In The Journey Together,
the Ontario government committed to “engage with Indigenous partners on
approaches to enhance participation in the resource sector by improving the way
resource benefits are shared.” To honour that commitment, there were a series
of negotiations held in August and early fall 2016 that were intended to
improve resource benefits sharing. Those talks resulted in a MOU signed in
October 2016, which has the intention of operationalizing the Political Accord
(2015).
The basic idea of Resource
Revenue Sharing (RRS) is that governments collect revenue from natural
resources in the form of royalties, and that since the resources are taken from
First Nation traditional territory some of the revenue collected is shared with
First Nations. However, operationalizing this simple concept is extremely
difficult. For one, the words 1) resource, 2) revenue, and 3) sharing are all
contested.
There is an important
difference between Resource Revenue Sharing (RRS) and Resource Benefits Sharing
(RBS). On the one hand, RRS is the sharing of provincial crown source revenues
from resource development projects. On the other, RBS is broader, and can
include sharing in revenue, professional development opportunities,
collaboration, control over resources, and input over decision making.
Currently there is no policy or legislation whereby First
Nation communities in Ontario receive any portion of government resource
revenue. Instead, the arrangements that do exist are ad hoc and project
specific. The most significant current example of RRS is in the Ring of Fire,
where Matawa First Nation Management has entered into a RRS agreement. Entering
into Resource Revenue Sharing (RRS) agreements with the government could be a
fair and equitable way to distribute the wealth. The money would benefit
communities and is one way of supporting self-governance and could help in the
self-determination efforts of communities by allowing them to fund initiatives
to create long-term wealth and sustained opportunities.
Ontario collects revenue from four basic sources:
tax, royalties, fees and permits, and sales and rentals. The accompanying chart
shows the funding levels from 2010. One area of concern is that Ontario
collects by far the least revenue for natural resources because of tax breaks
to resource development corporations, so the pool of resource revenue is
smaller than in other provinces.
Ontario and First Nations
have been working on determining RRS/RBS since 2005, with efforts advancing
more quickly after the Ipperwash Inquiry Report (2008) mandated the province to
share in the benefits of resource extraction. In 2010/11 discussions, RRC
became a joint priority between First Nations and the province. Through these
discussions, a proposal was brought to the AOCC for consideration, and it was
ultimately rejected. Taking the lead from this decision at the AOCC, the
province has since engaged in discussions at the local level, and on a
sector-specific basis.
While there were many
reasons that the Chiefs in Assembly rejected the proposal, key themes were:
- Amount - the province offered 5.5%
of resource revenue, while many First Nations peoples did not believe
equal sharing could be below 50%.
- Scope - First Nations wanted a wider
RBS agreement, rather than the narrow RRS agreement that was proposed.
- Process - The proposed agreement
was province-wide, while many felt that a regional, treaty-based approach
to RRS/RBS was appropriate. Furthermore, the Federal government had to be
at the table because of the treaty relationships between First Nations and
the Crown.
Complicating this further
is a question of what constitutes a “resource.” Traditionally RRS or RBS
agreements have focused on mining, forestry, or other related sectors. In other
words, a resource is a thing that individuals take from the earth for profit.
But what about other ways that the province collects revenue? What of carbon
offset sales – the province collects money at auction, and as of now that is
not considered a resource.
Currently MIRR, COO, and
PTOs are working on finding ways to take the framework from the fall and
implement it, but there is little publicly available information. Exploratory
discussions on Resource Revenue Sharing (RSS) in the fall of 2016 focused on
potential principles that would ultimately inform RRS agreements. Some of these
principles included meaningful sharing reflective of government-to-government
relationship, that any agreement does not override the Duty to Consult, that it
does not interfere with private sector partnerships, and that it will not limit
other government funding options.
There are also two RRS
pilot projects related to forest management in Northern Ontario, with
agreements in place between eight First Nations (12 were invited to
participate). This project was seen as a venue to test ideas, built trust,
and consider longer-term opportunities, all with the limited risk of a
short term and non binding agreement. While this project was generally
successful, the revenue from forest-sector alone fell short of First Nation
expectations, and the relationships between First Nations were more complex
than the government staff anticipated.
COO is working with Ontario
to develop improved RRS/RBS arrangements using the lessons learned from the
rejected 2010 proposal and the recent pilot projects. A meeting is scheduled for
the fall of 2017 where COO is proposing that a tripartite table be established
to determine the best path forward.
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