The Path to Self-Government

The challenge faced at the start of the so-called “taking charge” period (1970s) was huge. In addition to changing the direction of education, virtually everything had to be built or rebuilt: consolidation of Indigenous political bodies, negotiation of agreements for transferring responsibility for such complex areas as health care, social services, public safety, economic development, land administration, and much more. There was a public service to be organized, numerous bodies to be set up and, especially, staff to be trained. 

For the Cree and Inuit in particular, the signing of the JBNQA brought significant upheaval while speeding up the creation of important regional authorities. The Cree Regional Authority, the Cree School Board and the Cree Board of Health and Social Services were all established by the JBNQA. In 2014, there was paradigm shift in relations after the Québec government repealed the Act respecting the Cree Regional Authority and replaced it with the Act respecting the Cree Nation Government. Another significant development occurred on June 17, 2017, when the Government of Canada and the Crees of Eeyou Istchee signed the Agreement on Cree Nation Governance. The agreement, given effect by the Cree Nation of Eeyou Istchee Governance Agreement Act (S.C. 2018, c. 4, s. 1), allows the Cree Nation Government to make its own laws rather than have its nine member communities simply pass by-laws, which means that Cree laws no longer have to be submitted to the Minister of Indigenous Affairs. It also allows the Cree Nation Government to collect taxes from Cree beneficiaries of the JBNQA.

For the Inuit, the JBNQA established the Kativik Regional Government, the Kativik School Board and the Nunavik Regional Board of Health and Social Services. Other organizations of similar importance were subsequently created, including the Avataq Cultural Institute, which has built a solid reputation since its inception in 1980. 

Despite this progress in matters of self-government, unity among the Inuit people was far from a given. In 1974, during negotiations of the draft JBNQA, the Inuit of Puvirnituq and Ivujivik and part of the population of Salluit created the Inuit Tunngavingat Nunamini (ITN), a dissident association that rejected the JBNQA, particularly the provisions “extinguishing Aboriginal title.” However, a dialogue opened in 1983, when representatives of the Inuit who signed the JNBQA and representatives of the Inuit who opposed it were invited to a parliamentary commission in Québec City to express their opinions. “During the meeting, Elyassie Sallualuk, the ITN representative, asked Premier René Lévesque whether the door was still open for negotiation of Inuit self-government.” (see Hervé 2016) Lévesque agreed to continue negotiations on the condition that the two sides settle their differences and present a common proposal. In January 1984, during a meeting in Puvirnituq, representatives of Makivik Corporation and the ITN discussed the terms of their collaboration with a view to creating a regional government. (Idem.) 

In the ensuing decades, intense talks led to: the establishment of the Nunavik Constitutional Committee in 1987 and a draft constitution; the establishment, in 1997, of the Nunavik Commission, composed of representatives of Nunavik and the governments of Québec and Canada; the holding of public hearings and submission of a report; extensive negotiations between the parties; an agreement in principle, signed in 2007; and a referendum in 2011 on the creation of a regional government. According to professor Caroline Hervé, contrary to all expectations, the Inuit unequivocally voted against the final agreement in principle on April 27, 2011. (Idem.)

Despite the dashed hopes, discussions on Inuit self-determination shifted to the key and crucial role of the Inuit and their institutions in Nunavik’s development, particularly its economic development. This new direction in discussions became imperative in May 2011, after then Premier Jean Charest announced the Plan Nord. In a powerful gesture of affirmation, Inuit organizations immediately responded to the announcement with the tabling of the Plan Nunavik, which set out the Nunavimmiut’s priorities for the next 25 years. As explained by Professor Hervé, consultations held in the Inuit villages in 2013 led to the 2015 Nunavik Inuit Declaration, which asserted the Inuit’s desire to be actors in their own development and create a new governance structure in Nunavik that would ensure that their relationship with the governments of Québec and Canada is based on equality. (Idem.)