 1,200 water and wastewater systems across the country.
• Specifically, the funding will allow First Nations to improve water operator salaries and so better retain qualified operators in their communities, train new operators to build water maintenance capacity, improve or maintain asset condition ratings, and ensure longer lifecycles for water assets.
• ISC supports water and wastewater operators through a number of national and regional initiatives, including the Circuit Rider Training Program, which assists First Nation communities with building and retaining the capacity to operate, service, and maintain their water and wastewater systems.
• Annually, the Department spends approximately $24 million to support First Nations water and wastewater operator training, including funding the Circuit Rider Training Program and Ontario Hubs.

Current Status

• The increase in operations and maintenance funding announced as part of the 2020 Fall Economic Statement has already started flowing directly to First Nations.
• All water and wastewater assets have modernized formulas that are being funded at 100 per cent including considerations for remoteness and are scheduled for annual updates to account for factors that impact costs.
• The Department is aware that new approaches are needed in terms of funding the operations and maintenance of infrastructure on reserve.
• Recent investments in operations and maintenance provide an opportunity to make substantive progress towards Asset Management Reform – providing a predictable funding stream that allows for strategic decision-making built upon detailed asset information.
• ISC continues to support the development of a more holistic asset management approach that allows for better forecasting and the ability to account for future investment requirements, which enables effective operations and maintenance of infrastructure and better informs strategic planning and decision-making.
• The Department is working with First Nations to co-develop a new approach to operations and maintenance for all infrastructure on reserve, including water and wastewater.

Key Messages

• Water operators are key to ensuring communities have access to clean drinking water and reliable infrastructure.
• As part of Budget 2019, the Government of Canada invested $605.6 million over four years, with $184.9 million per year ongoing to support the operations and maintenance of First Nations' community water and wastewater assets.
• On December 2, 2020, an additional $1.5 billion was announced through FES 2020, which included $616.3 million over six years, and $114.1 million ongoing, to increase the support provided for operations and maintenance of water and wastewater infrastructure on reserves.
• Increased operations and maintenance funding will enable First Nations to better retain qualified water operators in their communities, including through improved salaries, according to First Nations priorities.

Background

• Indigenous Services Canada (ISC) is working in full partnership with First Nation communities, including with First Nations technical advisors and leaders, to support sustainable First Nations-led approaches to ensure that on-reserve water systems are safe. This includes Technical Services Advisory Group in Alberta, the Ontario First Nations Technical Services Corporation, the Atlantic First Nations Water Authority, and technical service delivery Hubs in Ontario.
• This funding will support First Nations to better sustain the approximately 1,200 water and wastewater systems across the country. Specifically, this funding will allow First Nations to improve water operator salaries and better retain qualified operators in their communities, train new operators to build water maintenance capacity, improve or maintain asset condition ratings, and ensure longer lifecycles for water assets.
• The Department conducted an analysis using 2016 Census data comparing on-reserve and off-reserve water and wastewater operator salaries and found a 42% wage gap. Recent investments in operations and maintenance funding aim to improve the gap.
• While the increase in operations and maintenance funding will enable First Nations to support improved operator retention through wage increases and/or other support measures, ISC does not track or direct the amount of funding spent on operator salaries; First Nations are responsible for determining salary levels of their water system operators.

Current Status

• ISC continues to support innovative solutions to improve the retention, recruitment, and capacity building of water and wastewater operators working on reserve to ensure First Nations communities have sustainable access to drinking water. A variety of these initiatives are detailed below.
• The Circuit Rider Training Program (CRTRP) and Ontario Hubs — Annually, the Department spends approximately $24 million to provide First Nations water and wastewater operators with hands on training and 24/7 technical support to ensure First Nations can operate and maintain their water and wastewater infrastructure. Over 750 operators are supported and trained in approximately 540 First Nation communities across the country.
• Technical Youth Career Outreach Program — ISC also provides funding to the Technical Youth Career Outreach Program (TYCOP), which aims to increase recruitment of First Nations' youth in Science, Technology, Engineering and Math (STEM) careers, including water and wastewater operators. TYCOP builds awareness for First Nations youth through outreach activities on reserve, including hosting two large annual career fairs and attending many others; travelling and delivering school presentations by Indigenous professionals; and, the development of a website with role model profiles and career guides for First Nations youth.
• National First Nations Water Leadership Award — In 2018, Indigenous Services Canada established the National First Nations Water Leadership Award to recognize leadership and outstanding dedication to the advancement of clean and safe drinking water, including water operations and water sustainability, in First Nation communities.
• This year, ISC received a record number of 30 nominations from across the country. The winner of the 2023 National First Nations Water Leadership Award was announced at the 14th annual BC and Yukon Water and Wastewater Operational Excellence conference in Vancouver in October 2023. Warren Brown of Lytton First Nation was recognized for his professionalism and compassion, and his continued dedication as a strong advocate for water operator education and training.
• Capacity Building Call for Proposals — In March of 2022, ISC launched a Call for Proposals to identify innovative capacity-building measures to support water and wastewater operators on reserve. Proposals from First Nation communities, Tribal Councils, and other organizations were reviewed and 32 projects were funded to support water and wastewater operators across the country.
• The call targeted initiatives that would address foundational capacity building (e.g., recruitment, retention, etc.), supporting operators (e.g., asset, operations, maintenance planning, etc.), diversity and cultural initiatives (e.g., to create safe and inclusive spaces, empower underrepresented peoples, etc.), as well as other innovative measures. Funded projects include a variety of training workshops for operators and managers; community outreach and awareness raising; internship programs; source water protection planning; youth education and outreach; and, development of a variety of training materials.
• Clan Mothers' Water Operator Training Project — Through this project the Department actively seeks to engage and encourage underrepresented peoples in pursuing careers in water and wastewater operations, in order to diversify and support long-term recruitment, development, and retention of the existing water operator workforce.
• Most recently, the Department supported a one-year pilot project with Clan Mothers to provide water operator training for 12 trauma survivors.
• The pilot project will provide operator training, including holistic wraparound supports, Level 1 water operator certification, and work experience placements.

Key Messages

• Indigenous Services Canada remains committed to renewing and strengthening Canada's relationship with First Nations, Inuit, and Métis communities to advance self-determination. The Government of Canada respects the right of Indigenous groups to seek the Court's assistance on the important issue of safe drinking water.
• The Government of Canada welcomes the advancement of approaches to litigation that promote resolution and settlement in the spirit of reconciliation.
• The Government of Canada is committed to ongoing implementation of the 2021 Safe Drinking Water for First Nations Class Action Settlement Agreement, including compensation for First Nations and their members for harms caused by long-term drinking water advisories, as well as forward looking measures to ensure access to safe drinking water for generations to come.
• Where litigation is unavoidable, Canada's approach to litigation should be constructive, expeditious, and effective in assisting the court to provide direction.
• The Government of Canada is committed to ongoing collaborative work with partners to improve access to high quality services for First Nations.

Background

Current Status

• On December 22, 2021, the Federal Court and the Court of Queen's Bench of Manitoba issued a joint decision approving an agreement to settle class-action litigation related to safe drinking water in First Nations communities.
• The terms of the Settlement Agreement include:
  • approximately $1.5 billion in compensation for individuals deprived of clean drinking water;
  • the creation of a $400 million First Nation Economic and Cultural Restoration Fund;
  • a renewed commitment to Canada's Action Plan for the lifting of all long-term drinking water advisories;
  • the creation of a First Nations Advisory Committee on Safe Drinking Water;
  • support for First Nations to develop their own safe drinking water by-laws and initiatives;
  • a commitment of at least $6 billion to support reliable access to safe drinking water in First nation communities; and
  • modernization of Canada's First Nations drinking water legislation.
• The Government of Canada continues to work with all First Nations, including Tataskweyak, Curve Lake and Neskantaga, to address water concerns and develop sustainable, long-term solutions so that future generations do not have to worry about the safety of their drinking water.
• In February 2023, the Courts approved an extension of the claims period for compensation from March 2023 to March 2024.

Key Messages

• First Nations have long called for safe drinking water legislation that meets their needs and reflects their priorities. Effective legislation and a national regulatory regime are essential to support sustainable access to clean, safe and reliable drinking water in First Nations communities.
• As part of the 2021 Safe Drinking Water for First Nations Class Action Settlement Agreement, the Government of Canada committed to making all reasonable efforts to develop and introduce new proposed legislation, in consultation with First Nations, to replace the repealed 2013 Safe Drinking Water for First Nations Act.
• Aligned with the United Nations Declaration on the Rights of Indigenous Peoples, new proposed legislation is being developed through engagement that puts First Nation voices at the forefront. Indigenous Services Canada is working directly with First Nation rights-holders, including Modern Treaty and Self-Governing Nations, through their own representative institutions and First Nation organizations, including the Assembly of First Nations and First Nations Advisory Committee on Safe Drinking Water, to help ensure new proposed legislation is reflective of First Nations needs and priorities.

Background

Current Status

• Engagement is an ongoing process. Indigenous Services Canada is committed to continuing to work with partners on new proposed First Nations drinking water and wastewater legislation that is reflective of feedback received while also implementing legislative commitments made through the 2021 Safe Drinking Water for First Nations Class Action Settlement Agreement.

Key Messages

• Through historic investments since 2016, the Government of Canada has made over $7.1 billion in commitments to First Nations to upgrade water and wastewater infrastructure in First Nations communities, to better support the operation and maintenance of systems, to improve the monitoring and testing of community drinking water, and to support ongoing efforts to eliminate and prevent long-term drinking water advisories.
• The Government has continued to prioritize clean drinking water on reserve through its most recent investment of $1.55 billion over two years, announced in the 2023 Fall Economic Statement. This funding represents an at-level renewal of the First Nations Water and Wastewater Enhancement Program (FNWWEP) for the next two years in order to ensure that water and wastewater projects continue without interruption.
• With the combined investments made as part of Budget 2019 and the 2020 Fall Economic Statement, by 2025 the Government of Canada will increase the annual funding it provides to support the operations and maintenance of water and wastewater systems on a permanent basis by almost four times.
• Budget 2021 also announced $125.2 million over four years, beginning in 2022–23, and $31.3 million on-going thereafter to continue to support First Nations communities' reliable access to clean water and to help ensure the safe delivery of health and social services in First Nations communities. This is the first time funding for this important public health function has been stabilized since the 1970s.

Background

• Budget 2016 provided $1.83 billion over five years, starting in 2016-2017, to improve water and wastewater infrastructure on reserves, ensure proper facility operations and maintenance, and strengthen capacity by enhancing the training of water system operators in First Nations communities. Budget 2016 also included $141.7 million in new funding to continue providing independent public health advice, guidance, and recommendations to improve drinking water monitoring and testing on reserves.
• Budget 2017 provided $49.1 million over three years, starting in 2018-2019, to improve water and wastewater infrastructure in First Nations communities.
• Budget 2018 provided $172.6 million over three years, starting in 2018-2019, to improve access to clean and safe drinking water in First Nations communities. Budget 2018 also provided support for repairs to high-risk water systems, recruitment, training and retention initiatives, and the establishment of innovative First Nations-led service delivery models.
• Budget 2019 committed $739 million over five years, which includes: $133.4 million over two years, starting in 2019-2020, to support urgent repairs to vulnerable water and wastewater systems; $605.6 million over four years, starting in 2020–2021, and $184.9 million per year ongoing, to support the operations and maintenance of water and wastewater infrastructure in First Nations communities.
• As part of the 2020 Fall Economic Statement, an additional $1.5 billion was announced to help meet the Government of Canada's commitment to clean drinking water in First Nations communities. Funding includes:
  • $616.3 million over six years, and $114.1 million per year ongoing thereafter, to increase the support provided for operations and maintenance of water and wastewater infrastructure in First Nations communities;
  • $553.4 million to continue funding water and wastewater infrastructure on reserve to prevent future drinking water advisories from occurring; and,
  • $309.8 million to support and accelerate on-going work to lift all long-term drinking water advisories on public systems in First Nations communities by helping to respond to project delays including those due to COVID-19.
• Budget 2021 committed an additional $1.043 billion over two years, starting in 2022–23, to support water and wastewater projects. The funding will enable ISC to continue to support the planning, procurement, construction, and commissioning of water and wastewater projects for both new builds, as well as system repairs and upgrades in First Nations communities.
• Budget 2021 also announced $125.2 million over four years, beginning in 2022–23, and $31.3 million on-going thereafter to continue to support First Nations communities' reliable access to clean water and to help ensure the safe delivery of health and social services on reserve. This is the first time funding for this important public health function has been stabilized since the 1970s.
• Budget 2022 proposes to provide $398 million over two years, starting in 2022–23, to support community infrastructure on reserve, of which at least $247 million will be directed toward water and wastewater infrastructure.
• Most recently, the Federal Economic Statement on November 21st, 2023 announced $1.55B over two years, to support clean drinking water for First Nations. This funding represents an at-level renewal of the First Nations Water and Wastewater Enhancement Program (FNWWEP) for the next two years in order to ensure that water and wastewater projects continue without interruption.
• This new funding will enable the completion of water and wastewater projects to ensure the lifting of long-term drinking water advisories and short-term drinking water advisories from public systems in First Nations communities. It will also support infrastructure projects to increase sustainable access to clean drinking water in First Nations communities.
• New funding will support feasibility and design studies, and the construction, repair, or upgrade of water systems affected by a long-term or short-term drinking water advisory, including long-term solutions.

Current Status

• Since 2015, and as of November 16, 2023, with the support of ISC, First Nations have lifted 143 long term drinking water advisories to date, which means that over 8,030 homes and 583 community buildings now have access to reliable, clean drinking water.
• As of September 30, 2023, more than $3.60 billion of targeted funds have been invested to support 1,244 water and wastewater projects, of which 547 are now complete and 591 are ongoing.
• These projects will serve 471,000 people in 591 First Nations communities.
• Of the 1,244 water and wastewater projects, a total of 975 projects are new water and wastewater treatment plants or lagoons, or renovations and upgrades to existing water and wastewater systems.

Key Messages

• Indigenous Services Canada (ISC) recognizes and supports Indigenous peoples' inherent right to self-determination and is continuing to work in partnership with Indigenous organizations across the country to advance First Nations-led approaches.
• Since 2017, the Government of Canada has provided $108.89 million (until 2025–2026) to support engagements and institution building related to transferring housing and infrastructure services. Service transfer can include water and wastewater services that are designed based on Indigenous needs, priorities and pace.
• To date, ISC has signed three Framework Agreements to facilitate the transfer of control of housing and infrastructure services to First Nations organizations. Two of these Framework Agreements include water and wastewater in their scope.

Background

Current Status

Key Messages

• Through historic investments since 2016, the Government of Canada has made over $7.1billion in commitments to First Nations to upgrade water and wastewater infrastructure on reserve, to better support the operation and maintenance of systems, to improve the monitoring and testing of community drinking water, and to support ongoing efforts to eliminate and prevent long-term drinking water advisories.
• The Government of Canada has continued to prioritize water and wastewater infrastructure via the most recent investment of $1.5 billion in the Federal Economic Statement.
• Long-term solutions to improve access to clean drinking water on reserves can only be developed and implemented in full partnership with First Nations. The Government of Canada will continue to support First Nations in implementing sustainable solutions that best suit their communities' needs.
• Indigenous Services Canada is providing sustainable investments to prevent short-term advisories, lift long-term advisories, expand delivery systems, build capacity of, support and retain local water operators, and support regular monitoring and testing.

Background

• ISC is working in full partnership with First Nation communities, including with First Nations technical advisors and leaders, to support sustainable First Nations-led approaches to ensure that on-reserve water systems are safe.
• Beyond addressing long-term drinking water advisories and establishing service transfer agreements, the Department continues to actively work towards identifying and supporting innovative approaches in ensuring First Nations communities have access to sustainable drinking water.
• This includes working directly with First Nations, Tribal Councils, and Indigenous Organizations to identify and fund culturally-appropriate and Indigenous-informed initiatives that support the sustainable access to water in First Nations communities directly.
• Furthermore, with funding from Indigenous Services Canada, First Nations partners are determining new models of service delivery that meet their own diverse needs, priorities and approaches. All models are opt-in and must be supported by leadership.
• Below are some examples of innovative approaches, best practices and successes led by First Nations and supported by ISC.

Current Status

Key Messages

• The Government of Canada recognizes its role in working with partners to close social and economic inequities between Indigenous and non-Indigenous communities and is committed to closing infrastructure gaps in Indigenous communities by 2030.
• Throughout 2022, Indigenous Services Canada (ISC) and Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC) worked collaboratively with distinctions-based Indigenous partners to understand community infrastructure needs for closing the infrastructure gap.
• ISC is currently seeking First Nations rights-holders advice on infrastructure policy modernization to lay the groundwork for the conditions needed to close the infrastructure gap in First Nations communities. Exploring how new financial tools could improve infrastructure service delivery – including more flexible funding arrangements to support First Nation self-determination –is a fundamental aspect of infrastructure modernization.

Background

• While significant investments have been made to date and initiatives are underway to transfer infrastructure service delivery to First Nation communities, further work is required to transform infrastructure delivery so that it is equitable and focuses on self-determination, whole-of-government approaches to infrastructure delivery, and financial reforms that promote long-term, sustainable and predictable funding.
• The department is exploring with partners, how to transform the way federal funding is invested in infrastructure in First Nations communities to return decision-making where it belongs – with First Nations communities themselves.
• Proposed modernization seeks to simplify access to funding for infrastructure to better support meeting First Nations' needs for clean and safe drinking water, housing, schools, health facilities, and other community infrastructure.
• Over the medium to long term, the department wants to support First Nations communities in gaining greater access to infrastructure programming across the government.
• Infrastructure modernization must be designed to support ISC's long-term commitment of transferring responsibilities for service delivery to First Nations and First Nations organizations.

Current Status

• Over the next year, ISC will continue to work with First Nations partners, other government departments and with financial institutions to define a bold, new approach to how the department funds infrastructure in First Nations communities.
• Information provided by First Nations partners will inform future policy changes in terms of how ISC funds and delivers infrastructure programs, and also guide discussions on how the federal government funds First Nations infrastructure.

Key Messages

• The Government of Canada has committed to closing the infrastructure gap in First Nations, Inuit and Métis communities by 2030.
• As mandated through the 2020 Fall Economic Statement, Indigenous Services Canada and Crown-Indigenous Relations and Northern Affairs Canada worked collaboratively with Indigenous organizations and communities to support an engagement process that provided the federal government with a better understanding of the infrastructure needs in Indigenous communities.
• Indigenous Services Canada engaged with individual First Nations to identify their infrastructure needs. As of May 2023, 405 of the 564 First Nations submitted infrastructure needs lists, reflecting a response rate of 72%. The top categories of infrastructure needs identified by First Nations were community assets, housing, transportation infrastructure, water, wastewater and utilities, and emergency services. First Nations identified infrastructure projects with an estimated cost of $120 billion.

Background

• ISC engaged individual First Nations in spring 2022 to understand infrastructure needs and order of paramountcy. This exercise saw a response rate of 72% (405/564) and estimated the cost of closing the First Nations infrastructure gap by 2030 to be $120 billion.
• ISC also engaged with the Assembly of First Nations. In their report, they estimated that $349.2 billion was needed to close the First Nations infrastructure gap by 2030. The report called for moving away from project-based investment approaches, guaranteeing reliable funding as well as the co-development of a self-governed First Nation Infrastructure Bank, amongst others.
• ISC also worked with Inuit Tapiriit Kanatami (ITK) who engaged the four Inuit regional Land Claims Organizations and submitted a report outlining priority infrastructure projects in Inuit Nunangat. ITK estimated that $55.3 billion over 10 years and $793.7 million annually would be required to support priority projects to narrow the infrastructure gap in Inuit Nunangat.
• CIRNAC conducted engagement with the Métis National Council (MNC) and Manitoba Métis Federation (MMF) who identified infrastructure needs in their pre-Budget submissions. The MNC identified immediate infrastructure investment needs of $2.41 billion over 6 years while the MMF identified immediate investment needs of $299.2 million over 10 years.

Current Status

• Indigenous Services Canada will provide First Nation communities with a detailed report on the information received during the Closing the Infrastructure Gap engagements in the coming months.

Key Messages

• The 2022–2023 Indigenous Services Canada (ISC) Departmental Plan stated that targets for several departmental result indicators related to elementary/secondary and post-secondary education programs would be set by March 31, 2023. A target was set for each indicator, according to the commitment in the Departmental Plan, and this information was published in the 2022–2023 Departmental Results Report.
• This work reflects the clear message from Indigenous partners that one-size-fits-all targets, set unilaterally by ISC, are unacceptable, and that co-developed visions, plans and measurement frameworks under Indigenous control are critical.
• The newly established targets stand to anticipate and demonstrate progress while leaving space for Indigenous models to continue to develop and evolve, including through Indigenous-directed processes such as First Nation Regional Education Agreements and post-secondary education strategies.

Background

• ISC's Elementary and Secondary Education Program supports full-day Kindergarten (ages four and five) to Grade 12 education for eligible First Nations students ordinarily resident on-reserve, by providing funding directly to First Nations recipients and education organizations designated by First Nations.
• Additionally, ISC's Distinctions-based Post-Secondary Education strategies aim to help increase access to and enable success in post-secondary education for eligible First Nations, Inuit, and Métis Nation students. Through expanded post-secondary education funding, the department is working toward increasing the number of students and contributing to closing the education attainment gap.
• In the 2023–2024 ISC Departmental Plan, the "Targets" and "Date to Achieve Targets" for several of the departmental result indicators related to the education service area stated "To be determined". Those targets have now been set and published in the 2022–23 Departmental Results Report which was subsequently released.
• The Departmental Plan explains that First Nations have indicated a preference to develop regional results frameworks that better reflect and respond to their education goals and priorities, through the development of regional education agreements, for instance.
• This has created challenges in developing a national results framework and setting targets at the national level with partners. Furthermore, engagement efforts with partners were impacted and delayed due to the COVID–19 pandemic.

Current Status

• ISC continues to work with First Nations to refine ISC Education programming and to address gaps.

Program-Level Data

Key Messages

• A new methodology was introduced in 2022–2023 to calculate the percentage of on-reserve First Nations students funded through Indigenous Services Canada's (ISC) Elementary and Secondary Education Program who graduate from secondary school both "on time" and with "extended time".
• The new methodology responds to concerns expressed by First Nations and better aligns with the pan-Canadian graduation rate methodology developed by Council of Ministers of Education of Canada and published annually by Statistics Canada.
• In the 2022–2023 Departmental Results Report, the reported graduation rate within three years of entering grade 10 ("on time") is 26% and the graduation rate within five years of entering grade 10 ("extended-time") is 44%.
• The reporting approach provides rates for two different cohorts of students to enable the department to report on the latest data available as well as time taken by additional educational pathways.
• The 2022–2023 national rate serves as a new baseline for performance measurement.

Background

• ISC's Elementary and Secondary Education Program supports full-day Kindergarten (ages four and five) to Grade 12 education for eligible First Nations students ordinarily resident on-reserve, by providing funding directly to First Nations recipients and education organizations designated by First Nations.
• First Nations have been expressing concerns that the existing graduation rate methodology was not representative of their students' actual progress, achievements, and success.
• That is why, in response to the 2018 Auditor General's report on Socio-Economic Gaps on First Nations Reserves that found that ISC's graduation rate for on-reserve First Nations students was "inaccurate" and "inconsistent with how most provincial governments calculate graduation rates, ISC consulted with the Council of Ministers of Education of Canada to develop a cohort-based graduation methodology.
• The new methodology will respond to First Nation comments about a more representative baseline for student graduation, especially upon which to build First Nation-defined and controlled student outcomes stories. It also serves to emphasize the message from First Nation partners that First Nation students' education journey under First Nation control may not match expectations based in the non-Indigenous experience for "on time" graduation, nor a "one size fits all" approach.
• The new cohort-based methodology also better aligns with the pan-Canadian graduation rate methodology developed by Council of Ministers of Education of Canada and published annually by Statistics Canada.
• Previous Departmental Reports on Results (DRR) were based on the now-replaced previous methodology: 2019–2020 reported 41%, 2020–2021 reported 36.8%, 2021–2022 reported 34.19%. These results indicated a declining graduation rate were based on the flawed graduation rate methodology highlighted in the 2018 Auditor General's Report and First Nation partners.
• In addition to its new graduation rate, ISC also monitors the highest level of educational attainment achieved by the 18-24 First Nations on reserve population, as reported by Statistics Canada. (Educational Attainment refers to the highest level of education that a person has successfully completed.)
• While the education attainment gap between First Nations on reserve and non-Indigenous Canadians remains one of the highest, the gap is decreasing, going from over 50% in the 2006 Census, down to 44.5% in the 2016 Census and to 36.8% in the 2021 Census.

Current Status

• The new graduation rate methodology is presented and reported against in ISC's 2022–2023 Departmental Report on Results, along with the newly-set target of "maintain or increase results year of year starting in 2023–2024". This will provide a baseline going forward in time.
• ISC continues to work with First Nations to refine ISC Education programming and to address gaps.

Key Messages

• ISC recognizes that its Departmental Result Indicators and targets have been fluctuating since the department was established. Changes in the indicators can be attributed to the reframing of existing indicators, removal of duplicates or challenges collecting/accessing the necessary data.
• To support self-determination and service transfer, ISC is co-developing performance measures and targets with its Indigenous Partners for some Programs. These targets will be reported when co-development is complete.
• ISC has renewed its Departmental Results Framework with an improved focus on outcomes and an assessment of indicators to strengthen its ability to measure and report on progress. It continues to build rigorous performance strategies at the Program level.

Background

• The background of the Parliamentary Budget Officer (PBO) report can be found in Issue Sheet: Overview of PBO report and key findings.
• It should be noted that the PBO report focuses on Departmental Results Indicators (DRIs), but additional context regarding both departmental and Program level indicators can be found below. Data collection and measures at the Program level must align with and support performance measurement at the departmental level.

Current Status

• ISC's 2023–24 Departmental Results Framework enables the strengthening of performance measurement and provides an opportunity to implement quality and relevant data, performance indicators and targets by service area that will be more reflective of outcomes to which ISC's Programs and services contribute.
• For the 2023–24 Departmental Plan, Programs were challenged to set realistic but ambitious targets.
• ISC is currently undergoing a comprehensive renewal of the Performance Information Profiles for all its Programs. As part of this renewal, ISC Programs will further assess the relevancy and usefulness of indicators for continued use.
• ISC will be building further rigor in its performance measurement practices including periodic follow-ups on targets with Programs where applicable.

If pressed about the transition from 2022–23 DRF to 2023–24 DRF

For 2023–24, 34 Departmental Indicators Results Indicators have been identified. This is a reduction of 9 indicators from 2022–23 where 43 indicators were identified.

Of the 43 indicators reported in 2022–23:

• 17 indicators were retained as-is.
• 13 indicators were not retained as DRIs because they primarily measure outputs of services delivered, which in many cases do not meaningfully link ISC Programs to Departmental Results. These indicators will continue to be tracked publicly at the Program level in GCInfobase.
• 13 were removed for other reasons such as duplication, reframing as new indicators to reflect distinctions or updated methodology or inclusion in Performance Information Profile at the program level

Income and Employment

• Even after accounting for inflation, income was higher for all Indigenous identities and increased at a higher rate than that of the Non-Indigenous population and a large narrowing of the gap was observed for each of the Indigenous groups with increases ranging from $4,500 to $9,900 since 2015.
• Although a similar proportion of individuals were employed in 2021 compared to 2016, those who were employed made more money even - bringing home an extra $800 to $4,200 a year in income after accounting for inflation.
• Overall, 136,000 fewer Indigenous people living in a low-income situation since 2015.
• Census 2026 will be important to determine whether there has been lasting changes of these gaps beyond the availability of government benefits during the COVID-19 pandemic.

Education

• Overall, there were in 2021 80,280 more Indigenous people aged 25-64 with a high school level education since 2016.
• From 2016 to 2021, an additional 47,980 Indigenous people obtained a university education. Despite these gains, the gaps in university completion with the Non-Indigenous population widened for all Indigenous groups from 15.9 to 22.9 percent.

Housing

• The gaps in both the proportion of dwellings that were crowded or in need of major repair generally narrowed between census cycles. However, the narrowing of the gap in the proportion of dwellings that were crowded was due in part to increases in increased crowding for the Non-Indigenous population.
• The greatest improvements in the number of crowded households was found for Registered Indians living on reserve going from 12,160 crowded households in 2016 to 10,705 in 2021, a difference of 1,455.
• Similarly, 6,005 fewer households of Registered Indians living on reserve and 485 fewer households of Registered Indians living off reserve required major repairs to their dwelling.

Foster Care

• As the census only collects data from private households, only children living in foster care in a private home are counted. This means those residing in institutions, group homes or other care arrangements are excluded from the census counts.
• The proportion of Registered Indians, Non-status Indian and Métis children in foster care were actually fairly stable over the period. There was an almost one percentage point increase for Inuit children.
• In total, there were 17,410 Indigenous children in foster care in 2016 compared to 17,320 in 2021.

Indigenous Languages

• In 2021, 243,155 individuals could conduct a conversation in an Indigenous language, 188,905 people reported having at least one Indigenous mother tongue and 182,925 reported speaking an Indigenous language at home at least on a regular basis.
• There were over 70 Indigenous languages spoken in Canada with over 20 (28.6 percent) of them having 500 or fewer people reporting speaking them as their mother tongue.^{Footnote 1}

Incarceration

• From 2016 to 2021, there was a slight increase in the proportion of Indigenous adults admitted to correctional services going from 29.9 percent in 2016 to 31.2 percent in 2021.
• The total number of incarcerated adults dropped considerably during this time. Overall, number of incarcerated Indigenous adults fell from 74,823 in 2016 to 46,633 in 2021, a difference of 28,190 people.^{Footnote 2}

Addressing socio-economic gaps between Indigenous and non-Indigenous peoples in areas such as income, employment, education, housing, foster care and incarceration is crucial for reconciliation. These gaps are a result of systemic barriers and inequalities that have led to the marginalization and oppression of Indigenous Peoples.

Appendix A

Overview of the change in the observed gap between Indigenous and non-Indigenous populations from 2016–2021 for all domain indicators, Indigenous and non-Indigenous populations, Canada

Key Messages

• ISC recognizes that one key to addressing longstanding data gaps related to Indigenous Peoples is to support First Nations, Inuit, and Métis to collect, hold, and manage their own data.
• Both the UN Declaration Act Action Plan and the Federal Data Strategy highlight the importance of supporting Indigenous data sovereignty as a whole-of-government priority.
• Supported by $81.5 million announced in Budget 2021, ISC is proceeding with Phase 1 (2022–23 to 2024–25) of a Transformational Approach to Indigenous Data. The initiative is expected to take a minimum of three phases and six years of development, and will culminate in First Nations, Inuit, and Métis-led statistical capacity in the form of distinctions-based institutions, organizations, or functions that are structured and governed according to the unique needs and perspectives of each distinctions group.
• In alignment with Canada's commitments under the United Nations Declaration on the Rights of Indigenous Peoples Act, Indigenous Services Canada's commitment to service transfer, the Transformational Approach to Indigenous Data focuses on advancing Indigenous data capacity to support the inherent strengths, resilience, and knowledge systems of Indigenous Peoples as a foundational component of Indigenous self-determination.

Background

• The five work streams under the Transformational Approach to Indigenous Data are described below.
  • Stream 1: Readying ISC Data Transition ($9.5M): The objective of this work stream is to facilitate data sharing with Indigenous partners as a first step towards the eventual transfer of departmental data assets to Indigenous control along with related service delivery responsibilities.
  • Stream 2: Strengthening First Nations Data Capacity ($51.1M): The objective of this stream in Phase 1 is for First Nations, led by the First Nations Information Governance Centre (FNIGC) and its regional partners, to establish Data Champion Teams at the regional and national levels. These teams will engage with rights holders to develop detailed plans for the First Nations‑led, network of national and regional information governance centres (RIGCs) that was envisioned in the 2020 First Nations Data Governance Strategy (PDF), and will comprise the foundation on which that network will be established starting in Phase 2.
  • Stream 3: Strengthening Inuit Data Capacity ($4.0M): The objective of this stream is for Inuit, led by Inuit Tapiriit Kanatami (ITK), to develop an Inuit Data Strategy identifying their long-term data and data capacity needs. This work will align with and support the Inuit Nunangat Policy, and build upon ITK's 2018 National Inuit Strategy on Research (PDF), particularly Priority #4, which is "to ensure Inuit access, ownership, and control over data and information."
  • Stream 4: Strengthening Métis Nation Data Capacity ($4.0M): The objective of this stream is for the signatories to the Canada-Métis Nation Accord to develop Métis Nation data strategies identifying their long-term data and data capacity needs.
  • Stream 5: Engaging Statistics Canada to Support Indigenous Data Capacity ($13.0M): The objectives of this work stream are for Statistics Canada to support the Indigenous Delivery Partners in building Indigenous data capacity (as per streams 2–4), and to improve the visibility of Indigenous Peoples in Canada's national statistics.

Current Status

• The Transformational Approach to Indigenous Data is featured in the Federal Data Strategy that was released on April 19, 2023. The strategy also highlights "Support for Indigenous data sovereignty" as one of its five desired outcomes.
• The UN Declaration Act Action Plan (PDF) also includes support for Indigenous data sovereignty as cross-cutting priority.
• Contribution agreements are in place with Indigenous partners and each is progressing on its 3-year work plan for Phase 1 of the Transformational Approach to Indigenous Data.
• For the First Nations Information Governance Centre, the first phase of implementation started with the recruitment of First Nations-led Data Champion Teams – one in every region and at the national level – who will focus on the development of blueprints for their future centers prior to building them up in phase 2. These phase 1 blueprints will be for: the design of permanent, expert-driven regional data governance bodies, and the identification of data capacity building priorities.
  • At the national level, the Data Champion Team has begun to engage First Nations-led partner organizations to identify their priority needs as future users of the network, as well as to establish new collaboration frameworks with key federal departments, including with respect to data governance, access to First Nations data, data sharing and data transition.
• Inuit Tapiriit Kanatami has made significant progress on its milestones, including scoping activities and baseline data needs assessments for ITK itself and the Inuit Treaty Organizations. ITK's National Inuit Data Management Committee has been making progress on developing their data strategy and ITK has been working with the four regions on regional data planning initiatives.
• Regarding the Métis Nations, $3 million was allocated to the Métis National Council and its member organizations to support the development of a Métis Nation Data Strategy, and $1 million was allocated to the Manitoba Métis Federation to support the development of a Red River Métis Data Governance Strategy, which will identify their long-term data and data capacity needs. Following some delays in developing their proposals, Métis partners had established good momentum on implementing their work plans. The Métis National Council has created a technical Working Group to develop their data strategy.

If pressed about future phases of the Transformational Approach to Indigenous Data

• ISC recognizes that supporting Indigenous data sovereignty and capacity is critical to successful service transfer and to supporting the exercise of Indigenous jurisdiction. Things like the UNDA Action Plan and the Federal Data Strategy demonstrate that this is a whole-of-government priority linked to Indigenous self-determination and nation-to-nation relationships.
• ISC looks forward to supporting First Nations, Inuit, and Métis Nations as they develop their respective visions for data sovereignty.

Key Messages

• ISC recognizes that one key to addressing longstanding data gaps related to Indigenous Peoples is to support First Nations, Inuit, and Métis to collect, hold, and manage their own data.
• Indigenous survey data is better if the surveys are Indigenous led. By promising greater cultural relevance of the questions and more culturally competent data collection and management processes, Indigenous-led surveys can achieve better data quality and ultimately empower Indigenous Peoples to tell their own stories based on their unique world views, and to design and deliver effective programs, policies, and services.
• ISC funds several major Indigenous-led surveys, including the First Nations Regional Social Survey, which has been led since 2011 by the First Nations Information Governance Centre, in compliance with the First Nations principles of OCAP^®.
• It is incumbent upon the department to not only support Indigenous-led surveys, but to use the evidence they provide to guide our own decision-making. Doing this means working with Indigenous partners to access these data, and ensure we use them in a respectful and culturally competent way.

Background

Current Status

• 2023–24 constitutes year three of the current five year survey cycle, based on the theme "Children and Families."
• Statistics Canada completed collection of the 2022 Indigenous Peoples Survey in March 2023 for First Nations living off reserve, Inuit and Métis; and are currently working with the federal funding partners on the design of the data and research products that will be released starting in summer 2024.
• The First Nations Information Governance Centre is currently designing the on-reserve survey, with plans to go into the field in fall 2024.
• Statistics Canada and the First Nations Information Governance Centre continue to collaborate on various technical dimensions of their respective surveys to share best practices and troubleshoot potential issues, particularly with respect to challenges to data collection in the COVID–19 context.
• Work has begun to determine a theme for the seventh survey cycle beginning in 2027. Federal funding partners are conducting internal engagement within their respective departments to solicit input on a theme.

Key Messages

• ISC's vision is to support and empower Indigenous peoples to independently deliver services and address the socio-economic conditions in their communities.
• The environment in which ISC operates is shaped by a variety of factors that influence its current and future delivery of services including the expressed needs of our Indigenous partners, our support for Indigenous self-determination, and the transfer of responsibilities and jurisdiction to Indigenous partners.
• Supporting Indigenous data sovereignty and capacity is critical to successful service transfer and to supporting the exercise of Indigenous jurisdiction.
• ISC has taken steps towards better program alignment, expenditure management and reporting on results. Through the new 2023–24 Departmental Results Framework (DRF), ISC's reporting structure moves to a single Core Responsibility that focuses more on Indigenous Well-Being and Self-Determination than on more operational results relating to service delivery.
• Through greater engagement with stakeholders we hope to harmonize the Department's performance frameworks, including those at the level of our programs, with the priorities of our Indigenous partners.
• The departmental will, over time, move away from departmental results in the traditional sense of program outcomes to indicators in the context of mutual accountability, while supporting efforts to build capacity in First Nations to collect and analyze the outcomes of their programs.

Background & Current Status

• The Department is pursuing engagement opportunities at the program level with the aim of aligning program results with the needs, priorities and shared outcomes of our Indigenous partners, as well as reducing reporting burden and leveraging and improving on other available data sources. To this end, ISC program representatives have been working, and will continue to work, with Partners to inform its performance frameworks, including their results, performance indicators and targets, for a number of our programs, including in the areas of Child and Family Services, and Urban Programming for Indigenous Peoples.
• ISC has also proposed the development of a First Nation Child, Young People and Families Index in collaboration with experts from the Institute for Fiscal Studies and Development (IFSD), Nishnawbe Aski Nation (NAN), the First Nations Information Governance Centre (FNIGC), the National Advisory Committee on Child and Family Services (NAC), First Nations Health Authority (FNHA), and others who may be able to support in this effort. ISC hopes this approach would lead to clearer objectives, better collaboration, streamlined reporting and data collection processes, and address some of the structural drivers underlying the over-representation of First Nations children in care.
• In addition to the context above, other activities and opportunities to move the department along the continuum of service towards service transfer leveraging performance measurement and data are outlined below.
  • There have been several calls for a comprehensive set of national-level indicators to track improvements in the well-being of First Nations. ISC is working with the Assembly of First Nations and First Nations to develop a National Outcome-Based Framework that would measure the closure of socio-economic gaps between First Nations and non-Indigenous Canadians.
  • Statistics Canada distinctions based survey and census data, including the Indigenous Peoples Survey, can provide important insights on socio-economic gaps. (See details in Annex A: Summary of Status of Socio-Economic Gaps).
  • Both the United Nations Declaration Act Action Plan and the Federal Data Strategy highlight the importance of supporting Indigenous data sovereignty as a whole-of-government priority. In alignment with Canada's commitments under the United Nations Declaration on the Rights of Indigenous Peoples Act, Indigenous Services Canada's commitment to service transfer, the Transformational Approach to Indigenous Data focuses on advancing Indigenous data capacity to support the inherent strengths, resilience, and knowledge systems of Indigenous Peoples as a foundational component of Indigenous self-determination (See Annex B: Supporting Indigenous-led statistical institutions).
  • Indigenous survey data is better if the surveys are Indigenous led. By promising greater cultural relevance of the questions and more culturally competent data collection and management processes, Indigenous-led surveys can achieve better data quality and ultimately empower Indigenous Peoples to tell their own stories based on their unique world views, and to design and deliver effective programs, policies, and services. (See Annex C: Supporting Indigenous-led Surveys: The Surveys on Indigenous Peoples)
  • ISC First Nation and Inuit health Branch (FNIHB) financially supports two national health surveys: (1) the First Nations Regional Health Survey (RHS), which is managed and conducted by the First Nations Information Governance Centre ($24.5M over 5 years), and (2) Qanuippitaa? National Inuit Health Survey (QNIHS) which is managed and conducted by Inuit Tapiriit Kanatami and the four Inuit Land Claim Organizations ($41M over 5 years). FNIHB draws heavily on RHS results for evidence-based program planning and policy development as well as for departmental reporting commitments.