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Making space for reconciliation
in Canada's planning system
by
Lindsay Galbraith
Darwin College
University of Cambridge
Master of Arts, Simon Fraser University, 2005
Bachelor of Arts, The University of Western Ontario, 2002
THIS DISSERTATION IS SUBMITTED FOR
THE DEGREE OF DOCTOR OF PHILOSOPHY
In the Department of Geography
September 2014
PREFACE
PREFACE
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ACKNOWLEDGEMENTS
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iGALBRAITH
ABSTRACT
ABSTRACT
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Making space for reconciliation in Canada's planning system ii
ABSTRACT
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iii GALBRAITH
TABLE OF CONTENTS
TABLE OF CONTENTS
Table of Contents
PREFACE................................................................................................................................i
ACKNOWLEDGEMENTS....................................................................................................... i
ABSTRACT.............................................................................................................................ii
TABLE OF CONTENTS.........................................................................................................iv
CHAPTER 1. INTRODUCTION............................................................................................. 1
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CHAPTER 2. LOCATING DECISION SPACES...................................................................13
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CHAPTER 3. MECHANISMS OF PLANNING CHANGE.................................................... 51
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Making space for reconciliation in Canada's planning system iv
TABLE OF CONTENTS
CHAPTER 4. CASE STUDY RESEARCH AND HAIDA GWAII...........................................82
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CHAPTER 5. REMAKING PLANNING SPACE ................................................................ 112
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CHAPTER 6. BETWEEN POLITICS AND PREDICTION FOR A PIPELINE ...................143
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CHAPTER 7. ON THE LIMITS TO RECONCILIATION IN PLANNING.............................178
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vGALBRAITH
TABLE OF CONTENTS
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CHAPTER 8. CONCLUSIONS AND REFLECTIONS.......................................................218
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BIBLIOGRAPHY................................................................................................................ 240
APPENDICES.................................................................................................................... 273
APPENDIX A. THE PATH TO A RESEARCH DESIGN.....................................................274
APPENDIX B. THE 'PROBLEM' WITH RESEARCH.........................................................276
APPENDIX C. PRELIMINARY INTERVIEW GUIDE......................................................... 280
APPENDIX D. CHRONOLOGY AND DESCRIPTION OF KEY EVENTS.........................282
APPENDIX E. OFFSHORE OIL GOVERNANCE TIMELINE............................................ 286
APPENDIX F. HISTORY OF ENVIRONMENTAL ASSESSMENT IN CANADA................289
Making space for reconciliation in Canada's planning system vi
TABLE OF CONTENTS
Illustration Index
I..-$)(*)#+,%OT%C*#&*%F2*##%.+4*)#+,%0*8:::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::: N
I..-$)(*)#+,%NT%!"'%F+D'(,0',)%+/%R*,*&*S$%4+,$-.)*)#+,%*,&%*44+00+&*)#+,%8(+4'$$%:::::::::::::::d
I..-$)(*)#+,%cT%I,&#*,%P'$'(D'$%2#)"%+.&%D#..*5'%,*0'$%*,&%0+&'(,%$')).'0',)$::::::::::::::::::::::::OOa
I..-$)(*)#+,%fT%e+4*)#+,$%2"'('%0+&'(,%8.*,,#,5%('5#0'$%*88.1%+,%C*#&*%F2*##%:::::::::::::::::::::: ONa
I..-$)(*)#+,%`T%M,6(#&5'%8(+B'4)%.+4*)#+,%0*8%#,%('.*)#+,%)+%C*#&*%F2*##:::::::::::::::::::::::::::::::::::::::: Ofd
I..-$)(*)#+,%aT%J#5,$%'('4)'&%6'/+('%@*,'.%*((#D'&%/+(%+(*.%"'*(#,5$%+,%C*#&*%F2*##:%::::::::::::::::OaO
I..-$)(*)#+,%dT%@*,'.%8(+4''&#,5$%#,%C*#&*%F2*##::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::: OaN
vii GALBRAITH
TABLE OF CONTENTS
Index of Tables
!*6.'%O:%M,D#(+,0',)*.%#08*4)%*$$'$$0',)%4(#)#<-'$%('.*)'&%)+%L6+(#5#,*.%(#5")$%#,%R*,*&*%: a>
!*6.'%N:%P'$'*(4"%)*$3$?%G4)+6'(%N>>b%)+%Q-.1%N>Oc::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::: O>>
!*6.'%c:%e#$)%+/%('$'*(4"%8*()#4#8*,)$:::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::: O>N
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R(+2,::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::::: Nbc
Making space for reconciliation in Canada's planning system viii
CHAPTER 1. INTRODUCTION
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The Crown's laws on reconciliation
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Consultation spectrum
Weak claim – No serious impact
•provide adequate notice
•disclose relevant information
•discuss issues raised in response to notice
Strong claim – Serious adverse impact
•exchange information
•correspondence
•meetings
•visiting site
•researching
•studies
•opportunity to make submissions to the
decision maker
•provide written reasons
•determining accommodation, where
appropriate: seek to adjust project, develop
mitigating measures, consider changing
proposed activity, attach terms and
conditions to permit or authorization,
financial compensation, consider rejecting
proposal, etc.
Illustration 2: The Government of Canada's consultation and accommodation process
Adapted from INAC, 2011, p. 44
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Making space for reconciliation in Canada's planning system 12
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CHAPTER 2. LOCATING DECISION SPACES
Introduction
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&'8)"%4*$'$%+/%',D#(+,0',)*.%8.*,,#,5%#,%C*#&*%F2*##T%Z*[%*%4+X0*,*5'&%.*,&%-$'%&'4#$#+,%
8(+4'$$%*,&%Z6[%*%4+,D',)#+,*.%',D#(+,0',)*.%#08*4)%*$$'$$0',)%ZMIL[%8(+4'$$%)"*)%"*$%/*#(.1%
('4',).1%*&+8)'&%4+,$-.)*)#+,%*,&%*44+00+&*)#+,%8(+4'$$'$:%R+2'..%*,&%\.1,,%ZN>>a?%8:%d[%
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+88+()-,#)1%$)(-4)-('$%/+(%&'.#6'(*)#,5%*,&%4+,)'$)#,5%8+.#41%+6B'4)#D'$_%"+.&%)+5')"'(%,'2%
*..#*,4'$%*4(+$$%$8*4'_%*,&?%8(+D#&'%D'"#4.'$%/+(%'7'()#,5%.'D'(*5'%+D'(%)"'%8+.#)#4*.%8(+4'$$:%
!"'%*-)"+($%+//'(%*%$*08.'%<-'$)#+,%)+%5-#&'%)"#$%('$'*(4"%#,%)"'%&#('4)#+,%+/%$)*)'%('$4*.#,5?%
5+D'(,*,4'?%*,&%#08.'0',)*)#+,T%rU!V+%2"*)%'7)',)%*('%2#&'(%$"#/)$%#,%)"'%0+&'(,%$)*)'%*,&%
$4*.'$%+/%&'4#$#+,%0*3#,5%$-88+()#,5%+(%)"2*()#,5%'//'4)#D'%',D#(+,0',)*.%8+.#41%*,&%
8.*,,#,5^j%ZR+2'..%*,&%\.1,,?%N>>a?%8:%`Xa[:%\+..+2#,5%)"'%*-)"+(j$%.#,'%+/%('*$+,#,5?%)"#$%
<-'$)#+,%4*,%6'%('/(*0'&%)+%$-#)%)"'%*,*.1)#4*.%/+4-$%+/%)"#$%('$'*(4"%+,%('4+,4#.#*)#+,%#,%
8.*,,#,5T%!+%2"*)%'7)',)%*('%2#&'(%$"#/)$%#,%)"'%0+&'(,%$)*)'%*,&%$4*.'$%+/%&'4#$#+,%0*3#,5%
$-88+()#,5%+(%)"2*()#,5%'//'4)#D'%8(+4'$$'$%+/%('4+,4#.#*)#+,%#,%8.*,,#,5^%\+(%)"#$%('$'*(4"?%
)"'%/+4-$%+,%('4+,4#.#*)#+,%+/%)"'%('.*)#+,$"#8%6')2'',%I,',+-$%8'+8.'$%*,&%R*,*&#*,$%q%*%
8(+4'$$%)"*)%#$%#08.'0',)'&%61%$)*)'%#,%*%D'(1%$8'4#9#4%2*1%#,%8.*,,#,5%*,&%&'4#$#+,%8(+4'$$'$%
q%#$%D'(1%0-4"%)"'%4+,4'8)%.#,3#,5%8.*,,#,5%)++.$%*,&%0'4"*,#$0$%)+%2#&'(%&1,*0#4$:%!"'%
('$'*(4"%/+4-$%+,%('4+,4#.#*)#+,%#,%*%$#,5.'%.+4*.#)1?%C*#&*%F2*##?%,*((+2$%)"'%*,*.1)#4*.%/(*0'%
/-()"'(%)+%'7*0#,'%"+2%8.*,,#,5%8(*4)#4'$%#,%*%$#,5.'%.+4*.#)1%('.*)'%)+%r6(+*&'(%'D',)$%*,&%
/+(4'$j%ZR+7?%Obb=?%8:%c[:%!"'%/+4-$%+,%"+2%8(*4)#4'$%+8'(*)#,5%#,%+,'%8.*4'%0#5")%('.*)'%)+%
&1,*0#4$%6'1+,&%)"'%r.+4*.j%&#('4)$%-$%)+%)"'%8(+6.'0%+/%$4*.'_%*%4+,4'8)%2+D',%)"(+-5"+-)%
)"#$%4"*8)'(:%
13 GALBRAITH
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!"'('%*('%r*%5(+2#,5%,-06'(%+/%$4"+.*($%2"+%"*D'%('0*(3'&%+,%)"'%"'#5")','&%*))',)#+,%+/%
"#$)+(#4*.%2(+,5&+#,5%)"*)%4"*(*4)'(#g'$%+-(%8('$',)%0+0',)j%Z':5:%Y.*436-(,?%N>>d?%8:%aNO_%
Q'$$''?%N>ON_%J-,&*(?%N>>f[:%P'4+,4#.#*)#+,%#$%+,'%#&'*%)"*)%*))',&$%)+%)"'$'%2(+,5&+#,5$?%
2"#4"%*('%'78('$$'&%#,%R*,*&*%*$%r4+08'..#,5%4.*#0$j%+/%r$)+.',%.*,&$?%-,('4+5,#$'&%(#5")$?%
*,&%/+(4'&%*$$#0#.*)#+,j%)"*)%*('%D'(1%('5-.*(.1%6(+-5")%)+%5+D'(,0',)$%*,&%4+-()$%
ZY.*436-(,?%N>>d?%8:%aNO[:%!"'$'%4+08'..#,5%4.*#0$?%*$%2'..%*$%"#$)+(#4*.%'D',)$%*,&%8(+4'$$'$?%
"*D'%.'&%8(+D#,4#*.%*,&%/'&'(*.%5+D'(,0',)$%#,%R*,*&*%)+%'78.#4#).1%*&+8)%*,&%#08.'0',)%)"'%
8+.#41%#&'*%+/%('4+,4#.#*)#+,%Z#:':%@(+D#,4'%+/%YR?%N>O>_%I;LR?%N>OO[:%C+2'D'(?%#)%#$%2#&'.1%"'.&%
)"*)%)"'%$)*)'j$%#08.'0',)*)#+,%+/%)"#$%#&'*%&+'$%,+)%*4"#'D'%*,&%0*1%'D',%-,&'(0#,'%#)$%
+(#5#,*.%#,)',)%*,&%0'*,#,5%Z':5:%Y"*,&*(?%N>>f_%Y.*436-(,?%N>>d_%M5*,?%N>ON_%h+)*$3*?%
N>Oc[:%!"'$'%#&'*$%*('%&#$4-$$'&%*)%.',5)"%#,%)"'%,'7)%4"*8)'(:%]"*)%#$%'$$',)#*.%)+%3,+2%#,%
)"#$%4"*8)'(%#$%)"*)%)"'%8+.#41%#&'*%#$%.*(5'.1%#08.'0',)'&%)"(+-5"%)"'%8(*4)#4'%+/%4+,$-.)*)#+,%
*,&%*44+00+&*)#+,%)"*)%)*3'$%8.*4'%#,%',D#(+,0',)*.%8.*,,#,5%*,&%&'4#$#+,%8(+4'$$'$%ZI;LR?%
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+/%R*,*&*%&'4#$#+,?%)"'%)('*)1%,'5+)#*)#+,%8(+4'$$%2*$%D#'2'&%61%0*,1%*$%)"'%0+$)%/(-#)/-.%
D',-'%)+%8-($-'%('4+,4#.#*)#+,%+6B'4)#D'$%ZM5*,?%N>ON[:%I,%YR?%)"'%)('*)1%8(+4'$$%r2*$%
'$)*6.#$"'&%#,%)"'%Obb>$%)+%('$+.D'%)"'%.+,5X$)*,&#,5%&#$8-)'%6')2'',%L6+(#5#,*.%@'+8.'$%*,&%
)"'%R(+2,%+D'(%(#5")$%)+%.*,&?%*,&%)+%$')%+-)%)"'%)'(0$%/+(%L6+(#5#,*.%$'./X5+D'(,*,4'j%ZM5*,?%
N>ON?%8:%cbb[:%!+&*1?%8(+D#,4#*.%*,&%/'&'(*.%5+D'(,0',)%*5',4#'$?%('5-.*)+(1%*-)"+(#)#'$?%*,&%
&'4#$#+,X0*3'($?%*..%2#)"%4+08')#,5%*,&%+D'(.*88#,5%4.*#0$%)+%B-(#$)#+,%)"'0$'.D'$?%
/('<-',).1%-,&'()*3'%4+,$-.)*)#+,%*4)#D#)#'$%2"','D'(%*%.*(5'%8(+B'4)%#$%8(+8+$'&?%*,&%
&'.'5*)'%0*,1%*$8'4)$%+/%)"#$%8(+4'$$%)+%)"'%#,&-$)(1%8(+B'4)%8(+8+,',):%L$%$-4"?%)"'%8(*4)#4'$%
)"*)%)+5')"'(%4+,$)(-4)%)"'%8(+4'$$%+/%('4+,4#.#*)#+,%"*D'%&(*0*)#4*..1%4"*,5'&%+D'(%)"'%.*$)%
&'4*&'T%/(+0%)"'%8(*4)#4'%+/%)('*)1%,'5+)#*)#+,$%)+%)"'%8(*4)#4'%+/%4+,$-.)*)#+,%*,&%
*44+00+&*)#+,?%*,&%/(+0%*%.+,5%L6+(#5#,*.XR(+2,%,'5+)#*)#+,%8(+4'$$%)+%/*$)X8*4'&?%
#,&-$)(1X&(#D',%*-)"+(#g*)#+,%8(+4'$$%/+(%&'D'.+80',):%I,%+)"'(%2+(&$?%('4+,4#.#*)#+,%#$%
)*3#,5%8.*4'%#,%'D'(X4"*,5#,5%*,&%0'$$1%8.*,,#,5%*,&%('5-.*)+(1%r&'4#$#+,%$8*4'$j%ZR+2'..?%
N>>c[:%]"#.'%)"'%8(*4)#4'$%)"'0$'.D'$%0*1%6'%'7*0#,'&%#,%('.*)#+,%)+%)"'%&'9#,#)#+,$%+/%
('4+,4#.#*)#+,%8-)%/+()"%#,%)"'%$4"+.*($"#8%ZY.*436-(,?%N>>d[?%)"#$%('$'*(4"%#$%#,)'('$)'&%#,%
-,&'($)*,&#,5%('4+,4#.#*)#+,%61%'7*0#,#,5%"+2%&#//'(',)%&'4#$#+,%$8*4'$%$"*8'%('4+,4#.#*)#+,%
Making space for reconciliation in Canada's planning system 14
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<-'$)#+,?%4*,%+,.1%6'%-,&'($)++&%61%.++3#,5%*)%2#&'(%$"#/)$%#,%$)*)'%('$)(-4)-(#,5T%#)%#$%
'$$',)#*.%)+%4+,$#&'(%)"'%r/+(4'$%*,&%8(+4'$$'$%+8'(*)#,5%*)%+)"'(%$4*.'$%)+%$"*8'%
+88+()-,#)#'$%/+(?%*,&%4+,$)(*#,)$%+,?%.+4*.%*4)#+,%#,%&#D'($'%.+4*.#)#'$j:%I,%)"#$%2*1?%$4*.'%&+'$%
,+)%4+,$)(*#,%)"'%*,*.1$#$%)+%*,1%$#,5.'%$8*)#*.%r.'D'.j%6-)%+8'(*)'$%*$%+,'%+/%*%,-06'(%+/%$+4#*.%
4+,$)(-4)$%-$'&%61%8+.#)#4*.%*4)+($%)+%'7'()%8+2'(%#,%2*1$%)"*)%&+0#,*)'%*,&p+(%$-6D'()%)"#$%
2#&'(%&#*.'4)#4:%!"#$%4"*8)'(%2#..%4+,$#&'(%"+2%)"'%4+,4'8)$%+/%5+D'(,*,4'?%$4*.'?%*,&%8+2'(%
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2*1%#,%2"#4"%('4+,4#.#*)#+,%#$%#08.'0',)'&%)"(+-5"%8.*,,#,5%)++.$%*,&%0'4"*,#$0$%-$'&%#,%
)"'%.+4*.#)1%+/%C*#&*%F2*##:%
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$8*)#*.%&1,*0#4$%+/%8+2'(%*,&%8+.#)#4$%$"*8'%8.*,,#,5%*,&%8+.#41%4"*,5':%R+7j$%#&'*$%+,%
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0*1%*//'4)%)"'%8(+4'$$%+/%('4+,4#.#*)#+,:%!+%&+%)"#$%*,*.1)#4*.%2+(3?%*%"16(#&%$8*)#*.%0+&'.%+/%
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*4(+$$%r.'D'.$j%)+%('D'*.%"+2%.+4*.%',5*5'0',)%2#)"%8.*,,#,5%*//'4)$%)"'%6(+*&'(%('4+,4#.#*)#+,%
8(+4'$$:%!"#$%0+&'.?%"+2'D'(?%&+'$%,+)%8(+D#&'%#,$#5")$%+,%+)"'(%#08+()*,)%4"*(*4)'(#$)#4$%+/%
)"#$%8(+4'$$?%$-4"%*$%"+2%8+.#)#4*.%*4)+($%*,&%#,$)#)-)#+,$%',5*5'%2#)"%)"'$'%$8*4'$%#,%2*1$%
15 GALBRAITH
RCL@!MP%N:%eGRL!I;F%AMRIJIG;%J@LRMJ
)"*)%#,9.-',4'%)"'#(%/-,4)#+,%*$%+,'%+/%+88+()-,#)1%+(%+/%&+0#,*)#+,:%!"'%,'7)%4"*8)'(%2#..%
'7*0#,'%)"'$'%&1,*0#4$%)+%&'D'.+8%*%4+"'(',)%*,*.1)#4*.%/(*0'2+(3%/+(%6+)"%.+4*)#,5%*,&%
)(*4#,5%#08+()*,)%&'4#$#+,%$8*4'$%ZR"*8)'(%!2+[%*,&%4"*(*4)'(#g#,5%0'4"*,#$0$%+/%4"*,5'%
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)"'+(#'$%*,&%6+&#'$%+/%('$'*(4":%I,%)"#$%8(+4'$$?%)"'%/+..+2#,5%)"'+(')#4*.%8(+8+$#)#+,$%*('%
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O: @.*,,#,5%#$%*%4+,)'$)'&%$8*4'%)"*)%"*$%8*()#4-.*(%/-,4)#+,$%*,&%<-*.#)#'$%)"*)%.#0#)%#)$%
-)#.#)1%)+%$'(D'%*$%*%D',-'%/+(%('4+,4#.#*)#+,:%!"'%0+&'%+/%8.*,,#,5%#$%#,9.-',4'&%61%)"'%
+6B'4)$%#)%5+D'(,$%*,&%0*1%,+)%*.#5,%2#)"%5+*.$%+/%('4+,4#.#*)#+,:%%Z;+)*6.1?%#)%$'(D'$%)+%
5-#&'%&'4#$#+,$%-$#,5%'D#&',4'%*,&%+8#,#+,%*,&%*.$+%$'(D'$%*,%'78('$$.1%8+.#)#4*.%
/-,4)#+,:%I)%#$%4"*(*4)'(#g'&%61%#)$%-,'D',,'$$%*,&%D*.-'%4+,9.#4)$:[%
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)+%#08.'0',)%R*,*&*j$%('4+,4#.#*)#+,%8+.#41:%!"'%$8*4'%#$%4('*)'&%61%)"'%R(+2,%*,&?%$+?%
6'5#,$%+,%-,'D',%5(+-,&:%J'D'(*.%0'4"*,#$0$%+/%('4+,4#.#*)#+,%*('%*D*#.*6.'%#,%
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)+%8.*4'%)"*)%&#('4).1%4"*..',5'$%)"'%*88(+*4"%)+%#08.'0',)#,5%('4+,4#.#*)#+,%8+.#41%
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G,'%+/%)"'%9#($)%)*$3$%&'D'.+8#,5%)"#$%)"'+(')#4*.%/(*0'2+(3%#$%)"*)%+/%.+4*)#,5%$8*4'$%+/%
',5*5'0',)%)"*)%0*1%Z+(%0*1%,+)[%+//'(%+88+()-,#)#'$%/+(%4"*,5':%!"#$%4"*8)'(%.+4*)'$%)"'$'%
$8*4'$%2#)"#,%'7#$)#,5%)"'+(#'$%+/%8+2'(:%I)%#$%+(5*,#g'&%#,)+%)"(''%8*()$T%ZO[%*,%#,)(+&-4)#+,%
)+%)"'%�',$#+,$%+/%8+2'(%&(*2#,5%"'*D#.1%-8+,%J)'D',%e-3'$j%ZN>>`[%)"(''X�',$#+,*.%
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Making space for reconciliation in Canada's planning system 16
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$8*4'%/(+0%2"#4"%+88+()-,#)#'$%6'4+0'%*D*#.*6.'%2#)"#,%)"'%&+0#,*,)%8+.#)#4*.%$1$)'0:%I)%#$%
)"'+(#g'&%)"*)%',D#(+,0',)*.%8.*,,#,5%$8*4'$?%,+)*6.1%)"'%#08.'0',)*)#+,%+/%R*,*&*S$%
('4+,4#.#*)#+,%8+.#4#'$%2#)"#,%)"'$'%8.*,,#,5%$8*4'$?%+//'(%#08+()*,)%0-.)#X$4*.*(%*(',*$%/+(%
4+,9.#4)%6')2'',%D*.-'$%*,&%#,)'('$)$%)"*)%4*,?%#,%)-(,?%4('*)'%)"'$'%+88+()-,#)#'$:%!"#$%$'4)#+,%
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+)"'($j?%#)%0*1%6'%'7'(4#$'&%61%#,&#D#&-*.$?%5(+-8$?%*,&%#,$)#)-)#+,$%*,&%#$%r)"+-5")%)+%6'%)"'%
8('4+,&#)#+,%/+(%*4)#+,%6-)%*.$+%*$%#)$%+-)4+0'j%ZR*$)(''%')%*.:?%N>Oc[:%@+2'(%r4*,%6'%+D'()%+(%
4+D'()?%0*1%#,D+.D'%/+(4'%+(%4+'(4#+,s%U+(V%)"(+-5"%4+,$',)%+(%2#..s%U*,&V%0*1%6'%'78('$$'&%
)"(+-5"%*4)#+,$s%U+(V%&#$4+-($'j%ZR*$)(''%')%*.:?%N>Oc[:%Y'/+('%'7*0#,#,5%)"'%$8*)#*.%*$8'4)$%+/%
8+2'(%*,&%#)$%#08*4)%+,%8.*,,#,5?%$+0'%+/%)"'%/-,&*0',)*.%*(5-0',)$%*6+-)%)"'%�',$#+,$%
+/%8+2'(%*('%'7*0#,'&:%J)'D',%e-3'$j%0+$)%('4',)%'&#)#+,%ZN>>`[%+/%"#$%$'0#,*.%6++3?%@+2'(T%
L%P**.%k#'2?%+//'($%*%6(+*&%'7*0#,*)#+,%*,&%4(#)#<-'%+/%'7#$)#,5%)"'+(#'$%+/%8+2'(:%e-3'$j%
#&'*$%Z*,&%)"+$'%"'%*&+8)$%*,&%4(#)#<-'$[%8(+D#&'%)"'%/+-,&*)#+,$%/+(%*()#4-.*)#,5%)"'%
4+,&#)#+,$%-,&'(%2"#4"%8+2'(%#$%'78('$$'&?%2"#.'%*.$+%'08"*$#g#,5%)"'%#08+()*,4'%+/%
$)-&1#,5%+88+()-,#)#'$%/+(%'$4*8'%/(+0%r$-6+(&#,*)'%8+$#)#+,$%#,%"#'(*(4"#4*.%$1$)'0$j%+/%
8+2'(%Z8:%`>[:%!"'$'%/+-,&*)#+,*.%*(5-0',)$%8(+D'%)+%6'%-$'/-.%#,%#&',)#/1#,5%)"'%.+4*)#+,%+/%
r&'4#$#+,%$8*4'$j%ZR+2'..?%N>>c[%)"*)%*('%4(-4#*.%/+(%('8(+&-4#,5%*,&%8+)',)#*..1%-8$'))#,5%
8('D*#.#,5%8+.#4#'$%+/%('4+,4#.#*)#+,:%
e-3'$j%ZN>>`[%+,'X?%)2+X?%*,&%)"(''X�',$#+,*.%D#'2$%+/%8+2'(%"'.8%-$%)+%#&',)#/1%)"'%
4#(4-0$)*,4'$%)"(+-5"%2"#4"%2'%0*1%+6$'(D'%8+2'(:%!"'%+,'X�',$#+,*.%D#'2%('.#'$%-8+,%
'7#$)#,5%2+(3%+,%8.-(*.#$0%)"*)%$''$%8+2'(%*$%r&#$)(#6-)'&%8.-(*.#$)#4*..1j%*4(+$$%*%8+.#)#4*.%
$1$)'0:%M08#(#4*.%*,*.1$'$%('.1%-8+,%6.*)*,).1%+6$'(D*6.'%6'"*D#+-(%+D'(%&'4#$#+,$%)"*)%
#,D+.D'%*%&#$*5(''0',)%+(%4+,9.#4)%+D'(%#,)'('$)$?%'78('$$'&%*$%8+.#41%8('/'(',4'$%Z8:%Ob[:%!"'%
)2+X�',$#+,*.%D#'2%#$%*,%'78*,&'&%&'9#,#)#+,%+/%8+2'(%)"*)%5+'$%6'1+,&%r4+,4(')'%
17 GALBRAITH
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&'4#$#+,$j%)+%2"*)%#$%4*..'&%S0+6#.#g*)#+,%+/%6#*$j%ZY*4"(*4"%*,&%Y*(*)g?%ObaN?%8:%ObN_%e-3'$?%
N>>`?%8:%N>[:%I,%+)"'(%2+(&$?%8+2'(%*.$+%4+0'$%#,%)"'%/+(0%+/%4+'(4#+,?%#,9.-',4'?%*-)"+(#)1?%
/+(4'?%*,&%0*,#8-.*)#+,%*,&%#$%$"*8'&%61%'7#$)#,5%(-.'$%)"*)%r+8'(*)'%$1$)'0*)#4*..1%*,&%
4+,$#$)',).1%)+%)"'%6','9#)%+/%4'()*#,%8'($+,$%*,&%5(+-8$%*)%)"'%'78',$'%+/%+)"'($j%Z8:%NO[:%
W,.#3'%)"'%9#($)X�',$#+,%)"*)%/+4-$'$%+,%6.*)*,).1%+6$'(D*6.'%&'4#$#+,X0*3#,5?%)"'%$'4+,&X
�',$#+,%'7*0#,'$%)"'%(+.'%+/%S,+,&'4#$#+,X0*3#,5S%)+%'78*,&%)"'%6+-,&*(1%+/%2"*)%#$%
8+.#)#4*.:%e+4*)#,5%8+.#)#4*.%$8*4'$%#,%)"#$%)2+X�',$#+,*.%D#'2%6'4+0'$%8(+6.'0*)#4%6'4*-$'?%
*$%Y*4"(*,&%*,&%Y*(*)g%*(5-'?%,+,&'4#$#+,X0*3#,5%#$%,+)%6'"*D#+-(*.%*,&?%"',4'?%,+)%
+6$'(D*6.':%Y'4*-$'%+/%)"#$?%,+,&'4#$#+,X0*3#,5%#$%r6'1+,&%)"'%('*4"%+/%*%8+.#)#4*.%*,*.1$)j%Z8:%
Nf[:%
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&'4#$#+,%$8*4'$%)+%('D'*.%$+0')"#,5%*6+-)%8+.#41%4"*,5':%I)%*88'*($%*$%)"+-5"%$8*4'$%+/%
,+,&'4#$#+,X0*3#,5%*('%'<-*..1%*$%4(-4#*.%*$%&'4#$#+,%$8*4'$%2"',%$''3#,5%)+%+6$'(D'%8+2'(:%
C+2'D'(?%)"'%)2+X�',$#+,*.%D#'2%&+'$%,+)%+//'(%*,1%)++.$%/+(%+6$'(D#,5%)"#$%4(-4#*.%$8*4':%
e-3'$j%+(#5#,*.%4+,)(#6-)#+,%)+%8+.#)#4*.%)"+-5")%#$%)"#$%D'(1%$')%+/%)++.$%)"*)%"'%#,)(+&-4'$%#,%
"#$%)"(''X�',$#+,*.%D#'2:%!"#$%D#'2%#$%6*$'&%-8+,%)"'%+,'X%*,&%)2+X�',$#+,*.%D#'2$%
&'$4(#6'&%*6+D'%*,&%4(#)#<-'$%)"'%)2+X�',$#+,*.%)"'%D#'2%)"*)%4"*(*4)'(#g'$%,+,&'4#$#+,X
0*3#,5%*$%,+)%6*"*D#+-(*.%*,&%,+)%+6$'(D*6.':%J8'4#9#4*..1?%)"'%)"(''X�',$#+,*.%D#'2%+/%
8+2'(%#,D+.D'$T
ULV%4(#)#<-'%+/%)"'%6'"*D#+-(*.%/+4-$%+/%)"'%9#($)%)2+%D#'2$s%*,&%*..+2$%/+(%
4+,$#&'(*)#+,%+/%)"'%0*,1%2*1$%#,%2"#4"%8+)',)#*.%#$$-'$%*('%3'8)%+-)%+/%8+.#)#4$s%
U*,&V%4*,%+44-(%#,%)"'%*6$',4'%+/%*4)-*.?%+6$'(D*6.'%4+,9.#4)s%!"#$%8+)',)#*.%U/+(%
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4+,9.#4)%2"#4"%4+,$#$)$%#,%*%4+,)(*)#+,%6')2'',%)"'%#,)'('$)$%+/%)"+$'%'7'(4#$#,5%
8+2'(%*,&%)"'%('*.%#,)'('$)$%+/%)"+$'%)"'1%'74.-&'%Z8:%Nb[:%
e-3'$%&#$*5(''$%2#)"%)"'%#&'*%+/%r#,&#D#&-*.$%('*.#g#,5%)"'#(%2#..$%&'$8#)'%)"'%('$#$)*,4'%+/%
+)"'($S:%!"#$%#$%*%]'6'(#*,%,+)#+,%)"*)%)',&$%)+%+D'('08"*$#g'%)"'%8+2'(%+/%)"'%#,&#D#&-*.%
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)"*)%)"'%0+6#.#g*)#+,%+/%6#*$%4*,%+,.1%('$-.)%/(+0%r)"'%/+(0%+/%+(5*,#g*)#+,j?%&(*2#,5%/(+0%*%
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Making space for reconciliation in Canada's planning system 18
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,'5.'4)$%)+%4+,$#&'(%)"'%(+.'%+/%r*5(''0',)%6*$'&%-8+,%('*$+,j%2"',%0*,#8-.*)#+,%*,&%
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&'4#$#+,?%)"'%*,*.1$)%0*1%+6$'(D'%)"'%('*$+,#,5%6'"#,&%)"'%*5(''0',):%!"'%)2+X�',$#+,*.%
D#'2%*.$+%#5,+('$%)"'%8+$$#6#.#)1%+/%4+,&-4)#,5%'08#(#4*.%2+(3%+,%,+,&'4#$#+,X0*3#,5%q%+(%
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',)(1%#,)+%)"'%8+.#)#4*.%8(+4'$$j?%*,&%,+)%-,4+D'('&?%4+,$',$-$%#$%8('$-0'&%#,%)"'%)2+X
�',$#+,*.%D#'2%+/%8+2'(%Z8:%N=[:%!"#$%#5,+('$%*%/-,&*0',)*..1%#08+()*,)%�',$#+,%+/%
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$"*8#,5%)"'#(%8'(4'8)#+,$?%4+5,#)#+,$%*,&%8('/'(',4'$s%)"'1%4*,%$''%+(%#0*5#,'%,+%
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)"*)%4+,)#,-'%)+%+44-81%)"'%4-.)-('?%6'"*D#+-(?%*,&%*))#)-&'$%+/%*%&#$)#,4)%8'+8.'%ZL./('&?%
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)+%2+(3%61%F(*0$4#%ZObdO[%2"+%'7*0#,'$%)"'%&#//'(',4'%6')2'',%)"+-5")%*,&%*4)#+,?%2"'('%
+,'%#$%r*/9#(0'&%#,%2+(&$%*,&%)"'%+)"'(%&#$8.*1'&%#,%*4)#+,j%Ze-3'$?%N>>`?%8:%fb[:%
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*,&%$+0')#0'$%'D',%)"#,3#,5:%C',4'%2'%$"+-.&%'7*0#,'%"+2%8'+8.'%('*4)%)+%
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F(*0$4#S$%)"'+(1%+/%"'5'0+,1%#$%)#'&%)+%"#$%4+,4'8)#+,%+/%)"'%$)*)'?%2"#4"%#$%-,&'($)++&%)+%6'%
4+08+$'&%+/%6+)"%8+.#)#4*.%$+4#')1%Z*(',*$%4+,)(+..'&%61%8+.#)#4*.%*,&%.'5*.%#,$)#)-)#+,$[%*,&%
4#D#.%$+4#')1%Z/*0#.1?%-,#+,$?%')4:[:%!"+$'%#,%4+,)(+.%0*#,)*#,%4+,)(+.%61%5#D#,5%#,%)+%4'()*#,%
&'0*,&$%+/%4#D#.%$+4#')1:%R#D#.%$+4#')1%#$%4+,D#,4'&%)"*)%)"'%#&'*$%+/%)"'%&+0#,*,)%5(+-8$%2#..%
*.$+%6','9#)%$-6+(&#,*)'%5(+-8$:%I,%)"#$%2*1?%&+0#,*)#+,%+44-($%)"(+-5"%4+00+,%$',$'%q%
4-.)-(*.%"'5'0+,1%'7#$)$%#,%)"'%r('*.0%+/%0'*,#,5%(*)"'(%)"*,%#,%)"'%/+(0*.%8+.#)#4*.%*(',*j%
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19 GALBRAITH
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2'%#,4.-&'%#,%+-(%'7*0#,*)#+,%#/%,+)%)"'%/+(0*.%&'4#$#+,%+-)4+0'^%%
!"'%9#($)%<-'$)#+,%#$%'7*0#,'&%/-()"'(%#,%.#5")%+/%.#)'(*)-('%+,%$8*)#*.%'.'0',)$%+/%8+2'(:%
J8'4#9#4*..1?%$4*.*(%8+.#)#4$%*,&%R+7j$%ZObb=[%,+)#+,%+/%r$8*4'$%+/%',5*5'0',)j%+//'(%$)(+,5%
/+-,&*)#+,$%/(+0%2"#4"%)+%6-#.&:%J4*.*(%8+.#)#4$%6'5#,$%61%9#($)%4"*..',5#,5%)"'%$8*)#*.%
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8+.#41%#&'*$%+,%('4+,4#.#*)#+,%#,%R*,*&*%*('%',/+(4'&%*,&%4"*..',5'&:%!"'%,'7)%4"*8)'(?%
R"*8)'(%!"(''?%4+,$#&'($%)"'%$'4+,&%$')%+/%<-'$)#+,$%q%"+2%0'*,#,5%#$%'78('$$'&?%#,)'(8(')'&%
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*,&%$8*4'%ZE*($)+,%')%*.:?%N>>`[%)"*)%('.1%-8+,%)(*&#)#+,*.%&'9#,#)#+,$%+/%5'+5(*8"#4%$4*.'?%
r('/'((#,5%)+%)"'%,'$)'&%"#'(*(4"1%+/%6+-,&'&%$8*4'$%+/%&#//'(#,5%$#g'%$-4"%*$%.+4*.?%('5#+,*.?%
,*)#+,*.%*,&%5.+6*.j%ZA'.*,1%*,&%e'#),'(?%Obbd?%8:%bf[:%E*,1%5'+5(*8"'($%*&+8)%)"'$'%#&'*$%
)+&*1%*,&%8.*4'%)"'%,*)#+,X$)*)'%*$%)"'%r8(#0*(1%5'+5(*8"#4*.%4+,)*#,'(%/+(%$+4#')1j%ZL5,'2?%
Making space for reconciliation in Canada's planning system 20
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)"'%0+('%,-*,4'&%*,&%4+,$)(-4)'&%,+)#+,$%+/%$4*.'%*,&%$4*.*(%8+.#)#4$?%,')2+(3$%*,&%
6+-,&*(#'$?%*,&%)+8+.+5#4*.%r('*4"j:%E+('%('4',)%&'6*)'$%+,%$4*.'%#,%"-0*,%5'+5(*8"1%('B'4)%
)"'$'%9#7'&%,+)#+,$%/+(%2"*)%r"*$%6'4+0'%*,%*44'8)'&%)(-#$0%2#)"#,%"-0*,%5'+5(*8"1%)"*)%
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+,)+.+51j%)"*)%&#$4*(&$%$4*.'%',)#('.1:%Q+",%L..',%#,)(+&-4'$%*%)"#(&%$8*)#*.%4+,9#5-(*)#+,%+/%
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21 GALBRAITH
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$4*.':%I,%)"#$%D#'2?%8+.#4#'$%4+,$)(-4)'&%*)%"#5"'(%+(&'(%$4*.'$%Z':5:%)"'%$)*)'[%*('%)2'*3'&%)+%
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ZN>>O[%8+#,)%+-)%)"*)%)"'%$8*)#*.%$)(-4)-('%)"*)%4+08+$'$%)"'%$)*)'%)',&$%)+%6'%)"'%0+('%
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$#,5.'%,'$)'&%$4*.*(%"#'(*(4"1%+(%r*,%*6$+.-)'%81(*0#&%+/%,'*).1%#,)'(X.+43#,5%$4*.'$j?%6-)%
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Making space for reconciliation in Canada's planning system 22
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)"'$'%$8*4'$%',*6.'%+(%4+,$)(*#,%+88+()-,#)#'$%)+%('&'9#,'%)"'%#&'*%+/%('4+,4#.#*)#+,%#,%2*1$%
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+/%4'()*#,%$+4#*.%('.*)#+,$:%F','(*..1?%)"'%$+4#*.%('.*)#+,$%)"*)%)*3'%8.*4'%#,%$8*4'$%+/%
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$',$'%+/%$#5,#9#4*,4':%J8*4'$%+/%',5*5'0',)?%+,%)"'%+)"'(%"*,&?%*..+2%*4)+($%*,&%#,$)#)-)#+,$%
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23 GALBRAITH
RCL@!MP%N:%eGRL!I;F%AMRIJIG;%J@LRMJ
&'8',&',4':%W$#,5%)"'$'%#&'*$?%2'%4*,%$*1%)"*)%I,',+-$%4+00-,#)#'$%+8'(*)'%2#)"#,%
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+/%&'8',&',4'%q%*('%$'4-('&%)"(+-5"%*%('.*)#D'.1%/('<-',)%#,)'(*4)#+,%2#)"%)"'%$)*)'%#,%$8*4'$%
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I,',+-$%8'+8.'$%4('*)'$%-,#<-'%$8*)#*.%',4+-,)'($%2#)"%)"'%$)*)':%
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4+,$-.)*)#+,%2#)"%)"'%R(+2,%*,&%)"'%)('*)1%,'5+)#*)#+,%8(+4'$$?%*('%*D*#.*6.'%'78('$$.1%
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Making space for reconciliation in Canada's planning system 24
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4+00*,&%+/%('$+-(4'$%4(#)#4*.%)+%)"'0:%I)%#$%)"#$%,')2+(3%2"#4"%&'9#,'$%2"*)%I%)'(0'&%
'*(.#'(%*%$8*4'%+/%',5*5'0',)%Z8:%c[:%
!"'%0+&'.%8(+D#&'$%*%-$'/-.%('.*)#+,*.%/(*0'2+(3%2"'('%)'((#)+(#*.%#,)'('$)$%0*1%+D'(.*8%
2#)"%2#&'(%$1$)'0$%+/%5+D'(,*,4'%#,%2*1$%)"*)%"*D'%8*()#4-.*(%$4*.#,5%'//'4)$?%$-4"%*$%)"'%
8(+&-4)#+,%+/%-,'D',%8+2'(%+(%4+,)(+.%*4(+$$%*,&%+D'(%)'((#)+(1:%!"'$'%#&'*$%"'.8%)+%
4"*(*4)'(#g'%)"'%)#'$%)"*)%6#,&%5+D'(,*,4'%+/%,*)-(*.%('$+-(4'$%2#)"%L6+(#5#,*.%(#5")$%*,&%)"'%
('$-.)#,5%$4*.*(%4+,9#5-(*)#+,$:%I,&''&?%)"'$'%(#5")$%"*D'%#,9.-',4'%+D'(%)"'%*6#.#)1%+/%)"'%
R(+2,%)+%"+.&%4+00*,&%+D'(%4(#)#4*.%('$+-(4'%$'4)+($%.#3'%+#.%*,&%5*$%*,&%('.*)'&%
#,/(*$)(-4)-(':
Y'/+('%/+4-$#,5%)"'$'%#&'*$%/-()"'(?%*%6(#'/%'7*0#,*)#+,%+/%)2+%*(5-0',)$%)"*)%('B'4)%$4*.*(%
$8*)#*.%*((*,5'0',)$%*('%'7*0#,'&:%!"'$'%#&'*$%"*D'%6'',%#,9.-',)#*.%#,%)"'%.#)'(*)-('%+,%
$4*.*(%8+.#)#4$?%6-)%*('%/+(0*..1%('B'4)'&%#,%)"#$%4"*8)'(%/+(%('*$+,$%'78.*#,'&%6'.+2:%R+7j$%
#&'*$%*('%)*3',%-8%*5*#,%.*)'(%#,%)"#$%4"*8)'(%*.+,5%2#)"%+)"'(%)"'+(')#4*.%*,&%'08#(#4*.%2+(3%
+,%$4*.*(%8+.#)#4$%#,%&'/',$'%+/%)"'%-)#.#)1%+/%$4*.'$%*,&%('.*)#+,*.%4+,4'8)#+,$%+/%8.*4'%*,&%
)'((#)+(1:%
The end of scale?
P'.*)#+,*.%+(%,')2+(3'&%4+,9#5-(*)#+,$%"*D'%"*&%#,4('*$#,5%#08+()*,4'%#,%$)-&#'$%+/%)"'%
8+.#)#4*.%#,%*%2*1%)"*)%"*$?%*(5-*6.1?%$-8'($'&'&%$4*.'%*$%)"'%0+$)%#08+()*,)%$8*)#*.%
25 GALBRAITH
RCL@!MP%N:%eGRL!I;F%AMRIJIG;%J@LRMJ
4+,9#5-(*)#+,%ZY+7%N:O[:%E*($)+,%')%*.:%ZN>>`[%"*$%5+,'%$+%/*(%*$%)+%4*..%/+(%*,%+-)(#5")%
('B'4)#+,%+/%$4*.'%#,%/*D+-(%+/%*%9.*)%*,&%,')2+(3'&%*,*.1$#$?%2"#.'%L..',%ZN>>b[%('B'4)$%6+)"%
)+8+5(*8"#4*.%*44+-,)$%+/%$4*.'%*,&%,')2+(3$%#,%/*D+-(%+/%*%)+8+.+5#4*.%*44+-,):%M*4"%+/%)"'$'%
*(5-0',)$%2#..%6'%&#$4-$$'&%#,%)-(,:%
Box 2.1 The rise of network typologies for studying the political
Networks have been used to conceptualize the world in theories of lifeworlds (Simmel, 1950), structures of
social relations (Granovetter, 1973), as well as politics. In discussions over the shift from government to
governance, networks are the dominant spatial configuration (Hubbard et al., 2004). Networked typologies
have also gained influence in theories of policy change. The work of Heclo (Heclo, 1974) has influenced our
understanding of the policy process, replacing top-down models (e.g. Lasswell’s ‘policy stages model’) with
those that are more open to alternative spatial arrangements, including the role of the policy system in
constraining behaviour (Parry, 2003, p. 3). In this vein, drivers of policy change are no longer situated solely
within the closed sphere of the policy process or any single institution, but take place amongst networks of
non-state actors. Several network theories of policy change are well established in the literature (e.g. Haas,
1992; Hajer, 1995; McCann et al., 2011; Peck and Theodore, 2010; Rhodes, 1997; Smith, 2000).
Other theories and methodologies also provide insight into the rise in importance of networks for
understanding political dynamics, including: actor-network theory (Braun, 2001; Latour, 2005) that includes
human and non-human actors (or actants) in networks on equal terms; the rise in importance the ‘network
society’ to conceptualize a new ‘information age’ (Castells, 1996); and social networks analysis (Scott,
2000) that can aims to quantitatively measure constraining and enabling network factors influencing
particular outcomes (Emirbayer, 1994).
R*$)(''%ZN>>f?%8:%Ocf_%*.$+%$''%J+0'(D#..'?%N>>`[%4"*(*4)'(#g'$%)"#$%'08#(#4*.%*,&%)"'+(')#4*.%
$8*)#*.%$"#/)%*2*1%/(+0%)"'%$)*)'%*,&%$4*.*(%4+,4'8)$%*$%*%r8*(*2*)#4%$"#/)j%/(+0%
)+8+5(*8"#4%4+,4'8)#+,$%+/%8.*4'%*,&%8+2'(%r)+2*(&$%('.*)#+,*.%+,'$j:%E*($)+,%')%*.:%ZN>>`[%
5+%/-()"'(%#,%)"'#(%#,9.-',)#*.%8*8'(%*(5-#,5%)"*)%$4*.'%0-$)%6'%('B'4)'&%*$%*%4+,4'8)%',)#('.1:%
!"'1%*(5-'%)"*)%"#'(*(4"#4*.%$4*.'%#$%r8+.#)#4*..1%('5('$$#D'j%#,%)"*)%#)%('8(+&-4'$%$8*)#*.%
#,'<-#)#'$%*,&%r&'X.#0#)U$V%',)(1%8+#,)$%#,)+%8+.#)#4$j%#,%*%2*1%)"*)%#$%,+)%"'.8/-.%Z8:%fNd_%E++('?%
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&#$4-($#D'.1?%*.)'(,*)'.1%('8('$',)#,5%)"'#(%8+$#)#+,%*$%5.+6*.%+(%.+4*.%)+%',"*,4'%)"'#(%
$)*,&#,5?%2'%0-$)%*.$+%*44'8)%)"*)%$4*.'%#)$'./%#$%*%('8('$',)*)#+,*.%)(+8'?%*%2*1%+/%
/(*0#,5%8+.#)#4*.X$8*)#*.#)1%)"*)%#,%)-(,%"*$%0*)'(#*.%'//'4)$:%
L$%E++('%ZN>>`?%8:%N>a[%'78.*#,$?%E*($)+,%')%*.:%r0*#,)*#,%)"*)%)"'%&+0#,*,)%)"'+(1%+/%$4*.'%#$%
*%D'()#4*.%*,&%"#'(*(4"#4*.%0+&'.j%"*D'%#08+()*,)%4+,4'8)-*.%9.*2$%#,%)"*)%#)%4('*)'$%*,%
-,$-88+()*6.'%&#$)#,4)#+,%6')2'',%$4*.'%*$%$#g'%*,&%$4*.'%*$%.'D'.%*,&%$')$%-8%*,%-,)',*6.'%
Making space for reconciliation in Canada's planning system 26
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$')%+/%0*4(+X0#4(+?%+(%.+4*.X5.+6*.?%6#,*(#'$:%]"*)%#$%0+$)%4+,D#,4#,5%*6+-)%)"#$%*(5-0',)%#$%
#)$%4(#)#<-'%+/%$4*.'%*$%*,%*,*.1)#4*.%)++.%X%&'.#,'*)#,5%*,%*,*.1$#$%-$#,5%*%8*()#4-.*(%$4*.':%G,'%
+/%)"'%0+$)%#08+()*,)%*$8'4)$%+/%)"'%2*1%$4*.'%#$%-$'&%61%$4#',)#$)$%+/%$8*4'%#$%)"*)%r0+$)%
'08#(#4*.%2+(3%#$%.*$"'&%)+%*%('.*)#D'.1%$0*..%,-06'(%+/%.'D'.$j%Z8:%fNN[:%!"'$'%*,*.1)#4*.%
6+-,&*(#'$%)',&%)+%'74.-&'%'08#(#4*.%'D#&',4'%*,&%8+)',)#*.%'78.*,*)#+,%*,&?%61%&+#,5%$+?%
'74.-&'%)"'%8+$$#6#.#)1%+/%-,4+D'(#,5%r/+(4'$%*,&%8(+4'$$'$%+8'(*)#,5%*)%+)"'(%$4*.'$j%ZC+2#))?%
Obbc?%8:%cc[%*,&p+(%8('&')'(0#,#,5%)"'%*,*.1$#$%*,&%#)$%4+,)',)$%ZE*($)+,%')%*.:?%N>>`[:%L$%
2'..?%)"'%)+8X&+2,%9.+2%#$%+/)',%*$$-0'&%*,&?%/(+0%)"#$%D#'2?%r$+4#*.%8(*4)#4'%)*3'$%*%.+2'(%
(-,5%+,%)"'%"#'(*(4"1?%2"#.'%l6(+*&'(%/+(4'$m?%$-4"%*$%)"'%B-55'(,*-)%+/%5.+6*.#g*)#+,?%*('%
*$$#5,'&%*%5('*)'(%&'5(''%+/%$+4#*.%*,&%)'((#)+(#*.%$#5,#9#4*,4'j%ZE*($)+,%')%*.:?%N>>`?%8:%fNd[:%
E++('%ZN>>`?%8:%N>c[%('9#,'$%)"#$%4(#)#<-'%61%&#$)#,5-#$"#,5%6')2'',%$4*.'%*$%*%4+,4'8)%-$'&%
/+(%*,*.1$#$%*,&%$4*.'%*$%*%8(*4)#4'%)+%6'%$)-&#'&T%
I,%*&+8)#,5%$4*.'%*$%*%4*)'5+(1%+/%*,*.1$#$%5'+5(*8"'($%)',&%)+%('#/1%#)%*$%*%/-,&*0',)*.%
+,)+.+5#4*.%',)#)1?%)"'('61%)('*)#,5%*%$+4#*.%4*)'5+(1%'08.+1'&%#,%)"'%8(*4)#4'%+/%
$+4#+$8*)#*.%8+.#)#4$%*$%*%4',)(*.%)"'+(')#4*.%)++.:%
]"#.'%E*($)+,%')%*.:j$%ZN>>`[%4*..%/+(%r9.*)%+,)+.+5#'$j%#,%/*D+-(%+/%r"+(#g+,)*.j%,')2+(3$%0#5")%
6'%B-$)#9#4*)#+,%/+(%&'.')#,5%$4*.'%*$%*%/(*0'%+/%*,*.1$#$?%$4*.'%0-$)%('0*#,%*%$-6B'4)%+/%$)-&1%
ZE*4h#,,+,?%N>OO_%E++('?%N>>`[:%W$#,5%)"#$%*88(+*4"?%0+('%*))',)#+,%0-$)%6'%8*#&%)+%"+2%
$4*.'%#$%-$'&%)+%$"*8'%)"'%2*1%('4+,4#.#*)#+,%#$%8(*4)#4'&:%%I,%)"#$%2*1?%$4*.'%0*1%6'%+6$'(D'&%
*$%*%)++.%-$'&%)+%0*,#8-.*)'%*5',)$%+8'(*)#,5%2#)"#,%4'()*#,%$8*4'$%+/%',5*5'0',)_%)"*)%#$?%
*5',)$%)#'&%)+%8.*4'X$8'4#9#4%$8*4'$%+/%&'8',&',4'%0*1%,+)%6'%5(*,)'&%*-)"+(#)1%61%*5',)$%
2#)"#,%*%$8*)#*..1%9#7'&%4+,9#5-(*)#+,%8('$-0'&%)+%6'%)#'&%)+%"#5"'(%r.'D'.$j%Z':5:%$)*)'%.'D'.[:%
Q+",%L..',%+//'($%*,+)"'(%$8*)#*.%*.)'(,*)#D'%)+%$)-&1#,5%)"'%8+.#)#4*.?%+,'%)"*)%#$%'<-*..1%r9.*)j%X%
)"'%)+8+.+5#4*.%$8*)#*.%+(&'(#,5%+/%8+2'(%ZL..',%*,&%R+4"(*,'?%N>O>[:%!"'%*-)"+($%'78.*#,T%
!"'%$',$'%#,%2"#4"%4',)(*.%5+D'(,0',)%#$%5'+5(*8"#4*..1%l"#5"'(%-8m%#$s%*,%'//'4)%+/%
)"'%$)*)'j$%4.*#0%)+%$8*)#*.%*-)"+(#)1%+D'(%*%5#D',%)'((#)+(1:%I/%2'%2#$"%)+%*D+#&%)"#$%
('#9#4*)#+,?%)"'%$+.-)#+,%#$%,+)%)+%$"#/)%)+%*%"+(#g+,)*.%*$%+88+$'&%)+%*%D'()#4*.%*7#$%+/%
8+.#)#4*.%8(*4)#4'?%6-)%)+%)(*4'%)"'%&#//'(',)%.#,'$%+/%*-)"+(#)1?%,'5+)#*)#+,%*,&%
',5*5'0',)?%*,&%"+2%)"'1%4(#$$X4(+$$%+,'%+)"'(%#,%)'(0$%+/%)"'#(%&#$)#,4)#D'%("1)"0$%
*,&%$8*)#*.%8(*4)#4'%ZL..',%*,&%R+4"(*,'?%N>O>?%8:%O>dd[:%
!"'%$8*)#*.%0')(#4%+/%8+2'(%#$%r('*4"j%*44+(&#,5%)+%L..',%ZN>>b?%8:%Ob=[:%rI,%)+8+.+5#4*.%)'(0$?%
27 GALBRAITH
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)"'%5('*)'(%)"'%&#$)*,4'%)"*)%8+2'($%*('%&#$8'($'&%+(%&'4',)(*.#g'&?%)"'%0+('%$8*)#*..1%
'7)',$#D'%#$%)"'%('*4"%+/%)"'%$)*)'j$%*-)"+(#)1j%ZL..',%*,&%R+4"(*,'?%N>O>?%8:%O>dc[:%%!"#$%('*4"%
&')'(0#,'$%r)"'%*6#.#)1%+/%)"'%$)*)'%)+%8'(0'*)'%'D'(1&*1%.#/'j%+(%0*3'%#)$'./%8('$',)%#,%('5#+,$%
*,&%)'((#)+(#'$%6'1+,&%)"'%&+0#,*,)%)'((#)+(#*.%6+(&'($:%P'*4"%#$%r#,$'8*(*6.'%/(+0%)"'%$+4#*.%
('.*)#+,$%2"#4"%4+08(#$'%#)j%ZL..',%*,&%R+4"(*,'?%N>O>?%8:%O>dc[:%
!"#$%#$%*%-$'/-.%$')%+/%#&'*$%/+(%4+,4'8)-*.#g#,5%8+2'(:%!"'1%"*D'%$+0'%$#0#.*(#)#'$%)+%
,')2+(3'&%('.*)#+,$?%6-)%8.*4'%5('*)'(%'08"*$#$%+,%)"'%$)*)':%I)%*.$+%$''$%8+2'(%*$%)(*D'($#,5%
+(%4-))#,5%*4(+$$%('5#+,*.%*,&%.+4*.%.#,'$%+/%&'4#$#+,X0*3#,5:%e#3'%R+7j$%ZObb=[%*5',)$%)"*)%
'78'(#',4'%)"'%)',$#+,%+/%+8'(*)#,5%2#)"#,%9#7'&%$8*4'$%+/%&'8',&',4'%*,&%0+6#.'%$8*4'$%+/%
',5*5'0',)?%*,%*5',)%+8'(*)#,5%#,%L..',j$%)+8+.+5#4*.%D#'2%+/%8+2'(%4*,%6'%*)%+,4'%5.+6*.%*,&%
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"*D'%*%)'((#)+(#*.%�',$#+,:%!"#$%#$%*.$+%)"'%4*$'%/+(%,')2+(3%$8*)#*.%)"'+(#'$%+/%8+2'(?%
)"+-5"%0*,1%*('%4+,)#,5',)%-8+,%3,+2.'&5'?%('$+-(4'$?%*,&%&#$4+-($'$%)#'&%)+%8*()#4-.*(%
8.*4'$%q%$-4"%*$%&#$4+-($'%4+*.#)#+,$%ZC*B'(?%N>>c[%+(%8+.#41%0+6#.#)#'$%ZE4R*,,%*,&%]*(&?%
N>O>[%q%*,&%"*D'%6'',%-$'&%)+%'7*0#,'%)"'%2*1%8.*4'$%*('%4+,,'4)'&%)"(+-5"%*..#*,4'$%+(%
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"'%*(5-'$?%*%4+00#)0',)%)+%I,',+-$%(#5")$%Z8:%c=[T%
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$''3$V%)+%0+6#.#g'%$+4#*.%,')2+(3$?%8+.#)#4*.%#,$)#)-)#+,$?%'4+,+0#4%('$+-(4'$%*,&%
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.*,&$4*8'$%+/%8+2'(%*,&%('4+5,#)#+,%*,&%+88+()-,#)1%Z*.$+%<-+)'&%#,%E*($)+,%')%*.:?%
N>>`?%8:%fOb?%'08"*$#$%*&&'&[:%
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)(*&#)#+,*.%#&'*$%)"*)%8(#D#.'5'%$)*)'%)'((#)+(#*.%6+-,&*(#'$?%1')%)"'1%*.$+%*..+2%/+(%)'((#)+(1%
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Making space for reconciliation in Canada's planning system 28
RCL@!MP%N:%eGRL!I;F%AMRIJIG;%J@LRMJ
A synthesis of the spatial dimensions of analysis
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33 GALBRAITH
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Making space for reconciliation in Canada's planning system 34
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35 GALBRAITH
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Making space for reconciliation in Canada's planning system 36
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37 GALBRAITH
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'*4"%+/%)"'%&#D'($'%*,&%&#D'(5',)%8.*,,#,5%)(*&#)#+,$:%!"#$%2+-.&%6'%*,%#08+$$#6.1%.*(5'%)*$3:%
]"#.'%D'(1%8*()#4-.*(%)(*&#)#+,$%4+-.&%6'%)(*4'&%)+%&'$4(#6'%$"#/)$%*,&%4"*,5'$%+D'(%)#0'?%)"#$%
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Making space for reconciliation in Canada's planning system 38
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41 GALBRAITH
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,'7)%$'4)#+,%'.*6+(*)'$%+,%"+2%L6+(#5#,*.%(#5")$%*('%'78('$$'&%)+%5#D'%(#$'%)+%+88+()-,#)#'$%
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3. Observing tension between values and interests: Two planning dimensions
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Making space for reconciliation in Canada's planning system 42
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'78.+('&%ZE+-//'?%N>>>_%C#..#'(?%N>>N[:%M*4"%+/%)"'$'%*('%&#$4-$$'&%#,%)-(,:
Communicative and agonistic approaches
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8(+4'$$%*,&%$"*('&%8+2'(%)"(+-5"%4+..*6+(*)#+,?%5','(*..1%2+(3#,5%)+%4('*)'%C*6'(0*$#*,%
r#&'*.%$8''4"j%$#)-*)#+,$?%*,&%4"*,5#,5%)"'%#,$)#)-)#+,*.%(-.'$%*,&%8+.#4#'$%)+%/*4#.#)*)'%)"'$'%
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43 GALBRAITH
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Making space for reconciliation in Canada's planning system 44
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6')2'',%D*.-'$%*,&%#,)'('$)$:%I,&''&?%8.*,,#,5%#$%S*%3'1%*(',*%/+(%)"'%8+.#)#4#g*)#+,%+/%8+.#41j%
ZC*B'(?%N>>c?%8:%f[:%I)%#$%rU/V*(%/(+0%6'#,5%$)(*)'5#4%*,&%$)''(#,5j%*,&%r4+-.&%B-$)%*$%'*$#.1%6'%
8+()(*1'&%*$%$-8#,'%*,&%$-6$'(D#',)%)+%8+2'(/-.%D'$)'&%#,)'('$)$%#,%)"'%&'D'.+80',)%8(+4'$$j%
ZL..0',&#,5'(%*,&%C*-5")+,?%N>O>?%8:%=>b_%H#/)*4"'.?%Obb=[:%I)%#$%*%$8*4'%+/%',5*5'0',)%
2"'('%)',$#+,$%*,&%4+,9.#4)%(-,%(*08*,)?%2"'('%+6$'(D*)#+,$%4*,%6'%0*&'%*6+-)%)"'%4+..#$#+,%
45 GALBRAITH
RCL@!MP%N:%eGRL!I;F%AMRIJIG;%J@LRMJ
+/%#,)'('$)$%*,&%D*.-'$%6')2'',%R(+2,%*,&%I,',+-$%8+.#)#4*.%*5',)$:%!"'%,'7)%4"*8)'(%
'7*0#,'$%"+2%)"'$'%8+.#)#4*.%*5',)$%)*3'%*&D*,)*5'%+/%4+,9.#4)%*,&%+)"'(%S+88+()-,#)1%
$)(-4)-('$S%#,%8.*,,#,5%)+%5*#,%#,9.-',4'%+D'(%+)"'($%*,&%$'4-('%)"'#(%8+$#)#+,:%C+2'D'(?%)"'%
<-*.#)1%+/%)"'%)',$#+,%*,&%)"'%('.*)'&%$)(-4)-('$%2#)"#,%*%8.*,,#,5%$8*4'$%*('%$"*8'&%61%*,%
#08+()*,)%'.'0',)%,+)%1')%&#$4-$$'&%q%)"'%+6B'4)%+/%5+D'(,*,4':%]"')"'(%)"'%+6B'4)%#$%*%6(+*&%
#$$-'%.#3'%4.#0*)'%4"*,5'?%+(%*%&'4#$#+,%)+%&'D'.+8%*%$3#%('$+()%+(%*,%S'$$',)#*.%8(+B'4)S?%)"'$'%
+6B'4)$%&')'(0#,'%)"'%4"*(*4)'(%+/%)',$#+,%#,%8.*,,#,5%*,&?%#,%)-(,?%)"'%.',$%)"(+-5"%2"#4"%2'%
-,&'($)*,&%('4+,4#.#*)#+,:%I,%+)"'(%2+(&$?%)"'%8+.#)#4$%*,&%5+D'(,*,4'%'78('$$'&%#,%8.*,,#,5%
*('%$"*8'&%61%2"*)%#$%5+D'(,'&:%
C*B'(%ZN>>c[%"*$%+6$'(D'&%)"*)%4#)#g',$%*('%*4)#D*)'&%*,&%D*.-'$%*('%0+('%4.'*(.1%'78('$$'&%
2"',%)"'1%*('%/*4'&%2#)"%*%)*,5#6.'%8(+8+$*.:%!"*)%#$?%)"'%.*)',)%4+,9.#4)%&'$4(#6'&%61%e-3'$%
ZN>>`[%6'4+0'$%+6$'(D*6.'%2"',%-,&'(.1#,5%D*.-'$%4+0'%#,)+%4+,9.#4)%+(%*5(''0',)%2#)"%*,%
+6B'4)%+(%8(+8+$*.:%E+('%$8'4#9#4*..1?%)"'%('$-.)#,5%4+00-,#4*)#D'%+(%*5+,#$)#4%*88(+*4"%)+%
8.*,,#,5%*,&%)"'%+88+()-,#)1%$)(-4)-('$%.'D'(*5'&%#,%)"'%8(+4'$$%2#..%&'8',&%-8+,%)"'%
8(+8+$*.%*,&%"+2%#)%#,)'(*4)$%2#)"%D*.-'$%*,&%#,)'('$)$%*)%*,1%0+0',)%#,%)#0':%A(*2#,5%-8+,%
Q'$$+8S$%2+(3%+,%5+D'(,*,4'?%R+2'..%*,&%E-(&+4"%ZObbb_%R+2'..?%N>>d[%$-55'$)%)"*)%)"'('%#$%
,+%5','(*.%)"'+(1%+/%5+D'(,*,4'?%B-$)%+6B'4)$%*,&%0+&'$%+/%5+D'(,*,4':%L,*.1$)$%0-$)%8*1%
*))',)#+,%)+%)2+%)"#,5$T%Z*[%)"'%0+&'$%+/%5+D'(,*,4'%+(%8(+4'&-(*.%4+,&#)#+,$%)"*)%5-#&'%"+2%
+(5*,#g*)#+,$%('.*)'%)+%+,'%*,+)"'(%*,&%Z6[%)"'%0*)'(#*.%+6B'4)$%6'#,5%5+D'(,'&:%C'%*(5-'$%
)"*)%)"'%+6B'4)$%+/%5+D'(,*,4'%"*D'%*,%#,9.-',4'%+,%)"'%$4*.*(%4"*(*4)'(%+/%)"'%8.*,,#,5%
$1$)'0:%F+D'(,0',)$%0*1%*4)#D'.1%,'5+)#*)'%6')2'',%0+('%,')2+(3'&%*,&%&'0+4(*)#4%
$)''(#,5%/+(0$%+/%5+D'(,*,4'%*,&%0+('%"#'(*(4"#4*.%/+(0$%)"*)%$''3%)+%4+,)(+.%&'D'.+80',)%
#,%('.*)#+,%)+%2"*)%#$%6'#,5%5+D'(,'&:%!"#$%#$%*,%'$$',)#*.%8+#,)%)"*)%#$%&#$4-$$'&%#,%('.*)#+,%)+%
)"'%4*$'$%)"*)%4+,)(*$)%8.*,,#,5%#,%)"'%/+('$)(1%$'4)+(%)+%8.*,,#,5%#,%)"'%+#.%'7)(*4)#+,%*,&%
'78+()%$'4)+(:%
I,%R*,*&*?%L6+(#5#,*.%(#5")$%*('%*.0+$)%*.2*1$%*%4+,$#&'(*)#+,%*,&?%*)%)#0'$?%)('*)'&%*$%*,%
+6B'4)%+/%5+D'(,*,4'%#,%)"'0$'.D'$?%)"+-5"%*.2*1$%4+,$#&'('&%*.+,5$#&'%*%8.*,,#,5%8(+8+$*.:%
!"'$'%8(+4'&-(*.%4+,&#)#+,$%)"*)%5-#&'%)"'%+(5*,#g*)#+,$%#,D+.D'&%#,%8.*,,#,5%*(+-,&%
L6+(#5#,*.%(#5")$%"*D'%*%8*()#4-.*(%<-*.#)1%)"*)%#$%&'$4(#6'&%#,%)"'%I,',+-$%8.*,,#,5%
.#)'(*)-('?%$+0'%+/%2"#4"%2*$%+-).#,'&%'*(.#'(:%Y*((1%*,&%@+()'(%ZN>OO?%8:%Oda[%$-00*(#g'%)"'%
Making space for reconciliation in Canada's planning system 46
RCL@!MP%N:%eGRL!I;F%AMRIJIG;%J@LRMJ
<-*.#)1%+/%$8*4'$%r2"'('%I,',+-$%#,)'('$)$?%4.*#0$%*,&%D*.-'$%*('%6(+-5")%/+(2*(&jT%)"'1%
*('%r#,'D#)*6.1%4+,)'$)'&?%4+,9.#4)-*.?%"#5".1%4#(4-0$4(#6'&?%*06#D*.',)?%*5+,#$)#4%$8*4'$?%9#..'&%
2#)"%8+$$#6#.#)1j:%!"'1%6-#.&%-8+,%)"'%2+(3%+/%'*(.#'(%8.*,,#,5%$4"+.*($%)"*)%4(#)#4*..1%',5*5'%
2#)"%4+,)'7)$%+/%r&''8%&#//'(',4'$j%.#3'%H#/)*4"'.%*,&%J*,&'(4+43?%8.*4#,5%5('*)'(%'08"*$#$%+,%
)"'#(%/(*5#.'%*,&%0*(5#,*.%<-*.#)#'$%)"*)%S*('%61%,+%0'*,$%*%5-*(*,)''%+/%*%(**.?%&'0+4(*)#4%
#&'*.S:%S!+%('*..1%-,&'($)*,&%)"'0S?%)"'%*-)"+($%*(5-'?%S2'%,''&%)+%$''%)"'0%/-..1%/+(%2"*)%)"'1%
*('?%"+2%)"'1%4+0'%)+%6'%*,&%"+2%)"'1%/-,4)#+,S%Z8:%Odf[:
!"'$'%$8*4'$%*('%/(*5#.'?%D-.,'(*6.'%)+%$)*)'%4+,)(+.%*,&%/-..%+/%4+,9.#4)%*,&%&#//'(',4':%!"'%
4+,&#)#+,$%-,&'(%2"#4"%)"'1%*(#$'%+(%*('%&#$$+.D'&%*('%'7*0#,'&%#,%)"'%,'7)%4"*8)'(:%!"#$%
4"*8)'(%4+,4'8)-*.#g'&%)"'%.+4*)#+,$%+/%)"'$'%$8*4'$%+/%+88+()-,#)1%/+(%('4+,4#.#*)#+,%)"*)%
+44-(%*4(+$$%$4*.'$:%J8*4'$%+/%',5*5'0',)%8(+D#&'%2#,&+2$%#,)+%4+,9.#4)-*.%('.*)#+,$%+D'(%)"'%
8.*4'X6*$'&%D*.-'$%+/%'*4"%8+.#)#4*.%*5',):%!"#$%4+,9.#4)%#$%4(-4#*.%#,%+6$'(D#,5%'78('$$#+,$%+/%
D*.-'$%*,&%#,)'('$)$%2#)"#,%*%&+0#,*,)%$1$)'0%+/%5+D'(,*,4'?%)+%+6$'(D'%"+2%$4*.'%#$%-$'&%*$%
*%)++.%)+%0*,#8-.*)'%*,&%4+'(4'?%+(%)+%#,9.-',4'%)"(+-5"%,')2+(3$%+/%*$$+4#*)#+,:%
!"'('%*.('*&1%'7#$)$%*%(#4"%/+-,&*)#+,%/(+0%2"#4"%)+%6-#.&%-,&'($)*,&#,5%+,%)"'%
('4+,4#.#*)#+,%/-,4)#+,%+/%8.*,,#,5?%*%/-,4)#+,%)"*)%0*1%6'%'78('$$'&%*$%*%4+.+,#*.%',)'(8(#$'%
+(%*,%+88+()-,#)1%)+%-,$')).'%$)*)'X.'&%8.*,,#,5:%@.*,,#,5%#$%*%"#5".1%*88(+8(#*)'%.',$%)+%D#'2%
)"#$%/-,4)#+,%+/%8.*,,#,5?%+//'(#,5%*,*.1$)$%+6$'(D*)#+,$%+,%)"'%r4+..#$#+,j%6')2'',?%$+0')#0'$%
#,4+00',$-(*6.'?%D*.-'$%*,&%#,)'('$)$%ZG2',$?%N>>N?%8:%b`N_%@+()'(?%N>ON_%J*,&'(4+43?%
N>>f4?%8:%OOb[?%2"#.'%*.$+%*,%-,&'($)*,&#,5%+/%)"'%6(+*&'(%$"#/)$%#,%5+D'(,*,4':%I,%
4+,$#&'(#,5%)"'%�',$#+,$%+/%8+2'(%*,&%$4*.*(%8+.#)#4$%&#$4-$$'&%'*(.#'(%#,%)"#$%4"*8)'(?%2'%
0-$)%6'%*2*('%+/%)"'%4+08.'7%$8*)#*.%<-*.#)#'$%+/%8+2'(%&1,*0#4$%#,%8.*,,#,5?%2"')"'(%#)%6'%
-$'&%*$%*%/+(2*(&%*,&%&'0+4(*)#4%$)''(#,5%8(+4'$$%+(%+,'%+/%4+,)(+.%*,&%$-6D'($#+,:%J4*.'%#$%
4(#)#4*.%)+%-,&'($)*,&#,5%)"'%/-,4)#+,%+/%8.*,,#,5?%"+2%#)%#,)'(*4)$%2#)"#,%6(+*&'(%5+D'(,*,4'%
('5#0'$?%*,&%"+2%#)%0+	#'$%)"'%2*1%#,%2"#4"%('4+,4#.#*)#+,%4"*,5'$%+D'(%)#0':%
Summary and conclusions
I,',+-$%8.*,,#,5%*#0$%)+%8(+)'4)%L6+(#5#,*.%(#5")$%*,&%#,)'('$)$?%#,4.-&#,5%$'./X&')'(0#,'&%
5+*.$%*,&%5++&%('.*)#+,$%2#)"%,+,XI,',+-$%4+00-,#)#'$:%!"'%8(+4'$$?%+(%2*1%+/%5'))#,5%
)"'('?%*44+(&#,5%)+%]*.3'(%')%*.:%ZN>Oc[?%#$%)+%r('4.*#0j%8.*,,#,5:%!"#$%4"*8)'(%(*#$'$%<-'$)#+,$%
47 GALBRAITH
RCL@!MP%N:%eGRL!I;F%AMRIJIG;%J@LRMJ
*6+-)%)"'%*88(+8(#*)','$$%+/%)"'$'%5+*.$%*,&%0')"+&$%/+(%*4"#'D#,5%)"'0T%L('%)"'$'%5+*.$%
*88(+*4"#,5%)"'%-,#D'($*.#g#,5%)',&',4#'$%$4"+.*($%.#3'%!-..1%$''3%)+%6('*3%&+2,^%C+2%4*,%
8.*,,#,5%6'%S('4.*#0'&S%#/%#)%#$%#08.#4*)'&%#,%*,%+,5+#,5%4+.+,#*.%"#$)+(1^%@.*,,#,5%)(*&#)#+,$?%
*$%)"'1%*('%4"*(*4)'(#g'&%#,%)"'%.#)'(*)-('?%*('%8('&+0#,*,).1%.#,'*(%*,&%(*)#+,*._%)"'1%*('%
-$'&%)+%$)''(%)"'%&'0+4(*)#4%8(+4'$$%*,&%*$%)++.$%+/%$+4#*.%4+,)(+.%Z\.1D6B'(5?%Obb=[:%I,%
I,',+-$X$')).'(%4+,)'7)$?%8.*,,#,5%"*$%6'',%-$'&%*$%*%)++.%+/%4+.+,#*.%4+,)(+.%ZC*((#$?%N>>N_%
@+()'(?%N>O>[:%\(+0%*%E*+(#%4+,)'7)?%E*)-,5*%ZN>Oc?%8:%dX=[%&'$4(#6'$%8.*,,#,5%*$T%Z*[%
/*4#.#)*)#,5%$')).'(%5+D'(,0',)$j%&'$#('%/+(%S.*,&$?%2*)'($?%*,&%('$+-(4'$%+/%I,',+-$%
8'+8.'$j?%Z6[%#08+$#,5%r4+.+,#*.%)'4",+.+5#'$j%$-4"%*$%r8(#D*)'%8(+8'()1%(#5")$?%$-(D'1#,5?%.*,&X
-$'%8.*,,#,5?%0*88#,5j?%*0+,5%+)"'($?%*,&%Z4[%',/+(4#,5%)"'%'74.-$#+,%+/%I,',+-$%8'+8.'$%
/(+0%&'4#$#+,?%8.*,,#,5?%*,&%0*,*5'0',)%8(+4'$$'$:%I$%#)%8+$$#6.'%/+(%)"'%&+0#,*,)%8.*,,#,5%
('5#0'%)+%6'%('/+(0-.*)'&%)+%*44+00+&*)'%/+(%I,',+-$%#,)'('$)$%*,&%)(*&#)#+,$%#,%.*2%*,&%
5+D'(,*,4'^%
!"'%*,*.1)#4*.%/(*0'2+(3%&'D'.+8'&%#,%)"#$%4"*8)'(%8(+D#&'$%*%.',$%)+%+6$'(D'%)"#$%8+$$#6#.#)1?%
2"'('%I,',+-$%*,&%0*#,$)('*0%8.*,,#,5%#,)'($'4)?%D*.-'$%*,&%#,)'('$)$%4+..#&'?%*,&%
)',$#+,$%*('%(*#$'&:%!"'%&'0+4(*)#4%$)''(#,5%/-,4)#+,%+/%8.*,,#,5?%2"')"'(%#)%#$%,*D#5*)'&%
-$#,5%r#&'*.%$8''4"j%$#)-*)#+,$%+(%0+('%*5+,#$)#4%r*5(''#,5%)+%&#$*5(''j?%#$%D-.,'(*6.'%)+%
#,9.-',4'%*,&%8+2'(/-.%/+(4'$%+8'(*)#,5%*)%D*(#+-$%$4*.'$:%]"',%R(+2,%('4+,4#.#*)#+,%8+.#41%#$%
#08.'0',)'&%*,&%&'4#$#+,$%*('%0*&'?%D*.-'$%*,&%#,)'('$)$%*('%)18#4*..1%$-8('$$'&%61%
"'5'0+,#4%/+(4'$%+/%)"'%$)*)'%*,&%&+0#,*,)%$+4#')1:%E*,1%$4"+.*($%*&+8)%.',$'$%)"*)%#5,+('%
)"'$'%2#&'(%/+(4'$%*,&?%#,$)'*&?%4"++$'%)+%/+4-$%+,%I,',+-$%r8*()#4#8*)#+,j%2#)"#,%&+0#,*,)%
8.*,,#,5%$1$)'0$%ZY++)"%*,&%J3'.)+,?%N>ON_%Gj\*#(4"*'.*#5"?%N>>d[:%!"#$%*88(+*4"%/*#.$%)+%$''%
"+2%S8*()#4#8*)#+,S%0*1%/-,4)#+,%S)+%.'5#)#0#g'%)"'%$)*)'j$%.+,5X$)*,&#,5%*$$#0#.*)#+,#$)%5+*.$%
/+(%#,',+-$%,*)#+,$%*,&%.*,&$S%ZL./('&?%N>>`_%C+2#))?%N>>a[:%!"'%'(*$-('%+/%4-.)-(*.%
&#//'(',4'?%*44+(&#,5%)+%!*#*#*3'%L./('&%ZN>>`[?%#$%4+,$#&'('&%)+%6'%*%r.'5#)#0*)'%('<-#('0',)%
+/%8+.#41%#08.'0',)*)#+,j%ZC+2#))?%N>>a?%8:%=[:%\+(%'7*08.'?%)"'%)('*)1%8(+4'$$%#,%R*,*&*%
',/+(4'$%)"#$%'(*$-('%+/%&#//'(',4'%)"(+-5"%#)$%8+.#41%+/%'7)#,5-#$"0',)?%*%8+.#41%)"*)%#$%$)#..%#,%
/+(4'%)+&*1%ZM5*,?%N>ON_%C+2#))?%N>>a[:%
!"#$%4"*8)'(%$')%+-)%)+%*&&('$$%)"'%/+..+2#,5%<-'$)#+,T%!+%2"*)%'7)',)%*('%2#&'(%$"#/)$%#,%)"'%
0+&'(,%$)*)'%*,&%$4*.'$%+/%&'4#$#+,%0*3#,5%$-88+()#,5%+(%)"2*()#,5%'//'4)#D'%8(+4'$$'$%+/%
Making space for reconciliation in Canada's planning system 48
RCL@!MP%N:%eGRL!I;F%AMRIJIG;%J@LRMJ
('4+,4#.#*)#+,%#,%8.*,,#,5^%e-3'$j%)"'+(1%+,%)"'%�',$#+,$%+/%8+2'(%'08"*$#g'$%)"'%
#08+()*,4'%+/%4+,$#&'(#,5%-,&'(.1#,5%D*.-'%&#//'(',4'$%)"*)%*('%+,.1%+6$'(D*6.'%)"(+-5"%
*(',*$%+/%4+,9.#4)?%2"'('%)"'('%*('%+88+()-,#)#'$%/+(%*5',)$%)+%'$4*8'%r$-6+(&#,*)'j%8+$#)#+,$:%
J4*.'%#$%*,%'$$',)#*.%4+,4'8)%/+(%-,&'($)*,&#,5%)"#$%8(+4'$$%*,&%.+4*)#,5%2"'('%)"'$'%$#)'$%
0#5")%+44-(%*,&%"+2%*5',)$%0#5")%5*#,%#,9.-',4'%)"(+-5"%,')2+(3$%+/%*$$+4#*)#+,%ZR+7?%
Obb=[:%Q-(#$)#+,*.%#,)'5(#)1%ZJ3'.4"'(?%N>>`[%*.$+%"'.8$%-$%)+%4+,4'8)-*.#g'%)"'$'%
4+,$)(-4)'&%$4*.'$%*,&%-,&'($)*,&%)"'#(%#08+()*,4'%#,%8+.#41%#08.'0',)*)#+,%'$8'4#*..1%
2"'('%)"'%R(+2,%*$$'()$%5+D'(,*,4'%+D'(%I,',+-$%.*,&$:%I,%)"'$'%4+,)'7)$?%)"'('%#$%4.'*(%
B-(#$)#+,*.%+D'(.*8:%!"'%R(+2,j$%8+.#41%+/%('4+,4#.#*)#+,?%2"',%8-)%#,%8(*4)#4'%#,%)"'$'%
$#)-*)#+,$?%#$%6+)"%4"*..',5'&%*4(+$$%$4*.'%*,&%B-(#$)#+,$%*,&%',/+(4'&%)"(+-5"%)"'$'%
4+,$)(-4)'&%6+-,&*(#'$:
G,'%+/%)"'%5+*.$%+/%)"#$%/(*0'2+(3%#$%)+%&'D'.+8%*%.',$%)+%"'.8%&'9#,'%)"'%.+4*)#+,%*,&%
4+,&#)#+,$%)"*)%5#D'%(#$'%)+%)"'$'%$8*4'$%2"'('%('4+,4#.#*)#+,%#$%8-)%#,%8(*4)#4':%!"'$'%
#,$)#)-)#+,*.%$8*4'$%)"*)%5(*,)%4'()*#,%*4)+($%0+('%+(%.'$$%#,9.-',4'%+D'(%)"'%8+.#41%8(+4'$$%
0*1%4"*..',5'%*,&%-,$')).'%)"'%&+0#,*,)%8(*4)#4'%+/%('4+,4#.#*)#+,:%E*)-,5*%ZN>Oc[%4*..$%/+(%*%
$8*4'%)+%6'%4('*)'&%/+(%I,',+-$%8.*,,#,5%)(*&#)#+,$%2#)"#,%&+0#,*,)%8.*,,#,5%$1$)'0$%+/%
)"'%$)*)':%Y*((1%*,&%@+()'(%ZN>OO?%8:%Odf[?%+,%)"'%+)"'(%"*,&?%&(*2%-8+,%!-..1%)+%'08"*$#g'%*%
4+,)#,-+-$%(','5+)#*)#+,%+/%)"'%('.*)#+,*.?%0-.)#8.'%*,&%0-)-*.%0+0',)$%+/%4+'7#$)',4'%
ZY*((1%*,&%@+()'(?%N>OO?%8:%Odf[:%!"'$'%+88+()-,#)#'$%*('%/(*5#.'%*,&%0*(5#,*.?%D-.,'(*6.'%)+%
2#&'(%$"#/)$%#,%5+D'(,*,4'%*,&%$4*.'$%+/%&'4#$#+,%0*3#,5:%!"'%,'7)%4"*8)'(%2#..%'.*6+(*)'%
-8+,%)"#$%/(*5#.#)1%61%#&',)#/1#,5%*,&%'7*0#,#,5%)"'%#,$)#)-)#+,*.%0'4"*,#$0$%*D*#.*6.'%#,%
8.*,,#,5%*(',*$%*,&%6(+*&'(%$1$)'0$%+/%5+D'(,*,4'%)"*)%0*1%"'.8%)+%5#D'%(#$'%)+%)"'$'%
+88+()-,#)#'$?%+(%8('$',)%6*((#'($%)+%)"'#(%+44-((',4':%!"'$'%#,$)#)-)#+,*.%0'4"*,#$0$%*('%
'7*0#,'&%)+%-,&'($)*,&%"+2%)"'1%0*1%6'%-$'&%)+%5*#,%4+,)(+.%+D'(%)"'%#&'*%+/%('4+,4#.#*)#+,:
Y'/+('%0+D#,5%)+%)"'%,'7)%4"*8)'(?%#)%0-$)%6'%,+)'&%)"*)%)"'%D*$)%0*B+(#)1%+/%)"'%)"'+(#'$%*,&%
#&'*$%8('$',)'&%"'('%*('%2(#))',%/(+0%*%,+,XI,'+-$%8'($8'4)#D'%2#)"%.'$$+,$%&'(#D'&%/(+0%
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49 GALBRAITH
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Making space for reconciliation in Canada's planning system 50
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CHAPTER 3. MECHANISMS OF PLANNING CHANGE
Introduction
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4+06#,*)#+,%2#)"%4+,$-.)*)#+,%*$%8*()%+/%('4+,4#.#*)#+,%*4)#D#)#'$%ZI$**4%*,&%h,+7?%N>>`[:%R*,*&#*,%8+.#41%
$-55'$)$%)"*)%#,&-$)(1%#$%S+/)',%#,%)"'%6'$)%8+$#)#+,S%)+%-,&'()*3'%)"#$%)*$3%61%S0+&#/1#,5%)"'%&'$#5,%+(%(+-)#,5%
+/%*%8(+B'4)S%ZI;LR?%N>OO?%8:%N>[:%!"'%('$8+,$#6#.#)1%/+(%*44+00+&*)#+,?%"+2'D'(?%('$)$%2#)"%)"'%R(+2,:
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53 GALBRAITH
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A note on the relevance of these theories to certain geographies
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4+.+,#*.%*&0#,#$)(*)#+,:%!"'$'%8.*4'$%*.$+%$"*('%"#$)+(#'$%+/%4+,)#,-+-$%$)(-55.'$%*5*#,$)%)"#$%
8(+4'$$%#,%+(&'(%)+%('5*#,%4+,)(+.%+D'(%)"'#(%(#5")$%*,&%)"'#(%/-)-(':%!"#$%)"'+(#g#,5%+,%
I,',+-$%8.*,,#,5?%)"',?%0*1%,+)%6'%'*$#.1%*88.#'&%#,%+)"'(%4+,)'7)$?%/+(%)"'%*6+D'%('*$+,$:%
I)%#$%*.$+%#08+()*,)%)+%4*-)#+,%*5*#,$)%-$#,5%)"'$'%#&'*$%)+%$-88+()%*%S8'(4'#D'&%.+$$%+/%
&+0#,*,4'S%61%)"+$'%2"+%#,"*6#)%&+0#,*,)%$+4#')1%#,%*,1%.+4*.'?%$-4"%*$%)"'%*(5-0',)$%8-)%
/+(2*(&%61%(**.%2"#)'%$-8('0*4#$)%5(+-8$%#,%F('*)%Y(#)*#,%+(%'D',%&+0#,*,)%2"#)'%$')).'(%
$+4#')1%&'$4',&#,5%/(+0%Y(#)#$"%*,4'$)(1%#,%L-$)(*.#*%+(%R*,*&*%ZE+(')+,XP+6#,$+,?%N>>`?%8:%
NO[:
1. Research on planning change in relation to Aboriginal rights
I,%)"'%8('D#+-$%4"*8)'(?%$+0'%+/%)"'%.#)'(*)-('%+,%I,',+-$%8.*,,#,5%#$%-$'&%2#)"%)+%
Making space for reconciliation in Canada's planning system 54
RCL@!MP%c:%EMRCL;IJEJ%G\%@eL;;I;F%RCL;FM
-,&'($)*,&%"+2%$4"+.*($%#,%)"#$%*('*%-,&'($)++&%)"'%8-(8+$'%+/%8.*,,#,5:%J+0'%+/%)"#$%2+(3%
#$%4(#)#<-'&%/+(%#)$%/+4-$%+,%S8(+)'4)#,5S%L6+(#5#,*.%(#5")$%)"(+-5"%*%0#$&#('4)'&%5+*.%+/%
('4.*#0#,5%*%/+('#5,%8.*,,#,5%$1$)'0:%!"'%.#)'(*)-('%#$%4"*..',5'&%)+%4+,$#&'(%)"'%8(+4'$$%+/%
('4+,4#.#,5%)2+%8.*,,#,5%)(*&#)#+,$?%/+(%*%4+'7#$)',4'%#,%8.*,,#,5?%2"'('%'<-*.%B-(#$)#+,*.%
$8*4'%/+(%I,',+-$%8.*,,#,5%)(*&#)#+,$%#$%4('*)'&%2#)"#,%)"'%&+0#,*,)%8.*,,#,5%$1$)'0:%
@+2'(?%$4*.'?%*,&%5+D'(,*,4'%*('%-$'&%)+%/(*0'%)"'%.+4*)#+,$%2"'('%4"*,5'%0*1%+44-(:%!"#$%
4"*8)'(%#$%4+,4'(,'&%2#)"%)"'%?-:0!+,%?%+/%4"*,5'%*D*#.*6.'%2#)"#,%8.*,,#,5%)"*)%4*,%6'%
.'D'(*5'&%61%D*(#+-$%8+.#)#4*.%*4)+($%#,%2*1$%)"*)%#,9.-',4'%('4+,4#.#*)#+,:%
!"'('%#$%S*%)',$#+,%6')2'',%)"'%0+&'(,%$)*)'S$%*))'08)%)+%*44+00+&*)'%(#5")$%2#)"#,%'7#$)#,5%
#,$)#)-)#+,*.%*,&%.'5*.%*((*,5'0',)$%*,&%I,',+-$%*$8#(*)#+,$%/+(%*%0+('%/-,&*0',)*.%
('4+,9#5-(*)#+,%+/%)"'#(%8+.#)#4*.%*,&%$8*)#*.%('.*)#+,$"#8$S%ZY*((1%*,&%@+()'(?%N>OO?%8:%OdO[:%
!"#$%)',$#+,%"*$%$"#/)'&%*,&%-,$')).'&%)"'$'%'7#$)#,5%#,$)#)-)#+,*.%*,&%.'5*.%*((*,5'0',)$%#,%
('$8+,$'%ZC#66*(&%')%*.:?%N>>=_%C+2#))%*,&%e-,3*8#$?%N>O>_%e*,'%*,&%R+2'..?%N>>O_%@+()'(?%
N>O>[:%I,%R*,*&*?%*,&%'$8'4#*..1%*.+,5%Y(#)#$"%R+.-06#*S$%4+*$)?%L6+(#5#,*.%(#5")$%*,&%
4*08*#5,$%2#)"%',D#(+,0',)*.%5(+-8$%"*D'%.'&%)+%'$)*6.#$"0',)%+/%,'2%(-.'$%+/%8(+4'&-('%
*,&%#,$)#)-)#+,*.%D',-'$%)"*)%"*D'%)(*,$/+(0'&%8+.#41%*,&%$+4#+'4+.+5#4*.%)(*B'4)+(#'$%
ZR*$"+('%')%*.:?%N>>O_%@(*..'?%N>>c_%J0#)"%*,&%J)'((#))?%N>O>[:%C+2'D'(?%)"'%I,',+-$%
8.*,,#,5%.#)'(*)-('?%*,&%*%0+('%*88.#'&%.#)'(*)-('%+,%',D#(+,0',)*.%*$$'$$0',)%2#)"%
I,',+-$%8'+8.'$%#,%R*,*&*?%8('$',)%*%.'$$%+8)#0#$)#4%D#'2?%+//'(#,5%*%,-06'(%+/%8(*4)#4*.%
*,&%)"'+(')#4*.%4"*..',5'$%#08'&#,5%)"'$'%)(*,$/+(0*)#+,$:%
e'+,#'%J*,&'(4+43%ZN>>f*?%8:b`_%N>>f6[%8+#,)$%+-)%)"(''%+/%)"'$'%4"*..',5'$:%\#($)?%8.*,,#,5%
#$%8('&+0#,*,).1%D#'2'&%*$%*%2'$)'(,%#,D',)#+,%)"*)%#5,+('$%)"'%0-4"%.+,5'(%"#$)+(1%+/%
8.*,,#,5%)(*&#)#+,$%)"*)%'7#$)'&%#,%8('X4+.+,#*.%)#0'$:%E*,1%I,',+-$%8'+8.'$%"*D'%.+,5%
)(*&#)#+,$%+/%0*,*5#,5%',D#(+,0',)*.%D*.-'$%#,%('.*)#+,%)+%('$+-(4'%-$'%*,&%'7)(*4)#+,%
*4)#D#)#'$%Z':5:%Q+,'$%')%*.:?%N>O>_%!-(,'(%*,&%Y'(3'$?%N>>a[%2#)"%*%('.*)'&?%.+,5%*,&%4+08.'7%
8.*,,#,5%*,&%.'5*.%)(*&#)#+,%Z':5:%Y+((+2$?%Obbd_%N>O>[:%J'4+,&?%I,',+-$%3,+2.'&5'%#$%,+)%
D*.-'&%61%8.*,,'($%6'4*-$'%+/%)"'#(%+2,%Z2'$)'(,[%)(*#,#,5%*,&%)"'%*$$-08)#+,%)"*)%8('D#+-$%
&#$8+$$'$$#+,%*,&%&#$8.*4'0',)%+/%I,',+-$%8'+8.'$%"*D'%('$-.)'&%#,%)"'%'(+$#+,%+/%)"#$%
3,+2.'&5':%L,&?%)"#(&?%)"'%4*..%/+(%*%0+('%#,4.-$#D'%*,&%4-.)-(*..1%$',$#)#D'%8.*,,#,5%8(*4)#4'%
#$%+/)',%,*tD'%*,&%&+'$%,+)"#,5%)+%"'.8%)+%('4)#/1%8*$)%2(+,5$:%
55 GALBRAITH
RCL@!MP%c:%EMRCL;IJEJ%G\%@eL;;I;F%RCL;FM
!"'%0+('%*88.#'&%4(#)#4*.%',D#(+,0',)*.%#08*4)%*$$'$$0',)%ZMIL[%.#)'(*)-('%+//'($%#08+()*,)%
'08#(#4*.%#,$#5")$%+,%I,',+-$%8'+8.'$S%',4+-,)'($%2#)"%$-4"%*$$'$$0',)$%q%.#3'.1%)"'%0+$)%
4+00+,%$#)'%+/%I,',+-$XR(+2,%8.*,,#,5%4+,9.#4)$%+D'(%.*,&%*,&%('$+-(4'$%#,%R*,*&*%#,%
)"'%.*$)%)2+%&'4*&'$%ZC*&&+43?%N>O>[:%I)%#$%*.$+%)"'%$-6B'4)%+/%+,'%+/%)"'%)2+%#,X&'8)"%4*$'$%
'7*0#,'&%#,%)"#$%('$'*(4"%Z$''%R"*8)'(%J#7[:%L%$-00*(1%+/%)"'$'%4(#)#<-'$%#$%8('$',)'&%#,%
!*6.'%O?%6'.+2?%*.+,5%2#)"%*&&#)#+,*.%#,$#5")$%/(+0%)"'%.#)'(*)-('%+,%I,',+-$%8.*,,#,5%*,&%
.*2:%!"'$'%('.*)'&%6+&#'$%+/%.#)'(*)-('%+//'(%4(#)#4*.%#,$#5")$%+,%)"'%+88('$$#D'%*,&%$)*5,*,)%
,*)-('%+/%8.*,,#,5%#,$)#)-)#+,$%*$%2'..%*$%8+)',)#*.%+88+()-,#)#'$%*,&%0'4"*,#$0$%/+(%4"*,5':
G,'%+/%)"'%4(#)#<-'$%#&',)#9#'&%#,%!*6.'%O?%)"'%8+)',)#*.%/+(%S#,4+08*)#6.'%2+(.&%D#'2$S?%#$%
4+08.#4*)'&%61%)"'%/*4)%)"*)%I,',+-$%)'((#)+(#'$%*('%$-6B'4)%)+%+D'(.*88#,5%*,&%4+08')#,5%
4.*#0$%)+%B-(#$)#+,:%!"'%,+)#+,%+/%S)(*&#)#+,*.%3,+2.'&5'S%#$%+/)',%*&+8)'&%#,%8.*,,#,5%*,&%
#08*4)%*$$'$$0',)$%#,%R*,*&*:%k+.-,)*(1%5-#&'.#,'$%'7#$)%/+(%4+,$#&'(#,5%)"#$%3,+2.'&5'%#,%
#08*4)%*$$'$$0',)$%$-6B'4)%)+%/'&'(*.%.'5#$.*)#+,%ZRMLL?%N>O>[:%L44+(&#,5%)+%)"'$'%
5-#&'.#,'$?%)"'('%S#$%5(+2#,5%('4+5,#)#+,%q%6+)"%#,%R*,*&*%*,&%*6(+*&%q%)"*)%L6+(#5#,*.%
8'+8.'$%"*D'%*%-,#<-'%3,+2.'&5'%*6+-)%)"'%.+4*.%',D#(+,0',)?%"+2%#)%/-,4)#+,$?%*,&%#)$%
4"*(*4)'(#$)#4%'4+.+5#4*.%('.*)#+,$"#8$:::%UI)V%#$%#,4('*$#,5.1%6'#,5%('4+5,#g'&%*$%*,%#08+()*,)%
8*()%+/%8(+B'4)%8.*,,#,5?%('$+-(4'%0*,*5'0',)?%*,&%',D#(+,0',)*.%*$$'$$0',)S%ZRMLL?%N>O>?%
8:%O[:%;*&*$&1%ZN>>c[%D#'2$%#)$%#,4.-$#+,%#,%8.*,,#,5%*$%*%8+.#)#4*..1%'78'&#',)%$)(*)'51%)+%
$-88+()%&'D'.+80',)%#,)'('$)$:%C'%*(5-'$%)"*)%)"#$%3#,&%+/%3,+2.'&5'%4*,,+)%6'%
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)"*)%#)%9#)$%2#)"#,%*,%#08*4)%8(')#+,%/(*0'2+(3%Z8:%Ofc[:%I,',+-$%3,+2.'&5'?%"'%
'78.*#,$?%('<-#('$%1'*($%+/%'78'(#',)#*.%.'*(,#,5%)+%*4<-#('?%$+0')"#,5%)"*)%4*,,+)%/'*$#6.1%6'%
-,&'()*3',%61%)"+$'%#,D+.D'&%#,%)"'%&'4#$#+,%8(+4'$$%2#)"#,%)"'%)#0'%*..+))'&%/+(%*,%#08*4)%
*$$'$$0',):%]"#.'%)"#$%#$%)(-'?%+)"'(%3#,&$%+/%3,+2.'&5'%)"*)%('<-#('%&'4*&'$%+/%)(*#,#,5%*,&%
'78'(#',4'%*('%-$'&%#,%8.*,,#,5%$1$)'0$%*$%2'..:%L$%$)*//%*,&%'78'()$%.'*(,%/(+0%
4+00-,#)#'$?%*,&%6'5#,%)+%-,&'($)*,&%)"'%6*$#4%<-*.#)#'$%+/%)"#$%#,/+(0*)#+,?%)"'('%*88'*($%
)+%6'%*%8+)',)#*.%/+(%-$#,5%)"#$%3,+2.'&5'%#,%8(+&-4)#D'%2*1$:%
\-()"'(0+('?%)"'%4+-()$%"*D'%6'',%4.'*(%)+%8+#,)%+-)%)"*)%2"#.'%)"'1%"'*(%S+(*.%)(*&#)#+,S?%)"'1%
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Making space for reconciliation in Canada's planning system 56
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8:%af?%'08"*$#$%*&&'&[:%!"#$%0'*,$%)"*)%0+(*.%+(%$8#(#)-*.%*(5-0',)$%)"*)%5-#&'%*88(+*4"'$%
)+%5+D'(,*,4'%*,&%&'4#$#+,X0*3#,5%#,%I,',+-$%4+00-,#)#'$%*('%*&0#$$#6.'%)+%#08*4)%
*$$'$$0',)$%$+%.+,5%*$%)"'1%*('%$-88+()'&%61%+)"'(%3#,&$%+/%'D#&',4':%!18#4*..1?%)"'%+)"'(%
3#,&$%+/%'D#&',4'%)"*)%#$%-$'&%)+%$-88+()%S+(*.%)(*&#)#+,S%#$%$4#',)#9#4%'D#&',4':%!"'('%*('%
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8-(8+()%)+%$-88+()%0+(*.%+(%$8#(#)-*.%4+&'$%ZF#'(1,?%Ob=c_%!-(,6-..?%Obbd[:%!"'%'//'4)%#$%)"*)%
I,',+-$%3,+2.'&5'%#$%4+,$#&'('&%+,.1%61%$)(#88#,5%*2*1%*,1%I,',+-$X&'9#,'&%0+(*.%
*,&%')"#4*.%4+&'$%/(+0%)"'%#08*4)%*$$'$$0',)%8(+4'$$%ZR(-#3$"*,3?%N>>>[:%!"#$%#$%4+,D',#',)%
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-,&'(8#,,'&%61%)"'#(%+2,%0+(*.%+(%8(#,4#8.'&%*(5-0',)$%)"*)%$"*8'%)"'%#08*4)%*$$'$$0',)%
0')"+&%+(%&'4#$#+,%4(#)'(#*?%$-4"%*$%)"*)%+/%-,/'))'('&%'4+,+0#4%5(+2)":%J-4"%4+&'$%0*1%
4+08')'%2#)"%I,',+-$%0+(*.%4+&'$%*,&%*('%,+)%$-6B'4)%)+%)"'%$*0'%$4(-)#,1%*)%I,',+-$%
3,+2.'&5':%R+..*6+(*)#+,%#,%&'4#$#+,X0*3#,5?%)"',?%0*1%6'%)"'%+,.1%(+-)'%*D*#.*6.'%/+(%*,1%
0'*,#,5/-.%4+,$#&'(*)#+,%+/%)(*&#)#+,*.%3,+2.'&5'%Z;*&*$&1?%N>>c[:%!"#$%&#.'00*%6'4+0'$%
'D#&',)%#,%)"'%M,6(#&5'%*$$'$$0',)%8(+4'$$%&'$4(#6'&%#,%R"*8)'(%J#7:
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*,&%)"'%*&+8)#+,%+/%.'5*.#$)#4%(#5")$%*(5-0',)$%ZC#66*(&%')%*.:?%N>>=[:%!"#$%4+,$#&'(*)#+,%
8+#,)$%)+%*%3'1%*(5-0',)%(*#$'&%)"(+-5"+-)T%'"!++,+/1,%1!1:&+)-%)-.1%,)-1)0!)10!%1<H&)01
)(!+%>&(?!),3-1!+.1&''(-%%,3-1'&%%,H,",),-%<1ZY*((1%*,&%@+()'(?%N>OO?%8:%Odc_%C#66*(&%')%*.:?%
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'D#&',)%#,%)"'%$4*.*(%8+.#)#4$%.#)'(*)-('%)"*)%$''$%2#&'(%/+(4'$%"*D'%#,9.-',4'%+,?%*,&%6'#,5%
*//'4)'&%61?%.+4*.%8"',+0',*%ZY(',,'(?%N>>O_%C+2#))?%Obb=[:%!(*,$/+(0*)#D'%8+$$#6#.#)#'$%*('%
&'9#,'&%*6+D'%*$%)"+$'%4"*,5'$%)+%8.*,,#,5%#,$)#)-)#+,$%)"*)%('+(#',)%)"'%('.*)#+,$"#8%
6')2'',%)"'%R(+2,%*,&%I,',+-$%8'+8.'$%#,%*%2*1%)"*)%*..+2$%I,',+-$%8'+8.'$%)+%
S('5*#,%*%5('*)'(%0'*$-('%+/%4+,)(+.%+D'(%)"'#(%*,4'$)(*.%.*,&$%*,&%('$+-(4'$S%ZM5*,?%N>ON?%8:%
fOa[:%!"#$%&'0+4(*)#4%$)''(#,5%/-,4)#+,%+/%8.*,,#,5%2*$%8.*4'&%#,%4+,)(*$)%)+%)"*)%+/%
&'D'.+80',)%4+,)(+.%#,%)"'%8('D#+-$%4"*8)'(:%I)%#$%)"'+(#$'&%)"*)%)"'%$)*)'S$%&'4#$#+,%)+%
#08+$'%&'D'.+80',)%4+,)(+.%0*1%6'%*%('*4)#+,%)+%',5*5'0',)%#,%8.*,,#,5%/+(%)"'%8-(8+$'%+/%
57 GALBRAITH
RCL@!MP%c:%EMRCL;IJEJ%G\%@eL;;I;F%RCL;FM
)(*,$/+(0*)#+,:%G,'%$-4"%('*4)#+,%0*1%6'%8.*,,#,5%('/+(0?%2"#4"%#$%*%&#$4+-($'%
4"*(*4)'(#g'&%*$%S$8''&#,5%-8S%*,&%S$)('*0.#,#,5S%8.*,,#,5%8(+4'$$'$%)+%*D+#&%S-,,'4'$$*(1%
&'.*1$S%ZG2',$%N>>f_%]+.$#,3?%N>>a[:%R"*8)'(%\#D'%/-()"'(%('9#,'$%)"#$%#&'*%)+%)"'%YR%4+,)'7)%
#,%*%"#$)+(1%+/%8.*,,#,5%#,%YR%*,&%C*#&*%F2*##:%!"'%,'7)%)2+%$'4)#+,$%6'5#,%)+%&'D'.+8%*%
/(*0'2+(3%)"*)%4*,%6'%-$'&%)+%'7*0#,'%)"'%?-:0!+,%?%%)"*)%5#D'%(#$'%)+%)"'$'%8+$$#6#.#)#'$%
/+(%0+D#,5%)+2*(&$%('4+,4#.#*)#+,?%2"*)%*('%4*..'&%S0'4"*,#$0$%+/%('4+,4#.#*)#+,S:%!"'$'%
+//'(%#,$#5")%+,%)"'%4"*(*4)'(%*,&%&-(*6#.#)1%+/%8+)',)#*.%4"*,5':
Making space for reconciliation in Canada's planning system 58
RCL@!MP%c:%EMRCL;IJEJ%G\%@eL;;I;F%RCL;FM
Critique theme Summary of critique
Title claims must be
'settled' for EIAs to
work
Many argue title must be 'settled' before fair decisions over property disposition
can be undertaken (Berger, 1977; Shapcott, 1989). Yet the state sees
'settlement' as achieving 'certainty' over title and extinguishment of rights
(especially through treaties) – a policy that is disputed by many First Nations
(Alfred, 2005; Egan, 2012; Paci et al., 2002). Others (Isaac and Knox, 2005)
argue that law today gives us necessary 'tools' to address a territorial dispute
(e.g. guidelines, regulations, consultation/accommodation, etc.).
Potential for
incompatible world
views
First Nations acting as stewards of their lands, can reflect their values,
practises, cosmologies, and social systems (Paci et al., 2002; Shapcott, 1989).
Such knowledge is not easily 'incorporated' into EIA frameworks (Usher, 2000)
and can easily be misrepresented or misused (Stevenson, 1996). Yet,
'traditional knowledge studies' may be adopted as a politically expedient
strategy to support development interests (Nadasdy, 2003).
Ignores past injustice To many, a central goals of reconciliation is achieving justice for past
dispossession (Blackburn, 2007; Shapcott, 1989). Yet, case law and state
policies assert that consultation and accommodation activities allow the state to
infringe upon Aboriginal rights through EIAs (Paci et al., 2002), effectively
perpetuating colonial relations while providing the appearance of justice
(Shapcott, 1989; also see Irlbacher-Fox, 2009 on this quality in the treaty
process). The government views decision-making forums as inappropriate for
considering historic infringements, and consultation and accommodation is only
required when present decision will likely cause an additional infringement
(CSTC v. BCUC, 2009)12. Yet, the process of consultation and accommodation
to justify infringing on Aboriginal rights can undermine the potential for future
recognition of past dispossession (Egan, 2012).
Limits to
accommodation13
Despite some flexibility in larger EIAs that accommodate for languages, oral
evidence, and other procedural modifications, EIA places greater importance
upon western law and science. The state will rarely engage with First Nations in
any meaningful way to determine the rules of EIA (e.g. terms of reference),
accommodate First Nation decision timelines, consider First Nation values and
laws, share final decisions in a transparent way, fully consider cumulative
effects, or provide adequate funding to get fully involved (FNEMC, 2009;
Galbraith et al., 2007; Haddock, 2010; Carrier Sekani Tribal Council and Takla
Lake First Nation, 2007 in Rutherford, 2009). In addition, the agencies and
panels responsible for conducting EIAs have no authority to accommodate for
infringement on title (Carrier Sekani Tribal Council and Takla Lake First Nation,
2007 in Rutherford, 2009).
Lack of First Nation
control
Some view 'the creation of our own mechanisms of change based upon the
values, beliefs and systems of our original teachings' as the 'only avenue'
available for preserving indigenous identities (Clarkson et al., 1992 in Paci et al.,
2002, p.121). Yet, the state appears unwilling to create joint EIAs in non-treaty
areas (Paci et al., 2002), despite some 'best case' examples of voluntarily co-
developed EIAs (e.g. the three-tiered approach by the Taku River Tlingit for the
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59 GALBRAITH
RCL@!MP%c:%EMRCL;IJEJ%G\%@eL;;I;F%RCL;FM
Critique theme Summary of critique
Ruby Creek Mine EA in 2006-2007; FNEMC, 2009).
Disagreement over
duties
Many see Aboriginal rights as justifying shared decision-making, not just
consultation (Haddock, 2010, p.72). Title is viewed as encompassing 'the right
to exclusive use and occupation' of land 'held pursuant to that title for a variety
of purposes'. Yet, state sees 'no ultimate duty to reach agreement' and EIAs do
not allow First Nations 'veto over what can be done with land' (Taku v. BC,
200414, in Haddock, 2010, p.72).
Compromising
positions
While many First Nations reject the authority of the state to make decisions
through EIAs, First Nations will often conduct their own EIAs (Shapcott, 1989).
This includes working within western science and legal traditions to bolster their
position (Pinkerton, 1983).
Table 1. Environmental impact assessment critiques related to Aboriginal rights in Canada
Appendix F provides a history of EA in Canada and BC
2. Critique of reconciliation law and policy
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#,%)"'%$)*)'%)+%*&&('$$%('4+,4#.#*)#+,?%2"*)%#$%&+,'%2"',%)"'$'%+8',#,5$%#$%2"*)%*//'4)$%)"'%
,*)-('%+/%)"#$%4"*,5':%
Making space for reconciliation in Canada's planning system 64
RCL@!MP%c:%EMRCL;IJEJ%G\%@eL;;I;F%RCL;FM
Lessons from planning
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*,&%$"*8'%)"'%8.*,,#,5%8(+4'$$%#)$'./%#,%2*1$%)"*)%4*,%('$-.)%#,%#08+()*,)%)(*,$/+(0*)#+,$%
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4"*,5'$:%R+00-,#4*)#D'%8.*,,#,5%ZC'*.'1?%Obbd_%I,,'$%*,&%Y++"'(?%N>>f[%*,&%*5+,#$)#4%
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*,&%)',$#+,%6')2'',%D*.-'$%*,&%#,)'('$)$%#,%8.*,,#,5:%!"#$%4"*8)'(%#$%4',)(*..1%4+,4'(,'&%
2#)"%?-:0!+,%?%%)"*)%.'*&%)+%4"*,5'$%#,%)"'%&+0#,*,)%8.*,,#,5%$1$)'0%*,&%0')"+&$%/+(%
6'5#,,#,5%)+%('4+,4#.'%)"'%)2+%8.*,,#,5%)(*&#)#+,$%)"*)%4+,$)#)-)'%)"#$%$1$)'0:%I,$)#)-)#+,*.%
$)(-4)-('$%*,&%&1,*0#4$%)"*)%0#5")%)(#55'(%+88('$$#D'%*,&%)(*,$/+(0*)#D'%<-*.#)#'$%+/%
8.*,,#,5%*('%'7*0#,'&%#,%\(#'&0*,,S$%)(*,$/+(0*)#D'%+(%(**.%8.*,,#,5%*,&%#,$-(5',)%
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'08+2'(0',)?%)"*)%0*1%,+)%('9.'4)%)"'%D*.-'$%*,&%8(#+(#)#'$%2#)"#,%)"'%.+4*.#)1%2"'('%
8.*,,#,5%#$%8(*4)#$'&%ZL.'7*,&'(?%N>>c[:%!"'1%8('$',)%8(*4)#)#+,'($%2#)"%#&'*.$%+/%"+2%
8.*,,#,5%S+-5")S%)+%6'%8(*4)#$'&?%*,%*88(+*4"%)"*)%#$%D-.,'(*6.'%)+%0*3#,5%4.*#0$%/+(%*%
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65 GALBRAITH
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&(*2%-8+,%)"'$'%#&'*$%0*1%-$'%)"'0%#,%*%2*1%)"*)%$-#)$%*%8*()#4-.*(%$#)-*)#+,%+(%4+,)'7)%
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*,&%4+,9.#4):%L5+,#$0%0*3'$%#(('$+.D*6.'%&#$*5(''0',)$%*88*(',)?%)"'('%#$%*%/-,&*0',)*.%
*5(''0',)%)+%&#$*5(''%ZE4R.10+,)?%N>OO[?%$+%)"*)%*4)#+,%4*,%6'%)*3',%)+%0+D'%/+(2*(&%*,&%
0+&#/1%#,$)#)-)#+,$%*,&%8+.#41%*((*,5'0',)$:%R+,$',$-$?%)"',?%#$%S)"'%)'08+(*(1%('$-.)%+/%*%
8(+D#$#+,*.%"'5'0+,1?%*$%*%$)*6#.#g*)#+,%+/%8+2'(?%*,&%*.2*1$%',)*#.$%$+0'%/+(0%+/%'74.-$#+,S%
ZE+-//'?%N>>>?%8:ONd[:%]"#.'%)"#$%*88(+*4"%0*1%6'%S('4'8)#D'%)+%)"'%0-.)#8.#4#)1%+/%D+#4'$?%)"'%
8.-(*.#)1%+/%D*.-'$%*,&%)"'%4+08.'7#)1%+/%8+2'(%$)(-4)-('$S%ZE+-//'?%N>>>?%8:ON=[?%*4)+($%0-$)%
6'%*6.'%)+%)*3'%*&D*,)*5'%+/%+)"'(%$8*4'$%*,&%$4*.'$%2"',%)"'%8.*,,#,5%$8*4'%#$%,+%.+,5'(%
$-#)*6.'%ZE')g5'(?%N>OO?%8:%Ob`[:%!"'%#,$)#)-)#+,*.%4"*,5'%.#)'(*)-('%#$%-$'/-.%/+(%
4+,4'8)-*.#g#,5%"+2%*4)+($%0#5")%)*3'%*&D*,)*5'%+/%+)"'(%#,$)#)-)#+,*.%$8*4'$%#,%+(&'(%)+%
#,9.-',4'%*%8+.#41%#&'*?%.#3'%('4+,4#.#*)#+,:%I,%)"#$%.#)'(*)-('?%)"'%4+,4'8)%+/%S8+.#41S%#$%*%(*)"'(%
6(+*&%4+,4'8)%)"*)%#$%,+)%.#0#)'&%)+%/+(0*.%(-.'$%*&+8)'&%61%*%5+D'(,0',)?%6-)%',4+08*$$'$%
#,/+(0*.%8(*4)#4'%*,&%#,$)#)-)#+,$%.#3'%8.*,,#,5:%!"-$?%)"'%4+,4'(,%/+(%4"*,5'%#,%)"'%8+.#41%
#&'*%+/%('4+,4#.#*)#+,%('/'($%)+%4"*,5'%#,%)"'%2*1%)"'%#&'*%#$%#08.'0',)'&%#,%8(*4)#4'?%)"'%2*1%
8.*,,#,5%)(*&#)#+,$%*('%('4+5,#g'&%*,&%5#D',%B-(#$)#+,*.%$8*4'%#,%R*,*&*S$%8.*,,#,5%$1$)'0?%
*,&%)"'%)'(0$%*5(''&%-8+,%#,%*..%/*4')$%+/%)"'%#,$)#)-)#+,*.%('.*)#+,$"#8%6')2'',%*%\#($)%;*)#+,%
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/+..+2#,5%8*(*5(*8"$?%*.+,5%2#)"%*%4+,4'8)%/(+0%*%$0*..'(%.#)'(*)-('%+,%8.*,,#,5%('/+(0:%\#($)?%
SD',-'%$"+88#,5S%#$%*&+8)'&%)+%4+,4'8)-*.#g'%$)(*)'5#'$%-$'&%61%I,',+-$%8+.#)#4*.%*4)+($%)+%
0+D'%/(+0%+,'%#,$)#)-)#+,*.%$8*4'%)+%*,+)"'(:%J'4+,&?%8+.#)#4*.%S+88+()-,#)1%$)(-4)-('$S%*('%
-$'&%)+%4+,4'8)-*.#g'%)"'%2*1%L6+(#5#,*.%(#5")$%4('*)'%#,9.-',)#*.%8+.#)#4*.%$8*4'$%2#)"#,%
8.*,,#,5%'D',)$:%!"'%.+5#4%+/%*88(+8(#*)','$$%*,&%8.*,,#,5%('/+(0%*('%-$'&%)+%'7*0#,'%$)*)'%
('$8+,$'$%)+%)"'$'%8+.#)#4*.%$)(*)'5#'$%*,&%)"'%&-(*6#.#)1%+/%8+)',)#*.%)(*,$/+(0*)#+,$:%
Adding policy change ideas to refine the legal mechanisms of reconciliation
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#,9.-',)#*.%2+(3%)"*)%"*$%4+0'%+-)%+/%)"'%#,$)#)-)#+,*.%&1,*0#4$%.#)'(*)-('%"*$%6'',%&'D'.+8'&%
Making space for reconciliation in Canada's planning system 66
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*(+-,&%J*6*)#'(S$%ZJ*6*)#'(%*,&%Q',3#,$XJ0#)"?%Obbc[%*&D+4*41%4+*.#)#+,$?%C*B'(S$%&#$4+-($'%
4+*.#)#+,$%ZObb`[?%*,&%h#,5&+,S$%8+.#41%$)('*0$%ZObb`[%0+&'.$:%M*4"%+/%)"'$'%*88(+*4"'$%0*1%
6'%-$'&%)+%'7*0#,'%)(*,$/+(0*)#D'%*,&%+88('$$#D'%4"*,5'$%#,%)"'%4+,)'7)%+/%)"#$%('$'*(4"%*,&%
4*,%8(+D#&'%$+0'%-)#.#)1:%!"#$%('$'*(4"?%"+2'D'(?%8.*4'$%0+$)%'08"*$#$%+,%#,$)#)-)#+,$%*,&%
)"'%2*1%8+.#)#4*.%*4)+($%',5*5'%2#)"%8+2'(/-.%$)*)'X.'&%#,$)#)-)#+,$%)"*,%J*6*)#'(S$?%C*B'(S$%
*,&%h#,5&+,S$%2+(3:%!"#$%/(*0'%+/%*,*.1$#$%,+)%+,.1%6'))'(%4+,4'8)-*.#$'$%)"'%('$'*(4"%
8(+6.'0?%6-)%*.$+%*))',&$%)+%*%6(+*&'(%$"#/)%#,%8.*,,#,5%)"+-5"):%Y*((1%ZN>ON?%8:%NOf[%8+#,)$%
+-)%)"*)%)"'%S#,$)#)-)#+,*.%)-(,S%#,%8.*,,#,5%"*$%$)*()'&%)+%$"#/)%S*2*1%/(+0%)"'%$)-&1%+/%
#,&#D#&-*.%4+..*6+(*)#D'%8(+4'$$'$%)+2*(&$%)"'%*,*.1$#$%+/%#,)'(*4)#+,$%2#)"%)"'%.*(5'(%
5+D'(,*,4'%$1$)'0S:%!"'%*,*.1)#4*.%/(*0'2+(3%&'D'.+8'&%#,%R"*8)'($%!2+%*,&%!"(''%/+4-$'$%
+,%"+2%4"*,5'$%#,%5+D'(,*,4'%$1$)'0$?%+(%*%$-#)'%+/%#,$)#)-)#+,$?%0*1%4+,$)(*#,%I,',+-$X
.'&%*4)#+,$%Z':5:%e*,'%*,&%R+2'..?%N>>=[?%"+2%',5*5'0',)%2#)"%$)*)'X.'&%8.*,,#,5%#,$)#)-)#+,$%
0*1%#,9.-',4'%*,&%4"*,5'%)"'%8.*,,#,5%$1$)'0?%*,&%"+2%$"#/)$%#,%#,$)#)-)#+,*.%$)(-4)-('$%0*1%
('4+,9#5-('%$)*)'XI,',+-$%('.*)#+,$%*,&%6(#,5%*6+-)%4+..*6+(*)#D'%8.*,,#,5%$1$)'0$%Z':5:%
Y*((1?%N>ON[:%L.+,5%2#)"%)"'%.#)'(*)-('%+,%$4*.'%&'D'.+8'&%)+%.+4*)'%$8*4'$%+/%',5*5'0',)%#,%
)"'%8('D#+-$%4"*8)'(?%)"'%#,$)#)-)#+,*.%&1,*0#4$%.#)'(*)-('%#$%&(*2,%-8+,%)+%"'.8%(*#$'%)"'%
*,*.1)#4*.%.',$%/(+0%2#)"#,%*%8.*,,#,5%$8*4'%)+%*%6(+*&'(%$1$)'0%+/%5+D'(,*,4'?%+(%)"'%
#,$)#)-)#+,*.%.'D'.?%$+%)"*)%*))',)#+,%4*,%6'%8*#&%)+%)"'%2*1%+88+()-,#)1%$)(-4)-('$%*('%
*44'$$'&%*,&%8.*,,#,5%('/+(0$%)*3'%8.*4':%\(+0%)"#$%8'($8'4)#D'?%2'%0*1%4+,$#&'(%
+88+()-,#)#'$%/+(%)(*,$/+(0*)#+,%61%.++3#,5%*)%)"'%',)#('%8.*,,#,5%$1$)'0%4+08+$'&%+/%%
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&#$+6'&#',4'?%')4:[:%L%6(#'/%'7*0#,*)#+,%+/%)"'%#&'*$%+/%J*6*)#'(?%C*B'(?%*,&%h#,5&+,%8(+D#&'$%
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)"'%/+-(%3'1%4+,4'8)$%#,)(+&-4'&%#,%)"'%.*$)%"*./%+/%)"#$%$'.'4)#+,:%
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8+.#41%4"*,5'%*$%*%.#,'*(%*,&%(*)#+,*.%8(+5('$$#+,:%J*6*)#'(%*(5-'$%)"*)%)"'%0+&'.%#$%9.*2'&?%
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'7+5',+-$%4"*,5'%*,&%)',$#+,%*0+,5$)%*%D*(#')1%+/%*4)+($%',5*5'&%2#)"%)"'%8+.#41%8(+6.'0?%
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67 GALBRAITH
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2"'('%5(+-8$%+/%*4)+($%/(+0%&#//'(',)%#,$)#)-)#+,$%Z':5:%0-.)#X.'D'.%5+D'(,0',)%*5',4#'$[%
#,)'(*4)%+D'(%*%8*()#4-.*(%8+.#41%#$$-':%L&D+4*41%4+*.#)#+,$%*('%5(+-8$%+/%8'+8.'%2"+%$"*('%
6*$#4%D*.-'$%*,&%8'(4'8)#+,$%+/%*%8+.#41%8(+6.'0%*,&%*('%#,9.-',4'&%61%'7)'(,*.%/*4)+($%$-4"%
*$%0+,'1?%'78'()#$'?%*,&%.'5*.%*-)"+(#)1:%I,%*,1%8+.#41%*,*.1$#$?%*55('5*)#,5%D*.-'$%*,&%6'.#'/$%
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Making space for reconciliation in Canada's planning system 68
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0-.)#.'D'.%,*)-('%+/%$)*)-)+(1%&'4#$#+,%8+#,)$?%"*D'%#08+()*,)%#,9.-',4'%+D'(%)"'%8(*4)#4'%+/%
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D',-'$?%.#3'%'*4"%+/%)"'$'%&'4#$#+,%8+#,)$?%'*4"%"*D'%*%-,#<-'%4"*(*4)'(:%\+..+2#,5%)"#$%.+5#4?%
2'%4*,%$*1%)"*)%'*4"%&'4#$#+,%8+#,)%#$%-,#<-'%#,%#)$%2*1%#,%2"#4"%)"'%R(+2,%-,&'()*3'$%#)$%
Making space for reconciliation in Canada's planning system 72
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&-)1:%h#)$4"'.)%ZOb=a?%8:%`=[%$-55'$)$%)"*)%4*$'%$)-&#'$%0*1%6'%4+08*('&%)+%&'0+,$)(*)'%"+2%
+88+()-,#)1%$)(-4)-('$%#,9.-',4'%*4)+($S%4"+#4'%+/%$)(*)'5#'$%*,&%)"'#(%'//'4)$:%R"*8)'(%!"(''%
4+,$#&'($%"+2%)"'%4*$'%$)-&1%0')"+&%#$%*&+8)'&%#,%)"#$%('$'*(4"%)+%4+08*('%+88+()-,#)1%
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$)(-4)-('$%*,&%"+2%)"#$%0#5")?%#,%)-(,?%*//'4)%D',-'%$"+88#,5%$)(*)'5#'$%2#)"#,%*%4+08.'7%
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6','9#)%/(+0%.*,&%*,&%('$+-(4'$:%A','O`%8+.#)#4*.%$4#',4'%$4"+.*(?%F.',%R+-.)"*(&?%*(5-'$%)"*)%
)"'$'%8+.#)#4$%*('%S8(+/+-,&.1%*$100')(#4*.%*,&%,+,X('4#8(+4*.:::%'#)"'(%,?'&%-.%&+%+(1/(!+)-&1
)&%UI,',+-$%8'+8.'$V%61%)"'%4+.+,#*.X$)*)'%*,&%$+4#')1S%ZN>>d?%8:%fcb?%'08"*$#$%*&&'&[:%
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73 GALBRAITH
RCL@!MP%c:%EMRCL;IJEJ%G\%@eL;;I;F%RCL;FM
(c) Logic of appropriateness
!"'%4+,4'8)$%+/%D',-'%$"+88#,5%*,&%+88+()-,#)1%$)(-4)-('$%8(+D#&'%*%$',$'%+/%"+2%8.*,,#,5%
0#5")%6'%-$'&%)+%#,9.-',4'%('4+,4#.#*)#+,%*,&%('.*)'&%8+.#4#'$:%@+.#4#'$%*('%+/)',%#&',)#9#'&%*$%
#,$)#)-)#+,$%*,&?%)"-$?%0*1%6'%4+,4'8)-*.#g'&%2#)"#,%#,$)#)-)#+,*.%)"'+(1:%\(+0%*%6(+*&%
4+,4'8)-*.%.'D'.?%)"#$%&#$$'()*)#+,%*#0$%)+%$"'&%.#5")%-8+,%)"'%('.*)#+,$"#8%6')2'',%)"'%
&1,*0#4$%+/%8.*,,#,5%#,$)#)-)#+,$%*,&%)"'%$)(*)'5#4%6'"*D#+-(%+/%8+.#)#4*.%*4)+($%#,%)"'%8(+4'$$%
+/%('4+,4#.#*)#+,:%E-4"%+/%)"'%I,',+-$%8.*,,#,5%.#)'(*)-('%"*$%('.#'&%-8+,%'7#$)#,5%8.*,,#,5%
)"'+(#'$%ZC#66*(&%')%*.:?%N>>=[:%!"#$%('$'*(4"%(*#$'$%)"'%*,*.1)#4*.%.',$%/(+0%2#)"#,%*%8.*,,#,5%
$8*4'%)+%)"'%#,$)#)-)#+,*.%.'D'.%#,%+(&'(%)+%'7*0#,'%)"'%2*1%+88+()-,#)1%$)(-4)-('$%*('%
*44'$$'&%*,&%*,1%8+)',)#*.%('.*)#+,$"#8%)+%8.*,,#,5%('/+(0:%]"#.'%)"'%&#$4-$$#+,%+,%D',-'$%
*6+D'%8(+D#&'$%$+0'%#,$#5")$%+,%2"*)%#$%0'*,)%61%#,$)#)-)#+,$?%/-()"'(%4+,4'8)-*.#g*)#+,%#$%
,''&'&%)+%-,&'($)*,&%)"'%,'7)%3'1%4+,4'8)%+/%S+88+()-,#)1%$)(-4)-('$S:
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*,&%$#)-*)#+,$S:%S!"'%8(+4'$$%#,D+.D'$%&')'(0#,#,5%2"*)%)"'%$#)-*)#+,%#$?%2"*)%(+.'%#$%6'#,5%
/-.9#..'&?%*,&%2"*)%)"'%+6.#5*)#+,%+/%)"*)%(+.'%#,%)"*)%$#)-*)#+,%#$S%Z8:%Nb[:%I,$)#)-)#+,$%S*('%
&'9#,'&%61%)"'#(%&-(*6#.#)1%*,&%)"'#(%4*8*4#)1%)+%#,9.-',4'%6'"*D#+-(%+/%#,&#D#&-*.$%/+(%
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61%/+(0*.%*,&%#,/+(0*.%(-.'$?%2"'('%S+.&%#,$)#)-)#+,*.#$0S%2*$%4',)(*..1%4+,4'(,'&%2#)"%)"'%
(+.'%+/%6-('*-4(*4#'$?%.'5#$.*)-('$?%.'5*.%$1$)'0$?%*,&%9#(0$%*$%&(#D'($%+/%4+..'4)#D'%$+4#*.%
6'"*D#+-(?%/+..+2#,5%)"'%2+(3%+/%k'6.',%*,&%]'6'(%ZE*(4"%*,&%G.$',?%Ob=f%8:%dcf[:%!"'$'%
3#,&$%+/%#,$)#)-)#+,$%"*D'%S('4'&'&%#,%#08+()*,4'S%-,&'(%S,'2%#,$)#)-)#+,*.#$0S?%2"'('%)"'$'%
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Making space for reconciliation in Canada's planning system 74
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*$$-0'$%)"*)%)"+$'%#,)'(*4)#,5%2#)"%*,%#,$)#)-)#+,%S2#..%)"#,3%0+('%*6+-)%2"')"'(%*,%*4)#+,%
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*,&%(+-)#,'$%+/%)"'%#,$)#)-)#+,:%I,&''&?%)"#$%$)(*)'5#4%6'"*D#+-(%0*1%D#+.*)'%*,%#,$)#)-)#+,S$%
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/*4)+($%)"*)%0*1%$)(',5)"',%+(%2'*3',%)"'%('.*)#+,%6')2'',%(-.'$%*,&%*4)#+,S%ZN>>a?%8:%abc[:%
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&+0#,*,)%D#'2$%*6+-)%*88(+8(#*)','$$S%Z@')'($?%N>>`?%8:%c>[:%G)"'(%)"'+(#$)$%*(5-'?%"+2'D'(?%
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75 GALBRAITH
RCL@!MP%c:%EMRCL;IJEJ%G\%@eL;;I;F%RCL;FM
'08#(#4*.%/+4-$%+/%)"#$%('$'*(4":
(d) Planning reform
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&'D#*,4'%/(+0%#,$)#)-)#+,*.%*88(+8(#*)','$$:%M7)('0'%4*$'$%+/%&'D#*,4'?%+(%4'()*#,%
S'74'8)#+,*.S%4*$'$?%*('%#08+()*,)%/+(%4('*)#,5%S)"'%4+00+,%.*2%2#)"#,%+(5*,#g*)#+,$%U.#3'%
5+D'(,0',)V%)"*)%&'9#,'%2"*)%#$%('*..1%*88(+8(#*)'%*,&%2"*)%#$%,+)S%Z@')'($?%N>>`?%8:%cO[:%!"#$%
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8*()#4-.*(%8.*,,#,5%D',-':%L4)+($%0*1%-$'%)"#$%#,/+(0*)#+,%)+%&'4#&'%#/%)"'1%$"+-.&%$''3%+-)%*%
,'2%D',-'%)+%)*3'%6'))'(%*&D*,)*5'%+/%+88+()-,#)1%$)(-4)-('$%.#3'%)"+$'%8(+D#&'&%61%
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&'D'.+80',)?%+(%<-'$)#+,#,5%#/%)"'%8.*,,#,5%8(+4'$$%#$%#)$'./%*$%*,%#08+$#)#+,%+,%L6+(#5#,*.%
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$1$)'0:%L44+(&#,5%)+%)"'%.+5#4%+/%*88(+8(#*)','$$?%2"',%)"'%&+0#,*,)%D#'2%+/%*88(+8(#*)'%-$'%
#$%D#+.*)'&?%)"'%$)*)'%0*1%*4)%)+%',/+(4'%)"#$%D#'2:%L,%',/+(4'0',)%0'4"*,#$0%4+-.&%#,4.-&'%
8.*,,#,5%('/+(0:
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('/'(('&%)+%*.$+%*$%0+&'(,#$*)#+,%+(%$)('*0.#,#,5[?%0-4"%+/%2"#4"%#$%4+,$#&'('&%2#)"#,%*%Wh%
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4"*(*4)'(#g'&%*$%$''3#,5%)+%S&'.#D'(%5(+2)"%0+('%'/9#4#',).1S%2"#.'%*.$+%)*3#,5%+,%6+*(&%
$-$)*#,*6#.#)1?%4.#0*)'%4"*,5'?%*,&%$+4#*.%B-$)#4'%#$$-'$%ZL..0',&#,5'(%*,&%C*-5")+,?%N>ON?%8:%
bc[:%!"'%5+D'(,0',)%("')+(#4%+/%8.*,,#,5%('/+(0%/+4-$'$%+,%S#,)'5(*)#+,S%+/%8+.#41%0*3#,5%
Making space for reconciliation in Canada's planning system 76
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S4+,)(*)+(1S%+(%S('&-,&*,)S%8(+5(*0$%)"*)%.*43%4++(&#,*)#+,%ZJ)'*&%*,&%E'#B'($?%N>>b[:%
P'/+(0$%#,4.-&'%,'2%D',-'%(-.'$?%&#$<-*.#/1#,5%$+0'%*4)+($%/(+0%$8'*3#,5?%'74.-&#,5%4'()*#,%
#$$-'$%/(+0%&'6*)'%ZE*(('$?%N>>`?%#,%E')g5'(?%N>OO[?%0+&#/1#,5%)"'%0'*,#,5%+/%$+0'%#$$-'$?%
0+D#,5%8.*,,#,5%&'4#$#+,%8+#,)$%)+%"#5"'(%+(%.+2'(%$4*.'$%+/%5+D'(,0',)?%*,&%$8''&#,5%-8%
&'4#$#+,%)#0'.#,'$%ZR+2'..%*,&%G2',$?%N>>a[:%R+2'..%*,&%G2',$%ZN>>a[%"*D'%)(*4'&%"+2%Wh%
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"*D'%#08+()*,)%'//'4)$%+,%)"'%+8)#+,$%*D*#.*6.'%)+%8+.#)#4*.%*4)+($%2"+%D',-'%$"+8%*,&?%)"-$?%
)"'%,*)-('%+/%8.*,,#,5%4"*,5'%#,%)"'%/-)-(':%J-4"%*%8(+4'$$%&+'$%,+)%5+%-,,+)#4'&:%@.*,,#,5%
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'7*4'(6*)'&%('*4)#+,S%ZR+2'..?%N>ON?%8:O`[:
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)"'%$-0%+/%8.*,,#,5%)(*&#)#+,$?%8+2'(%&1,*0#4$%*,&%4+,9.#4)%)"*)%+8'(*)'%('.*)#+,*..1%6')2'',%
$4*.'$%*,&%*4(+$$%$8*4':%@.*,,#,5%,+)%+,.1%"*$%*$%*%S$)(*)'5#4%*,&%$)''(#,5S%/-,4)#+,?%6-)%*.$+%*%
.'$$%&'0+4(*)#4%+,'%)"*)%#$%S$-6$'(D#',)%)+%8+2'(/-.%D'$)'&%#,)'('$)$%#,%)"'%&'D'.+80',)%
8(+4'$$j%ZL..0',&#,5'(%*,&%C*-5")+,?%N>O>?%8:%=>b_%H#/)*4"'.?%Obb=[:%!"'%+6B'4)$%+/%
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#,9.-',4'%+,%)"'%0+&'$%+/%5+D'(,*,4'%)"*)%'$)*6.#$"%)"'%8(+4'&-(*.%4+,&#)#+,$%/+(%8.*,,#,5%
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4+,9.#4)%0*1%'(-8)%*$%*%('$-.)%+/%)"'$'%('/+(0$:%R+,9.#4)%"*$%*,%#08+()*,)%(+.'%)+%8.*1%#,%
$"*8#,5%8+2'(%&1,*0#4$%*,&%8(+D#&#,5%+88+()-,#)1%/+(%4"*,5'?%*$%+-).#,'&%#,%)"'%8('D#+-$%
4"*8)'(:%I)%#$%*.$+%#08+()*,)%/+(%$"*8#,5%D',-'%$"+88#,5%$)(*)'5#'$T%ZO[%4+,9.#4)%0*1%'78*,&'&%
*,&p+(%6'%&#$8.*4'&%)+%*.)'(,*)#D'%D',-'$?%$+0')#0'$%)+%&#//'(',)%$4*.'$%*,&%0+&'$%+/%
8.*,,#,5?%$+0')#0'$%/*4#.#)*)#,5%)"'%'//'4)#D','$$%+/%+88+()-,#)1%$)(-4)-('$%#,%)"'%+(#5#,*.%
D',-'_%ZN[%4+,9.#4)%0*1%6'%$"#'.&'&%/(+0%+)"'(%D',-'$%$+%*4)+($%0*1%6'%.#0#)'&%#,%)"'#(%*6#.#)1%
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77 GALBRAITH
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L..0',&#,5'(%*,&%C*-5")+,?%N>O>_%E')g5'(?%N>OO_%G2',$%*,&%R+2'..?%N>OO[:%I,%"#$%('$'*(4"?%
I,4"%+6$'(D'$%)"*)%8+.#)#4$%)"*)%2'('%+,4'%0*,*5'&%61%"#5"'(%+(&'($%+/%5+D'(,0',)%*('%
&#$8.*4'&%)+%.+4*.X.'D'.%8.*,,#,5%D',-'$:%C'%*(5-'$%)"*)%4+,9.#4)%*)%)"#$%.*)'(%$)*5'%*,&%.+2'(%
$4*.'%#,%)"'%8+.#41%8(+4'$$%0*1%('<-#('%0+('%)#0'%*,&%('$+-(4'$%)+%*&'<-*)'.1%*&&('$$%*%
4+,9.#4)%)"*,%*)%)"'%8+.#41%&'D'.+80',)%$)*5'$:%A'*.#,5%2#)"%)"#$%4+,9.#4)%61%4',)(*.#g#,5%8+2'(%
*,&%*-)"+(#)1%*,&%&',1#,5%(#5")$%)+%4#)#g',$?%"'%*(5-'$?%"*$%)"'%8+)',)#*.%)+%4('*)'%S*%
5','(*)#+,%+/%;IEYH$S%U,+)X#,X01X6*431*(&V?%+(%4#)#g',$%&#$#..-$#+,'&%2#)"%8.*,,#,5%ZI,4"?%
N>ON?%8:%`N>[:
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&#$8.*4'0',)%0*1%*.$+%+44-(%*4(+$$%&#//'(',)%0+&'$%+/%5+D'(,*,4':%!"*)%#$?%4'()*#,%#,&-$)(1%
$'4)+($%+(%8+.#41%#$$-'$%2#..%6'%)('*)'&%&#//'(',).1%)"*,%+)"'($:%I,%)"'%Wh?%,*)#+,*.%8+.#4#'$%
*#0'&%*)%'78*,&#,5%2#,&%','(51%*,&%+)"'(%(','2*6.'$%"*D'%6'',%)#'&%)+%8.*,,#,5%('/+(0$%
ZR+2'..?%N>>d[:%I,%R*,*&*?%0*B+(%8(+B'4)$%*,&%8#8'.#,'$%"*D'%('4',).1%6'',%*//+(&'&%5('*)'(%
/'&'(*.X.'D'.%$)*)'%4+,)(+.%ZA+'..'?%N>ON[:%A'$8#)'%)"#$%4+,)(+.?%)"'('%('0*#,$%*%3#,&%+/%
S)'((#)+(#*.%$)(-55.'S%6')2'',%8.*,,#,5%*(',*$%+8'(*)#,5%*)%&#//'(',)%$4*.'$%)"*)%0*1%('$-.)%#,%
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8(+D#,4'$%0*1%5(*,)%8+2'($%)+%.+4*.%*-)"+(#)#'$:%G)"'(%#$$-'$%'7"#6#)%B-(#$)#+,*.%+D'(.*8%
6')2'',%8(+D#,4#*.%*,&%/'&'(*.%5+D'(,0',)$%Z':5:%+//$"+('%+#.%*,&%5*$%*,&%0*B+(%8(+B'4)$%#,%
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.'5*.%#0*5#,*)#+,?%S4*-5")%6')2'',%)"'%8'(#8"'(#'$%+/%4+08')#,5%8+.#)#4*.%B-(#$)#+,$S:%!"'%
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]"#.'%)"'#(%2+(3%0*1%6'%4+,)#,-+-$%*,&%#,)'5(*)'&%*4(+$$%*..%('.*)'&%8*()$%+/%)"'%
',D#(+,0',)?%)"'1%2+(3%2#)"%)"'%8(+D#,4#*.%*,&%/'&'(*.%5+D'(,0',)$%)"*)%"*D'%$'5('5*)'&%
*-)"+(#)1%ZQ+,'$%')%*.:?%N>O>[:
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&#$8.*4'%4+,9.#4)%*$%2'..:%!"+$'%2"+%.+$'%)"'%8+.#41%&'6*)'%#,%+,'%D',-'%0#5")%0+D'%D',-'$%
*,&%4"*,5'%)"'%(+$)'(%+/%8*()#4#8*,)$%)+%5*#,%)(*4)#+,%+D'(%)"'%8+.#41%#$$-':%J108*)"1%0#5")%6'%
Making space for reconciliation in Canada's planning system 78
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'//'4)#D'.1%$"#'.&#,5%*,%#$$-'%/(+0%(#D*.%#,)'('$)$%ZA-&.'1%*,&%P#4"*(&$+,?%Obba?%8:%af[:%J#,4'%
'*4"%D',-'%"*$%#)$%+2,%4"*(*4)'(%*,&%#$%0+('%+(%.'$$%('4'8)#D'%)+%4'()*#,%8+.#41%#$$-'$%
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+)"'(%D',-'$%D'(1%2'..%Z*.$+%$''%S8+.#41%0+6#.#)#'$S%$-4"%*$%@'43%*,&%!"'+&+('?%N>O>[:%I)%0#5")
*.$+%6'%)"'%&'4#$#+,%+/%)"'%8+.#)#4*.%*4)+(%)+%*D+#&%)"'%D',-'%$"+88#,5%$)(*)'51?%8'("*8$%&-'%)+%
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C+2'D'(?%*%4',)(*.%$)(-55.'%.#'$%#,%)"'%8(+6.'0%&'9#,#)#+,:%C+2%#$%)"'%8(+6.'0%&'9#,'&%#,%)"'%
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+,%)"'%2*1%*,%#$$-'%#$%('4'#D'&%#,%*%D',-':%L%8+.#)#4*.%#$$-'%4*,%*.$+%6'%,'-)(*.#g'&%#,%)"#$%2*1%
61%'78*,&#,5%)"'%8-(8+$'%+/%*%D',-'%)+%#,4.-&'%+)"'(%+6B'4)#D'$?%.#3'%'4+,+0#4%5(+2)":%!"#$%
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8+.#)#4*.%','(5#'$%*$$+4#*)'&%2#)"%#):
Summary and synthesis: Theoretical propositions
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*88(+*4"%"*$%(*#$'&%#08+()*,)%4(#)#4#$0$%+/%)"'%8-(8+$'%*,&%*#0$%+/%('4+,4#.#*)#+,?%
4+,9#(0#,5%)"'%4+.+,#*.%<-*.#)#'$%+/%8.*,,#,5:%A'$8#)'?%+(%8'("*8$%6'4*-$'%+/?%)"'$'%4(#)#4#$0$?%
4+,$-.)*)#+,%#$%+/)',%-$'&%)+%.'D'(*5'%('$+-(4'$%*,&%4('*)'%0+('%B-(#$)#+,*.%$8*4'%/+(%
I,',+-$%8+.#)#4*.%*4)+($%)+%"*D'%)"'#(%#,)'('$)$%"'*(&%#,%8+.#41%#08.'0',)*)#+,%*,&%('5*#,%
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79 GALBRAITH
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)"'%$8*4'$%)"'0$'.D'$:%%\+(%)"'$'%*,&%+)"'(%('*$+,$?%8.*,,#,5%8(+D#&'$%*%"#5".1%*88(+8(#*)'%
.',$%/+(%'7*0#,#,5%)"'%$4*.*(%4+08.'7#)1%*,&%#,"'(',)%-,'D',,'$$%+/%)"'%('4+,4#.#*)#+,%
8(+4'$$:%I)%#$%8+$#)'&%)"*)%2"#.'%)"'$'%$8*4'$%+8'(*)'%#,%2*1$%)"*)%)-+.%)+%6'%4+.+,#*.%*,&%
/-,4)#+,%*$%*%8(+4'$$%/+(%#08.'0',)#,5%('$+-(4'%&'D'.+80',)%*5',&*$?%4'()*#,%4+,&#)#+,$%*,&%
0'4"*,#$0$%!(-%*D*#.*6.'%#,%8.*,,#,5%$1$)'0$%)"*)%4*,%6'%-$'&%)+%+8',%-8%+88+()-,#)#'$%/+(%
4"*,5#,5%)"'%2*1%#,%2"#4"%('4+,4#.#*)#+,%#$%#08.'0',)'&%*4(+$$%)"#$%$1$)'0:%
L%$')%+/%8(+8+$#)#+,$%"*D'%6'',%&'D'.+8'&%+-)%+/%)"'%*,*.1$#$%8('$',)'&%#,%R"*8)'($%!2+%*,&%
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)+%8.*4'%)"*)%&#('4).1%4"*..',5'$%)"'%*88(+*4"%)+%#08.'0',)#,5%('4+,4#.#*)#+,%8+.#41%
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*4)+($%)+%D',-'%$"+8%*,&%'78.+#)%+88+()-,#)1%$)(-4)-('$%#,%)"'%/-)-(':%
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$#,5.'%4+"'(',)%*,&%&+0#,*,)%8(+4'$$S:%!"'%8(+8+$#)#+,$%*6+D'%"#5".#5")%)"'%4+08.'7#)1%+/%
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-8+,%)"#$%/(*0'2+(3%)+%4+,$)(-4)%*%('$'*(4"%0')"+&+.+51%)"*)%*))',&$%)+%)"#$%4+08.'7#)1:
81 GALBRAITH
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CHAPTER 4. CASE STUDY RESEARCH AND HAIDA GWAII
Introduction
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Making space for reconciliation in Canada's planning system 82
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,-06'(%+/%4+08.'7%')"#4*.%#$$-'$%2'('%/*4'&%)"(+-5"+-)%)"'%('$'*(4"%8(+4'$$%*,&%*('%*.$+%
&#$4-$$'&%#,%)"#$%4"*8)'(:
1. Designing case study research
F'((#,5%+,%)"'%S4*$'%$)-&1%8*(*&+7ST%S*.)"+-5"%0-4"%+/%2"*)%2'%3,+2%*6+-)%)"'%'08#(#4*.%
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+6$'(D'&?%2"#.'%)"'%%)*.$%S*))'08)$%)+%'.-4#&*)'%4'()*#,%/'*)-('$S%+/%)"'%8"',+0',+,%ZN>>d?%8:
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83 GALBRAITH
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<-*.#)#'$%)"*)%*..+2%('$'*(4"'($%)+%4+,$#&'(%#08+()*,)%4+,)'7)-*.%#,/+(0*)#+,%Z\.1D6B'(5?%
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�',$#+,$%+/%*%8"',+0',+,:%!"'$'%+6$'(D*)#+,$%0*1%6'%*44-0-.*)'&%*..%2#)"#,%*%$#,5.'%4*$'
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Making space for reconciliation in Canada's planning system 84
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2. Selecting the cases to study
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('.*)#+,$%"*D'%4"*,5'&%+D'(%)#0'%#,%('.*)#+,%)+%8.*,,#,5:%!"'$'%4+,9#5-(*)#+,$%*('T%Z*[%0+D#,5%
8'+8.'%+,)+%I,&#*,%P'$'(D'%.*,&$%*,&%+-).*2#,5%)"'%SI,&#*,%.*,&%<-'$)#+,S%Z0#&XOb)"%4',)-(1%
)+%ObNd[_%Z6[%4('*)#,5%6*((#'($%*,&%+88+()-,#)#'$%)+%4"*..',5'%)"#$%&+0#,*,)%D#'2%)"(+-5"%)"'%
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85 GALBRAITH
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Making space for reconciliation in Canada's planning system 86
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•A+4-0',)%)"'%-,'D',,'$$?%)"'%)',$#+,?%*,&%)"'%4+,9.#4)%*(+-,&%#08.'0',)*)#+,%+/%
8+.#4#'$%)"*)%0#5")%*(#$'%)"(+-5"%)"'%0'4"*,#$0$%+/%('4+,4#.#*)#+,_
•P'D'*.%$+0'%+/%)"'%-,&'(.1#,5%0'4"*,#$0$%+/%Z)(*,$/+(0*)#D'%*,&%+88('$$#D'[%
8.*,,#,5%4"*,5'$%#,%*,%I,',+-$%8.*,,#,5%4+,)'7)_%*,&
Od !"'%*,*.1$#$%+/%8+.#41%4"*,5'%"*$%#)$%+2,%0')"+&+.+51%.#)'(*)-(':%C+2.'))%*,&%R*$"+('%ZN>>b?%8:%c`[%8+#,)%+-)%
)"*)%S)"'('%#$%2#&'$8('*&%*44'8)*,4'%)"*)%*,1%*,*.1$#$%+/%8+.#41%&'D'.+80',)%0-$)%6'%"#$)+(#4*.%#,%,*)-('%*,&%
4+D'(%1'*($%+(%'D',%&'4*&'$%+(%0+('S:%!"'1%*(5-'%)"*)%$-4"%*,*.1)#4*.%&'$#5,%#$%,+)%,'4'$$*(#.1%('<-#('&%
S6'/+('%0'*,#,5/-.%U'78.*,*)+(1V%4+,4.-$#+,$%4*,%6'%&(*2,S%Z8:%fc[:
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•M78.*#,%)"'%('.*)#+,$"#8%6')2'',%6(+*&'(%$"#/)$%*,&%$4*.'$%+/%5+D'(,*,4'%*,&%)"'%
/-,4)#+,%+/%8.*,,#,5%*,&%0'4"*,#$0$%+/%('4+,4#.#*)#+,:
!+%*&&('$$%)"'$'%+6B'4)#D'$?%*%$')%+/%('$'*(4"%0')"+&$%"*D'%6'',%4*('/-..1%$'.'4)'&%)+%',$-('%
)"'1%*('%*88(+8(#*)'%/+(%)"'%0')"+&+.+51%*,&%)"'+(')#4*.%/(*0'2+(3%&'$4(#6'&%*6+D'%*,&%#,%
)"'%8('D#+-$%4"*8)'(:%M*4"%+/%)"'$'%0')"+&$%#$%&'$4(#6'&%*,&%B-$)#9#'&%6'.+2:
3. The research process and methods
I,%*&&#)#+,%)+%4*('/-..1%#&',)#/1#,5%*,&%B-$)#/1#,5%)"'%4*$'%$'.'4)#+,?%)"'%('$'*(4"%0')"+&$%
-$'&%)+%4+..'4)%*,&%#,)'(8(')%#,/+(0*)#+,%0-$)%6'%&'$4(#6'&%*,&%B-$)#9#'&:%!"#$%$'4)#+,%
$-00*(#g'$%)"'%('$'*(4"%8(+4'$$%9#($)?%)"',%&'$4(#6'$%'*4"%&#$4(')'%('$'*(4"%0')"+&%*,&%#)$%
.#0#)*)#+,$:%L..%+/%)"'$'%*('%4+,$#&'('&%#,%('.*)#+,%)+%)"'#(%$-#)*6#.#)1%/+(%'7*0#,#,5%
#,$)#)-)#+,*.%4"*,5'%#,%*,%I,',+-$%8.*,,#,5%4+,)'7):
L%,-06'(%+/%&#$4-($#D'%*88(+*4"'$%"*D'%6'',%'08.+1'&%#,%I,',+-$%8.*,,#,5%('$'*(4"?%
$-4"%*$%#,)'(8(')#D'%)'7)-*.%*,*.1$#$%ZY*((1%*,&%@+()'(?%N>OO[?%2"#.'%+)"'($%*&+8)%0')"+&$%
)"*)%('$'06.'%)"+$'%-$'&%#,%8+.#)#4*.%'4+.+51%Z':5:%H#/)*4"'.%*,&%\',$)'(?%Obbd[:%J#,4'%)"'%
.#)'(*)-('%#$%(*)"'(%,*$4',)%ZC#66*(&%')%*.:?%N>>=[?%D'(1%.#)).'%5-#&*,4'%'7#$)$%+,%*88(+8(#*)'%
0')"+&$%+(%0')"+&+.+5#'$O=:%I,$)'*&?%*%$0*..%6+&1%+/%.#)'(*)-('%('/'(('&%)+%*$%SI,',+-$%
0')"+&+.+5#'$S%#$%-$'&%)+%B-$)#/1%)"'%('$'*(4"%0')"+&$%-$'&%"'('T%8*()#4#8*,)%+6$'(D*)#+,?%
#,)'(D#'2$?%&+4-0',)%('D#'2?%*,&%*%/+(0%+/%4(#)#4*.%&#$4+-($'%*,*.1$#$:
Indigenous methodologies
]'%0*#,)*#,%)"*)%)"'%8(#0*(1%8-(8+$'%+/%')"#4$%5-#&'.#,'$%Z/+(%*4*&'0#4$%2#$"#,5%)+%4*((1%+-)%
('$'*(4"%2#)"%I,',+-$%8'+8.'$[%$"+-.&%6'%)+%2+(3%#,%4+..*6+(*)#+,%2#)"%)"+$'%I,',+-$%
4+00-,#)#'$%)"*)%4"++$'%)+%6'%#,D+.D'&%#,%('$'*(4"?%#,%+(&'(%)+%*$$#$)%)"'0%#,%)"'%8(+)'4)#+,%+/%
)"'#(%(#5")$%*,&%$'4-(#)1%ZI,',+-$%@'+8.'$%J8'4#*.)1%F(+-8%+/%)"'%LLF?%N>O>?%8:%N[:
R*$).'&+,%ZN>ON?%8:Oac[%*&D+4*)'$%('$'*(4"%)"*)%#$%4+00#))'&%)+%S('$8'4)?%('.'D*,4'?%
('4#8(+4#)1?%*,&%('$8+,$#6#.#)1S:%!"#$%/+..+2$%J0#)"S$%ZN>>a?%8:%b[%S&'4+.+,#g#,5%0')"+&+.+5#'$S%
*88(+*4"%)"*)%4*..$%/+(%('$'*(4"%)"*)%#$%S0+('%('$8'4)/-.?%')"#4*.?%$108*)"')#4%*,&%-$'/-.S:%I,%
)"#$%*88(+*4"?%('$'*(4"%2+(3$%)+2*(&$%S&'D'.+8#,5%('.*)#+,$"#8$%6*$'&%+,%)(-$)_%4"*..',5#,5%
O= \+(%#08+()*,)%'74'8)#+,$?%$''%@+()'(%ZN>>f_%N>O>[:
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4+,D',)#+,*.%('$'*(4"%8*(*2$_%4('*)#,5%*D',-'$%/+(%I,',+-$%8'+8.'$?%4+00-,#)#'$?%*,&%
+(5*,#g*)#+,$%)+%&')'(0#,'%)"'%.'D'.%+/%#,D+.D'0',)%)"'1%2*,)%)+%)*3'%#,%('$'*(4"%8(+4'$$'$%
*,&%+-)4+0'$_%*,&%&'D'.+8#,5%$)(+,5'(%')"#4*.%5-#&'.#,'$S%ZR*$).'&+,?%N>ON?%8:%Oac[:%]"#.'%
)"'$'%0')"+&+.+5#'$%*('%.*(5'.1%2(#))',%61%*,&%/+(%,+,XI,',+-$%('$'*(4"'($?%)"#$%('$'*(4"%
#$%4+00#))'&%)+%*%$)(+,5%$')%+/%')"#4$%)"*)%D'(1%0-4"%('9.'4)%01%+2,%8+$#)#+,*.#)1:%Y+7%O%+//'($%
0+('%#,$#5")$%+,%)"'%2*1%01%+2,%#&',)#)1%"*$%#,9.-',4'&%)"'%('$'*(4"%0')"+&+.+51:
I)%0-$)%6'%8+#,)'&%+-)?%)"',?%)"*)%#,$)#)-)#+,*.%*,&%8+.#41%4"*,5'%)"'+(#'$%"*D'%6'',%6-#.)%
-8+,%2'$)'(,%8*(*2$:%!"'%.+,5%"#$)+(1%+/%#,$)#)-)#+,$%*,&%5+D'(,*,4'%)"*)%4*,%6'%)(*4'&%
2#)"#,%I,',+-$%"#$)+(#'$%*,&%8(*4)#4'$%ZY'(3'$%')%*.:?%N>>>[%*('%'74.-&'&%/(+0%)"#$%
.#)'(*)-(':%I,$)#)-)#+,*.%*,&%8+.#41%4"*,5'%)"'+(#'$%&+%.#)).'%)+%+6$'(D'%)"'$'%+D'(.*88#,5%*,&%
4+08')#,5%+,)+.+5#'$%Z!-(,6-..?%N>>d[_%#,&''&?%)"'1%)',&%)+%+6B'4)#/1%8+.#41%*,&%*))'08)%)+%
+//'(%-,#D'($*.#g#,5%)"'+(#'$%/+(%8+.#41%4"*,5'%Zn#))+-,?%N>>b[:%R*..#,5%+,%+)"'($%)+%&(*2%/(+0%
)"'%)'*4"#,5$%+/%)"'%I,',+-$%8'+8.'$?%J-,&6'(5%ZN>Oc?%8:%dX=[%4+,$#&'($%.'$$+,$%/(+0%)"'%
4+00-,#)#'$%$"'%4+,&-4)$%('$'*(4"%2#)"%*,&%/+(%X%)"'%n*8*)#$)*$%q%)+%#&',)#/1%)2+%0*#,%$)'8$%
/+(%&'D'.+8#,5%0')"+&+.+5#'$%4+,4'(,'&%2#)"%&'4+.+,#g*)#+,T%ZO[%.+4*)'%3,+2.'&5'%#,%
('.*)#+,%)+%"+2%2'%3,+2%2"*)%2'%3,+2%#,%2*1$%)"*)%*..+2%)"'%('$'*(4"'(%)+%('9.'4)%-8+,%
)"'#(%8(#D#.'5'%+/%S$*,4)#+,'&%#5,+(*,4'S%)"*)%"*$%*..+2'&%4+.+,#*.%$#.',4'$%)+%6'%8'(8')-*)'&_%
*,&?%ZN[%.'*(,%)+%3,+2%)"'%+)"'(?%('$8'4)#,5%)"'%0-.)#8.#4#)1%+/%.#/'%2+(.&$%*,&%*-)+,+01?%
(*)"'(%)"*,%$#08.1%.'*(,#,5%S/(+0S%+(%S*6+-)S%)"'%+)"'(:%
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Box 1. Researcher commitment to the idea of reconciliation
The decision to adopt an Indigenous methodology is important from my perspective. A 'special burden
belongs with those who have both benefited from injustice and are favourably situated to ameliorate its
effects' (Young, 2004 in James, 2009). As a Canadian of Scottish-English-German ancestry, I acknowledge
the injustices that were suffered and the privilege granted to my ancestors who benefited from settling upon
Anishinabek lands. Most notably, the benefits accrued over the disagreement between the Anishinabek
over the terms of the Longwoods Treaty (1818-1822)19, which includes the present and ongoing dispute
over title to their lands (Richmond, 2013). The research process has allowed me to develop some tools to
begin a personal reconciliation process. Research on diverging perspectives of what reconciliation means
and the various avenues for achieving a more respectful relationship have helped me better understand my
own position as a researcher, citizen of Canada, settler, and human being.
Q+,'$%')%*.:%ZN>O>?%8:%`[%"*D'%"#5".#5")'&%*%$')%+/%C*#&*%8(#,4#8.'$%)"*)%)"'1%*88.1%)+%*%0*(#,'%
-$'%8.*,,#,5%8(+4'$$%+,%C*#&*%F2*##?%+,'%+/%2"#4"%#$%-$'&%#,%*%$#0#.*(%2*1%#,%)"#$%('$'*(4":%
!"'%C*#&*%8(#,4#8.'%)"*)%2*$%-$'&%)+%$"*8'%)"'%('$'*(4"%0')"+&+.+51%#$1U%.!1!.1.,,/,,1,%.!%q%
F#D#,5%*,&%('4'#D#,5%q%P'4#8(+4#)1:%!"#$%8(*4)#4'%#$%4+,$#&'('&%S'$$',)#*.S%#,%#,)'(*4)#+,$%2#)"%
'*4"%+)"'(%*,&%)"'%,*)-(*.%2+(.&:%S]'%4+,)#,-*..1%5#D'%)"*,3$%)+%)"'%,*)-(*.%2+(.&%/+(%)"'%5#/)$%
)"*)%2'%('4'#D'S:%!+%5(*$8%)"'%0'*,#,5%+/%)"#$%5-#&#,5%8(#,4#8.'%('<-#('$%#,)',$#D'%)(*#,#,5%#,%
C*#&*%2*1$%+/%3,+2#,5%)"*)%#$%,+)%8+$$#6.'%2#)"#,%)"'%4+,9#,'$%+/%*%$#,5.'%@"A:%I,',+-$%
2*1$%+/%3,+2#,5%*('%6*$'&%+,%*%4+08.'7%/*6(#4%+/%S$)+(#'$?%D*.-'$?%$+4#*.%('.*)#+,$?%*,&%
8(*4)#4'$S%Z;*&*$&1?%N>>c?%8:%ONd[:%!"#$%('$'*(4"%#$%D'(1%0-4"%'06'&&'&%2#)"#,%*%
4+,D',)#+,*.%2'$)'(,%$+4#*.%('$'*(4"%8*(*2?%#,)'('$)'&%#,%*%(*)"'(%$8'4#9#4%8"',+0',+,%
4+,4'(,'&%2#)"%)"'%&#$4#8.#,'$%+/%5'+5(*8"1?%8.*,,#,5?%*,&%8+.#41%$)-&#'$:%MD',%)"+-5"%)"'%
0')"+&+.+5#4*.%/(*0'2+(3%*))'08)$%)+%*))',&%)+%0-.)#8.'?%4+,9.#4)#,5%+,)+.+5#'$?%)"'%C*#&*%
8(#,4#8.'%"*$%6'',%&#$)#..'&%)+%#)$%'$$',4'%*,&%"*$%.+$)%0+$)%+/%#)$%0'*,#,5:%;*&*$&1%ZN>>c?%8:%
ONd[%4(#)#<-'$%)"#$%&#$)#..*)#+,%8(+4'$$?%$-55'$)#,5%)"*)%)"'%8(+4'$$%4*,%*&D*,)*5'%4'()*#,%
8'+8.'%*,&%#,)'('$)$%+D'(%+)"'($:%!"'%8(+4'$$%+/%&#$)#..#,5%)"#$%8*()#4-.*(%C*#&*%8(#,4#8.'?%
"+2'D'(?%2*$%.'&%61%C*#&*%4#)#g',$%)(*#,'&%#,%6+)"%$4#',)#9#4%*,&%C*#&*%2*1$%+/%3,+2#,5:%!"'%
4+,4'8)%2*$%&#$)#..'&%/+(%-$'%#,%*%0*(#,'%8.*,,#,5%8(+4'$$%)"*)%2*$%-,&'()*3',%#,%*%
4+..*6+(*)#D'%$'))#,5:%!"#$%('$'*(4"?%+,%)"'%+)"'(%"*,&?%#$%*,%#,&'8',&',)%@"A%8(+B'4)%*,&%
&+'$%,+)%+//'(%*%4+..*6+(*)#D'%+88+()-,#)1%2#)"%C*#&*%4+00-,#)1%0'06'($:%!"-$?%)"'%4+,4'8)%
#$%*&+8)'&%2#)"+-)%&#('4)%C*#&*%+D'($#5"):%C+2'D'(?%'//+()$%"*D'%6'',%0*&'%)+%-,&'()*3'%*%
4+00-,#)1%8''(X('D#'2%+/%)"#$%('$'*(4"?%*//+(&#,5%$+0'%+D'($#5"):%!"'%)',$#+,%6')2'',%
Ob !"'%!('*)1%'$)*6.#$"'&%)2+%('$'(D'$%#,%'74"*,5'%/+(%8*10',)%)+%$"*('%)"'%.*,&%2#)"%Y(#)#$"%$')).'($:%I,%)"'%
O=N>$?%+,'%+/%)"'%('$'(D'$%2*$%)*3',%*2*1:%!"'%N>Oc%Y#5%Y'*(%.*,&%4.*#0%*5(''0',)%5#D'$%6*43%)"#$%)(*4)%+/%
.*,&%2#)"%4+08',$*)#+,?%6-)%&+'$%,+)%*&&('$$%)"'%6(+*&'(%)#).'%&#$8-)'%ZP#4"0+,&?%N>Oc[:
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C*#&*%2*1$%+/%3,+2#,5%*,&%2'$)'(,%('$'*(4"%)(*&#)#+,$%#$%(*#$'&%#,%*%('4',)%4+..'4)#+,%+/%
$4#',)#9#4%$)-&#'$%+,%C*#&*%F2*##:%!"'%$)-&#'$%"#5".#5")%)"'%('4',)%S4+,D'(5',4'%*,&%*%
('4+,4#.#*)#+,%+/%$4#',4'%2#)"%UC*#&*V%"#$)+(#'$ST%SJ4#',)#$)$%*('%$)#..%)(1#,5%)+%9#5-('%+-)%"+2%
)"'%$-,%*,&%)"'%0++,%5+)%-8%)"'('?%*,&%2"#.'%)"'1%"*D'%)"'+(#'$?%5#D'%)"'0%)#0'%*,&%)"'1%2#..%
4+0'%6*43%)+%-$:%L,&%2'%4*,%)'..%)"'0?%6'4*-$'%#)%2*$%)+.&S%ZF--B**2?%N>>`?%8:%7###[:
!"#$%Z&#$)#..'&[%8(#,4#8.'%+/%U%.!1!.1.,,/,,1,%.!1q%F#D#,5%*,&%('4'#D#,5%q%P'4#8(+4#)1%q%#$%*88.#'&%
)+%5-#&'%)"'%')"#4*.%8(*4)#4'%+/%)"#$%('$'*(4":%J#,4'%$#5,#9#4*,)%*0+-,)$%+/%#,/+(0*)#+,%*,&%
5-#&*,4'%"*D'%6'',%('4'#D'&%/(+0%('$#&',)$%+/%C*#&*%F2*##?%)"#$%('$'*(4"%#$%&'$#5,'&%)+%S5#D'%
6*43S:%!"'%('$'*(4"%&'$#5,%*&&('$$'$%)"#$%+6B'4)#D'%#,%)2+%4',)(*.%2*1$:%\#($)?%)"'%+(#5#,*.%
('$'*(4"%&'$#5,%#,4.-&'&%*%8.*,%)+%&'D'.+8%*%('4#8(+4*.%('.*)#+,$"#8%+,%C*#&*%F2*##?%/+..+2#,5%
)"'%)',')$%+/%4+00-,#)1X6*$'&%8*()#4#8*)+(1%('$'*(4"%ZR*$).'&+,?%N>ON[%*,&%4+00-,#)1X
6*$'&%('$'*(4"%ZE*(3'1%')%*.:?%N>>b[:%!"'%('$'*(4"%2*$%+(#5#,*..1%&'D'.+8'&%)+%9#,&%*,%
+88+()-,#)1%)+%8*(),'(%2#)"%*,%+(5*,#g*)#+,%#,%*%2*1%)"*)%2+-.&%8(+D#&'%*%$'(D#4'%*,&p+(%*%
S&'.#D'(*6.'S%2#)"%#,$)(-0',)*.%D*.-'%)+%)"'%+(5*,#g*)#+,:%!"#$%8*(),'($"#8%2+-.&%$"*8'%)"'%
('$'*(4"%<-'$)#+,%*,&%8(+4'$$%#,%*%2*1%)"*)%6'))'(%('9.'4)$%)"'%D*.-'$%*,&%#,)'('$)$%'78('$$'&%
+,%C*#&*%F2*##:%]"',%#)%2*$%&'4#&'&%)"*)%*%4+..*6+(*)#D'%&'$#5,%2*$%,+)%/'*$#6.'?%*%('$'*(4"%
8(+B'4)%#,%*&&#)#+,%)+%)"'%@"A%2*$%-,&'()*3',%#,$)'*&%Z*%&')*#.'&%&'$4(#8)#+,%+/%)"#$%('$'*(4"%
8*)"%#$%5#D',%#,%L88',%L[:%!"'%$'8*(*)'%8(+B'4)%#$%4*..'&%SL%R+,D'($*)#+,%+,%P'$'*(4"S%*,&%
#,D+.D'&%4+..'4)#,5%*,&%$-00*(#g#,5%+,X#$.*,&%D*.-'$%*6+-)%('$'*(4"?%*,&%('D#'2#,5%'7#$)#,5%
('$'*(4"%+,%',D#(+,0',)*.%8.*,,#,5%)"*)%"*$%6'',%2(#))',%-$#,5%'D#&',4'%4+..'4)'&%/(+0%+(%
*6+-)%C*#&*%F2*##?%#,4.-&#,5%8-6.#$"'&%*()#4.'$?%6++3$?%*,&%-,8-6.#$"'&%)"'$'$:%L%6(#'/%
&+4-0',)%$-00*(#g#,5%)"#$%#,/+(0*)#+,%"*$%6'',%&#$$'0#,*)'&%*,&%*%8-6.#4%&#$4-$$#+,%+,%
('$'*(4"%2*$%"'.&%#,%E*1%N>OO:%!"'%&+4-0',)%"*$%6'',%('D#$'&%)+%#,4.-&'%#&'*$%(*#$'&%#,%)"#$%
8-6.#4%&#$4-$$#+,:%!"'%&+4-0',)%2*$%0*&'%8-6.#4.1%*D*#.*6.'%+,%)"'%#,)'(,')N>?%*.+,5%2#)"%
0+$)%+/%)"'%+(#5#,*.%('$'*(4"%)"*)%2*$%('D#'2'&%Z2#)"%*-)"+($S%8'(0#$$#+,[:%L%&')*#.'&%
&'$4(#8)#+,%+/%)"#$%8(+B'4)%#$%#,4.-&'&%#,%L88',%Y:
!"'%$'4+,&%2*1%)"'%('$'*(4"%&'$#5,%+6$'(D'$%)"'%8(#,4#8.'%+/%('4#8(+4#)1%#$%)"(+-5"%)"'%
*&+8)#+,%+/%,*((*)#D'%*,&%&#$4+-($'%('$'*(4"%0')"+&+.+5#'$:%!"'%,*((*)#D'%0')"+&+.+51%"*$%
)2+%�',$#+,$%)"*)%+//'(%<-*.#)#'$%+/%S5#D#,5%6*43ST%ZO[%)"'%&'D'.+80',)%+/%,*((*)#D'$%+,%)2+%
N> !"'%WPe%)+%*44'$$%)"#$%&+4-0',)%#$T%"))8$Tpp$#)'$:5++5.':4+0p$#)'p('$'*(4""*#&*52*##p"+0'
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#,X&'8)"%4*$'$%2#..%/-,4)#+,%*$%-$'/-.%"#$)+(#4*.%('4+(&$%*,&%ZN[%)"'%&'D'.+80',)%+/%*%$-#)*6.'%
('$'*(4"%&'$#5,%Z#:':%+,'%)"*)%"+8'$%)+%S*$$#$)S%#,%8(+)'4)#,5%(#5")$%ZI,',+-$%J8'4#*.)1%F(+-8%
+/%)"'%LLF?%N>O>[[%4+-.&%+,.1%6'%4+,4'#D'&%+/%*/)'(%&(*2#,5%-8+,%,*((*)#D'$%$"*('&%61%
('$'*(4"%8*()#4#8*,)$:%I,%'$$',4'?%)"'%&#$4-($#D'%0')"+&+.+51%"*$%*..+2'&%/+(%('9.'4)#+,%-8+,%
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#,$)#)-)#+,*.%4"*,5'%('<-#('$%4+,$#&'(*)#+,%+/%4+,)'7)?%&'9#,#,5%2"+%$*1$%2"*)?%*,&%)"'%2*1%
8+.#)#4*.%*4)+($%0*3'%$',$'%+/%4"*,5':%L,%'7*0#,*)#+,%+/%&#$4+-($'?%)"',?%*..+2$%*,*.1$)$%)+%
+6$'(D'%#,$)#)-)#+,*.%4"*,5'%*,&?%'<-*..1?%#,$)#)-)#+,*.%&-(*6#.#)1:%!"'%8(+4'$$%*,&%0')"+&$%
-$'&%)+%+6$'(D'%&#$4+-($'%*('%&'$4(#6'&%6'.+2?%/+..+2'&%61%*%&'$4(#8)#+,%*,&%B-$)#9#4*)#+,%+/%
)"'%$8'4#9#4%&#$4-($#D'%*,*.1)#4*.%0')"+&$%-$'&%)"'%#,)'(8(')%*,&%9#,&%0'*,#,5%#,%)"'%+6$'(D'&%
&#$4+-($':%
Research tasks, access, and methods of observation and analysis
Research tasks
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#,/+(0*)#+,?%2"#.'%*.$+%+//'(#,5%*&D#4'%+,%&+#,5%('$'*(4"%+,%C*#&*%F2*##:%!"'%$'4+,&%$)'8%
)*3',%2*$%5*#,#,5%/+(0*.%8'(0#$$#+,%)+%-,&'()*3'%('$'*(4"%#,%C*#&*%F2*##:%L%/+(0*.%8(+8+$*.%
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97 GALBRAITH
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8(+)+4+.%/+(%8'(0#))#,5%('$'*(4"%)"(+-5"%)"'%R+-,4#.%+/%)"'%C*#&*%;*)#+,%,+(%'#)"'(%Y*,&%
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8(*4)#4'%)+%)"'%('$'*(4"'(:c>%L,&%2"#.'%)"'%W,#D'($#)1%+/%R*06(#&5'%&+'$%,+)%'78.#4#).1%('<-#('%
)"#$%3#,&%+/%8'(0#$$#+,%'#)"'(%Z)"+-5"%&+'$%('<-#('%*,%')"#4$%$'./X*$$'$$0',)[?%+)"'(%
-,#D'($#)#'$S%')"#4$%6+*(&$%2"+$'%$)-&',)$%2'('%4+,&-4)#,5%"-0*,%('$'*(4"%+,%C*#&*%F2*##%
Z':5:%W,#D'($#)1%+/%Y(#)#$"%R+.-06#*[%&+%('<-#('%)"*)%/+(0*.%8'(0#$$#+,%#$%5(*,)'&%61%)"'%
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#,%L-5-$)%N>O>?%+,'%0+,)"%8(#+(%)+%*((#D*.:%!"'%9#,*.%*88(+*4"%)+%*44'$$%('<-#('&%)#0'%)+%
6-#.&%('.*)#+,$"#8$?%$-4"%*$%S&(#,3#,5%)'*S%2#)"%8'+8.'%#,%)"'#(%"+0'$%ZR*$).'&+,?%N>ON[?%
B+#,#,5%/+(0*.%*,&%#,/+(0*.%5(+-8%*4)#D#)#'$?%+(%$8',&#,5%)#0'%*)%8+8-.*(%$+4#*.%$8*4'$:
Nb G.&%E*$$'))%k#..*5'%R+-,4#.%*,&%J3#&'5*)'%Y*,&%R+-,4#.%/-,4)#+,%.#3'%*%SD#..*5'%5+D'(,0',):::%U*,&V%*('%
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C*#&*%;*)#+,S%ZRC;?%,:&:[:
c> !"'%*-)"+(%"*$%$+-5")%8'(0#$$#+,%)2#4'%)+%-,&'()*3'%"-0*,%('$'*(4"%#,%)"'%;+()"2'$)%!'((#)+(#'$?%$-6B'4)%
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Making space for reconciliation in Canada's planning system 98
RCL@!MP%f:%RLJM%J!WAH%PMJMLPRC%L;A%CLIAL%F]LII
1. Desktop
research
Preliminary document review to develop: (a) chronology of events for two case studies, (b)
insights on policy setting, demographics, and history of Haida Gwaii, BC, and Canada.
2. Exploratory
conversations
In-person conversations with over a dozen31 individuals over a four week period in Haida
Gwaii and Vancouver in September 2010 to: (a) 'test' the research design, (b) gather
information on cases, and (c) develop relationships. Detailed notes were taken and typed
into a digital file. All informants were guaranteed anonymity to encourage openness of
discussion.
3. Detailed
document
review
Intensive review of documents from October to December 2010 to prepare for Task 4. As
the research shifted focus, more documents were reviewed as late as March 2013. Some
documents reviewed were no longer relevant and excluded from analysis.
4. In-depth
interviews and
conversations
Over a six month period, starting January 2011, over two dozen32 individuals were
interviewed in Haida Gwaii and Vancouver to develop coherent narratives of the two
primary cases. Individuals were identified through a purposive snowball sampling
technique33. All interviews were recorded and transcribed verbatim immediately following
the interviews. Transcripts were shared with participants with only a few edits received
back. Informed consent was achieved through verbal agreement, though paper consent
forms were offered along with a summary of research objectives, contact information, and
my commitment to ethical research. Notes were taken during approximately half of the
conversations, about a quarter of which required some follow-up (via email or conversation)
to confirm accuracy.
5. Direct
observation
In the time spent on Haida Gwaii34, notes were recorded on a daily basis to reflect upon
informal observations and conversations to develop new insights on the research problem
and refine the lines of inquiry. Four full days were spent observing the Enbridge oral
hearings in Haida Gwaii in early 2012. I witnessed the Panel hear most35 of the 71
residents provide their local or traditional knowledge and experience as evidence for the
decision-making record. This technique afforded access to the hearings beyond the
detailed transcripts taken by the Panel's secretary, such as performance, a sense of the
emotions, and informal discussion between participants in the room.
6. Write case
study narrative
Case narratives were written, drawing upon evidence and analysis using methods below.
These went through many edits, with final versions presented in Chapters Four and Five.
7. Case study
interpretation
The interpretation process took place as field was taking place and afterwards, but the
writing process offered the best opportunity for analysis. Most writing took place between
cO E+('%4+,D'($*)#+,$%2'('%-,&'()*3',?%6-)%)"'1%2'('%$')%*$#&'%*/)'(%)"'%('$'*(4"%&'$#5,%$"#/)'&%
/+4-$:
cN ]"#.'%c`%#,)'(D#'2$%2'('%4+,&-4)'&?%+,.1%*%.#)).'%0+('%)"*,%"*./%2'('%4+,$#&'('&%)+%"*D'%$+0'%('.'D*,4'%)+%
)"'%9#,*.%('$'*(4"%&'$#5,:%G-)%+/%)"'$'%c`?%O>%#,)'(D#'2$%2'('%4+,&-4)'&%+D'(%)"'%8"+,':
cc L%.*(5'%.#$)%+/%#,&#D#&-*.$%#,D+.D'&%#,%'*4"%4*$'%2*$%&'D'.+8'&%/+(%)"+$'%.#D#,5%+,%C*#&*%F2*##:%L%.*(5'%,-06'(%
R(+2,%5+D'(,0',)?%4+,$-.)*,)?%*,&%#,&-$)(1%8.*1'($%2'('%',5*5'&%Z#:':%#,)'(D#'2%+(%4+,D'($*)#+,[%/+(%
;*#h-,?%6-)%+,.1%*%$0*..%,-06'(%+/%)"'$'%('8('$',)*)#D'$%2'('%',5*5'&%+D'(%)"'%+)"'(%4*$'$:%Y'4*-$'%+/%)"'%
4+,)(+D'($1%$-((+-,&#,5%)"'%M,6(#&5'%4*$'?%)"+-5"?%,+%5+D'(,0',)%+(%8(+8+,',)%('8('$',)*)#D'$%2'('%
',5*5'&%/+(%)"#$?%2#)"%)"'%'74'8)#+,%+/%+,'%)'.'8"+,'%4+,D'($*)#+,%2#)"%;*)#+,*.%M,'(51%Y+*(&%$)*//%8(#+(%)+%
)"'%#,#)#*)#+,%+/%)"'%('D#'2%8(+4'$$%#,%'*(.1%N>O>:%C+2'D'(?%0+$)%+/%)"'%#,/+(0*)#+,%4+..'4)'&%/+(%)"'%
M,6(#&5'%&'(#D'$%/(+0%&+4-0',)$%*,&%+6$'(D*)#+,:
cf k#$#)$%)+%C*#&*%F2*##%)++3%8.*4'T%J'8)'06'(%N>O>_%Q*,-*(1?%\'6(-*(1?%*,&%E*1%N>OO_%*,&%E*(4"%N>ON:%I,%
J'8)'06'(?%N>ON?%I%(')-(,'&%)+%)'*4"%*,%-,&'(5(*&-*)'%4+-($'%4('&#)'&%)"(+-5"%)"'%W,#D'($#)1%+/%Y(#)#$"%
R+.-06#*%*,&%$8',)%4+,$#&'(*6.'%)#0'%',5*5#,5%2#)"%#,&#D#&-*.$%#,D+.D'&%#,%6+)"%4*$'$:
c` I%*((#D'&%+,%)"'%0+(,#,5%9.#5")%*,&%0#$$'&%)"'%D'(1%6'5#,,#,5%+/%)"'%9#($)%"'*(#,5%#,%G.&%E*$$')):
99 GALBRAITH
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July 2011 and July 2013. In addition to the dissertation, a number of conference papers and
presentations were prepared, as well as two journal articles, and numerous draft chapter
sections.
8. Participant
reflection
Feedback on preliminary research findings was solicited from research participants
throughout the last half of this four-year PhD. Two public meetings were held in 2012 to
present preliminary findings. More than one meeting was held with several participants to
discuss the work in progress. As well, draft written work and parts of draft case study
chapters were shared with participants to ensure accuracy of the case study information.
Discussions were also held with a handful of participants on the interpretation of the case
study, where they were asked if they recognized the patterns I have identified.
Table 2. Research tasks, October 2009 to July 2013
Methods of observation
a) Interviews and conversations
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)"'%8.*,,#,5%'D',)$%2*$%5*)"'('&:%I,%+)"'(%2+(&$?%#,)'(D#'2$%*,&%4+,D'($*)#+,$%2'('%
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$8'4-.*)#+,%+,%"+2%)"'1%('$8+,&'&%*,&%2"1:%!"#$%/+..+2$%\+('$)'(S$%ZN>ON?%8:%O`_%N>>b[%
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)"'%2*1%#,$)#)-)#+,*.%4"*,5'%-,/+.&$%*$%'*4"%8.*,,#,5%'D',)%8(+5('$$'$%2#)"%0#,#0*.%
('$'*(4"'(%#,)'(8(')*)#+,:%
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\+-(%*,&%\#D':%Y'4*-$'%0*,1%+/%)"'%#,)'(D#'2$%/+4-$'&%-8+,%)"'%;*#h-,%2#,&%/*(0%4*$'?%
)"'('%2*$%D'(1%.#)).'%D'(6*)#0%#,)'(D#'2%'D#&',4'%)"*)%2*$%0+('%-$'/-.%)"*,%)"'%&+4-0',)*(1%
'D#&',4'%*D*#.*6.'%/+(%)"'%$'.'4)'&%4*$'$:%I,$)'*&?%)"'$'%#,)'(D#'2$%/-,4)#+,'&%0+('%)+%$"*8'%
)"'%('$'*(4"%&'$#5,%Z*$%+-).#,'&%*6+D'[?%*,&%0-4"%+/%)"'%8(#0*(1%'D#&',4'%/+(%)"'%)2+%0*#,%
4*$'%$)-&#'$%#$%&'(#D'&%/(+0%+6$'(D*)#+,%*,&%*%.*(5'%,-06'(%+/%4+,D'($*)#+,$:%Z!"'%<-*,)#)#'$%
+/%)"'$'%*('%&'$4(#6'&%6'.+2:[
Making space for reconciliation in Canada's planning system 100
RCL@!MP%f:%RLJM%J!WAH%PMJMLPRC%L;A%CLIAL%F]LII
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0+	#'&%/+(%'*4"%('$8+,&',)%*,&%*$%)"'%#,)'(D#'2$%8(+5('$$'&:%!"#$%+(#5#,*.%5-#&'%#$%
#,4.-&'&%#,%L88',%R:%I,%0*,1%#,$)*,4'$?%)"'%<-'$)#+,$%2'('%$"*('&%8(#+(%)+%)"'%0'')#,5:%L%
S('$8+,$#D'%#,)'(D#'2#,5S%)'4",#<-'%2*$%-$'&%ZP-6#,%*,&%P-6#,?%N>>`[?%2"'('%)"'%
#,)'(D#'2'(%.'*(,'&%/(+0%)"'%('$8+,&',)%*$%)"'%#,)'(D#'2%8(+5('$$'&%*,&%#&',)#9#'&%0+('%
('.'D*,)%.#,'$%+/%#,<-#(1%)"*,%)"'%+(#5#,*.%$'(#'$%+/%<-'$)#+,$:%J'./X('9.'4)#+,%#$%#08+()*,)%"'('%
)+%#&',)#/1%5*8$%#,%<-'$)#+,#,5%*,&%*D+#&%*,1%8+)',)#*..1%.'*&#,5%<-'$)#+,$:%]"',%)"'%
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S]"*)%&+%1+-%0'*,%61%)"*)^S%+(%)"'#(%('$8+,$'%2*$%('8'*)'&%6*43%#,%)"'%#,)'(D#'2'(S$%2+(&$[:%
I,)'(D#'2$%(*,5'&%/(+0%N>%0#,-)'$%)+%+D'(%)2+%"+-($%*,&%)++3%8.*4'%#,%+/9#4'$?%4*/o$?%*,&%
8(#D*)'%('$#&',4'$:%
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4+,D'($*)#+,$%2'('%"'.&%2#)"%*%.*(5'%,-06'(%+/%#,&#D#&-*.$%Zf>w[:%R+,D'($*)#+,$%2'('%/+(0*.%
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#,)'(*4)'&%#,%'*4"%4+,D'($*)#+,%Z]++&$#&'?%N>O>?%8:%Ob>[:%J8'4#9#4*..1?%*4)+($%4+(('4)'&%+(%
4+,9#(0'&%.*,5-*5'%*,&%#&'*$%8('$',)'&%)+%)"'0%+,%)"'%('$'*(4"%8(+6.'0?%*%8*()#4-.*(%.#,'%+/%
#,<-#(1?%*,&%#,)'(8(')*)#+,$%+(%*(5-0',)$%-$'&%)+%$-00*(#g'%8('.#0#,*(1%9#,&#,5$:%!"'$'%
4+,D'($*)#+,$%2'('%*.$+%"'.&%#,%5(+-8$%)"(''%)#0'$T%ZO[%+,%)"'%8(+8+$'&%('$'*(4"%#,%G.&%
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E*$$'))%*,&%J3#&'5*)'%#,%E*(4"%N>ON:%L%,-06'(%+/%+,'X+,X+,'%4+,D'($*)#+,$%2'('%*.$+%"'.&%
,'*(%)"'%',&%+/%)"'%('$'*(4"%8(+4'$$%)+%9#..%#,%D'(1%$8'4#9#4%3,+2.'&5'%5*8$%*,&%)+%('9.'4)%-8+,%
('$'*(4"%4+,4.-$#+,$:%J+0'%+/%)"'$'%4+,D'($*)#+,$%2'('%0+('%/+(0*.%*,&%#,D+.D'&%'0*#.$%
4+,9#(0#,5%)"'%4+,)',)%+/%)"'%&#$4-$$#+,:%I,%)"'$'%#,$)*,4'$?%I%*$3'&%8'(0#$$#+,%)+%4#)'%)"'%
4+,D'($*)#+,%*$%*%8'($+,*.%4+00-,#4*)#+,:%;'*(%)"'%',&%+/%)"'%('$'*(4"%8(+4'$$?%
4+,D'($*)#+,$%2'('%8('/'(('&%+D'(%/+(0*.%#,)'(D#'2$:%L)%)"#$%)#0'%*%,-06'(%+/%('.*)#+,$"#8$%
2'('%/+(5'&%2#)"%#,/+(0*,)$%$+%)"*)%4+,D'($*)#+,$%2'('%0+('%*44'$$#6.':%I,)'(D#'2$%2'('%
D#'2'&%)+%6'%)#0'%4+,$-0#,5%*,&%4-06'($+0'%/+(%6+)"%8*()#'$:%I)%2*$%*.$+%*)%)"#$%)#0'%2"',%
)"'%/+4-$%+/%)"'%('$'*(4"%$"#/)'&%*2*1%/(+0%;*#h-,%)+%)"'%)2+%4*$'$%$'.'4)'&%/+(%)"#$%('$'*(4":%
!"-$?%0+('%+/%)"'%8(#0*(1%'D#&',4'%4+..'4)'&%+,%)"'%$'.'4)'&%4*$'%$)-&#'$%2*$%4+..'4)'&%
)"(+-5"%4+,D'($*)#+,$%(*)"'(%)"*,%#,)'(D#'2$:%L,%*55('5*)'&%.#$)%+/%8*()#4#8*,)$%#$%#,4.-&'&%#,%
101 GALBRAITH
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!*6.'%c%6'.+2:%E*,1%8*()#4#8*,)$%$8+3'%)+%*..%4*$'$%*,&%)"'%6(+*&'(%4+,)'7)?%$+%)"'%
8*()#4#8*,)$%*('%,+)%$'8*(*)'&%61%4*$'%$)-&1:
Participant category Number of participants Participants
interviewed
Participant
conversations (approx)
Band council staff or
politicians
312
Haida Nation staff,
politicians, matriarchs, or
chiefs
18 711
Informed residents 17 710
Provincial government 8 3 5
Off-island informants 12 5 7
Not used (includes
federal government,
private companies, or
other)
22 12 10
Tot a l 80 35 45
Table 3. List of research participants
F#D',%)"'%8+.#)#4*.%,*)-('%+/%)"'%+(#5#,*.%4*$'%Z)"'%;*#h-,%+//$"+('%2#,&%('D#'2[?%8*()#4#8*,)$%
2'('%*$$-('&%)"'1%2+-.&%,+)%6'%#&',)#9#'&%)"(+-5"%)"'%('$'*(4"%8(+4'$$:%!"#$%*..+2'&%/+(%
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('4+(&?%*..%8*()#4#8*,)$%*('%)('*)'&%)"'%$*0'%)"(+-5"+-)%)"'%&#$$'()*)#+,%)+%6'))'(%',$-('%
*,+,10#)1%/+(%)"+$'%8*()#4#8*,)$%2"+%&#&%,+)%2*,)%)+%6'%#&',)#9#'&:%
L$%)"'%4+,D'($*)#+,$%*,&%#,)'(D#'2$%2'('%4+08.')'&?%)"'1%2'('%*,*.1g'&:%L,*.1$#$%)++3%8.*4'%
&-(#,5%)"'$'%#,)'(*4)#+,$?%&-(#,5%)(*,$4(#8)#+,?%*,&%-8+,%('X('*&#,5%'*4"%)(*,$4(#8):%!"#$%#$%*%
S,*)-(*.#$)#4S%/+(0%+/%#,<-#(1?%2"',%*%('$'*(4"'(%*.2*1$%*$3$%S2"*)%#$%5+#,5%+,^S%*,&%S"+2%&+'$
)"#$%&#//'(%/(+0%)"'%8('D*#.#,5%)"'+(#'$%+(%#&'*$^S%ZE'.#*?%Obba[:%!"#$%*88(+*4"%'D+.D'&%+-)%+/%
5(+-,&'&%)"'+(')#4*.%*88(+*4"'$%)"*)%"*D'%$"*8'&%$+0'%+/%)"'%+)"'(%0')"+&$%+-).#,'&%#,%)"#$%
R"*8)'(?%$-4"%*$%)"'%4*$'%$)-&1%$'.'4)#+,%8(+4'$$:%I)%*.$+%+//'($%)"'%('$'*(4"'(%5('*)'(%
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9.'7#6#.#)1%)+%('&'9#,'%)"'%('$'*(4"%8.*,%*,&%*$3%,'2%<-'$)#+,$%*$%0+('%#$%.'*(,'&:%J-4"%#$%)"'%
S,*)-(*.#$)#4S%/+(0%+/%')",+5(*8"#4%#,<-#(1?%2"#4"%"*$%.+,5%(++)$%#,%*,)"(+8+.+51%*,&%
$+4#+.+51:%E+('%#,/+(0*)#+,%+,%)"'%&#$4-($#D'%*,*.1)#4*.%0')"+&$%*('%+-).#,'&%6'.+2?%*,&%)"'%
9#,*.%$'4)#+,%"#5".#5")$%)"'%6','9#)$%+/%)"#$%0')"+&%/+(%-,&'()*3#,5%('$'*(4"%+,%*%)+8#4%
-,/+.&#,5%#,%S('*.%)#0'S:%
I,%)"#$%('$'*(4"?%#,)'(D#'2$%2'('%-$'&%)+%8#'4'%)+5')"'(%*%&'$4(#8)#+,%+/%'D',)$%/+(%)"'%+(#5#,*.%
('$'*(4"%4*$'%Z;*#h-,[%*,&%)+%&#('4)%)"'%$4+8'%+/%)"'%('$'*(4"%,*((*)#D':%J#,4'%)"'%+(#5#,*.%
('$'*(4"%4*$'%2*$%&#$4*(&'&?%)"'%#,)'(D#'2$%2'('%0+$)%D*.-*6.'%#,%$"*8#,5%)"'%('$'*(4"%
&'$#5,%(*)"'(%)"*,%#,%8(+D#&#,5%*%&*)*%$'):%L$%+-).#,'&%*6+D'?%)"'%&'4#$#+,%)+%$'.'4)%)"'%9#,*.%
)2+%4*$'$%(*)"'(%)"*,%;*#h-,%2*$%&')'(0#,'&%#,%8*()%)"(+-5"%#,#)#*.%*,*.1$#$%+/%)"'%
#,)'(D#'2$:%R"*8)'($%\+-(%*,&%\#D'%&+%,+)%#,4.-&'%0*,1%+(#5#,*.%<-+)*)#+,$%/+(%)"#$%('*$+,:%
I,$)'*&?%0+('%*,&%0+('%2*$%.'*(,'&%*6+-)%)"'%)2+%$'.'4)'&%4*$'$%)"(+-5"%+6$'(D*)#+,?%
4+,D'($*)#+,$?%*,&%&+4-0',)$:%I,&''&?%&+4-0',)$%8(+D#&'&%*%D'(1%&')*#.'&%&'$4(#8)#+,%+/%
'D',)$?%#,4.-&#,5%#08+()*,)%S$#)'$%+/%*(5-0',)*)#+,S%ZC*B'(?%N>>a?%8:%dc[?%*,&%*('%-$'&%
)"(+-5"+-)%)"'%'08#(#4*.%4"*8)'($:
b) Document review
k'(6*)#0%('4+(&$%+/%8-6.#4%0'')#,5$?%2(#))',%4+(('$8+,&',4'?%8+.#41%$8''4"'$?%*,&%
B+-(,*.#$)#4%8#'4'$%4*,%8(+D#&'%5.#08$'$%#,)+%"-0*,%*4)#+,%*,&%#,)'(*4)#+,%)"*)%0*3'%-8%
8.*,,#,5%'D',)$:%C*B'(%ZN>>a?%8:%dc[%8+#,)$%+-)%)"*)%&+4-0',)$%0*1%"'.8%*%('$'*(4"'(%6'5#,%)+%
&'9#,'%&#$4-($#D'%$)(-4)-('$%*,&%#&',)#/1%S$#)'$%+/%*(5-0',)*)#+,S:%A+4-0',)$%0*1%#,4.-&'%
)'4",#4*.%('8+()$?%8+.#41%*,&%.'5*.%&+4-0',)$?%*,&%,'2$%('8+()$%*0+,5%+)"'($:%J-4"%
&+4-0',)$%8(+D#&'%,+)%+,.1%*%6*$#4%-,&'($)*,&#,5%+/%)"'%8.*,,#,5%*,&%8+.#41%8(+4'$$?%6-)%
*.$+%*44'$$%)+%)"'%#&'*$%*,&%8+$#)#+,$%)"*)%0#5")%6'%&'8.+1'&%2"',%*(5-0',)$%-,/+.&:%!"'%
$#)'$%)"'0$'.D'$%4*,%*.$+%6'%*44'$$'&%)"(+-5"%&+4-0',)$?%$-4"%*$%D'(6*)#0%)(*,$4(#8)$%+/%
"'*(#,5$?%*,&%.'))'($%+(%4+(('$8+,&',4'%)"*)%&#('4).1%*&&('$$%)'4",#4*.%*,&%8'($-*$#D'%
*(5-0',)$:%L,*.1g#,5%*(5-0',)$%#,%&+4-0',)$%*..+2%*,*.1$)$%)+%+6$'(D'%S2"*)%#$%6'#,5%$*#&%
)+%2"+0?%*,&%#,%2"*)%4+,)'7)S_%S#,%-))'(#,5%$)*)'0',)$%8'+8.'%('*4)%)+%+,'%*,+)"'(%*,&%)"-$%
8(+&-4'%0'*,#,5%#,)'(*4)#D'.1S%ZC*B'(?%N>>a?%8:%dN[:
!"'%('D#'2%8(+4'$$%/+(%)"'%M,6(#&5'%4*$'%('$-.)'&%#,%"-,&('&$%+/%,'2$8*8'(%*()#4.'$?%
103 GALBRAITH
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"-,&('&$%+/%)"+-$*,&$%Z+(%0+('[%+/%8*5'$%+/%)'4",#4*.%8(+4'$$%&+4-0',)$%*,&%$4#',)#9#4%
$)-&#'$?%8(')#D'%0+&'.$?%0*8$?%*,&%D'(6*)#0%)(*,$4(#8)$%+/%*..%8-6.#4%"'*(#,5$:%@'("*8$%+/%
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;*)#+,%2'('%*6.'%)+%8-)%/+()"%)"'#(%*(5-0',)$%)+%)"'%/'&'(*.%',D#(+,0',)*.%*$$'$$0',)%@*,'.:%
I,%)"'%9#,*.%8"*$'%+/%)"#$%&'4#$#+,%8(+4'$$?%)"'%RC;%2*$%*6.'%)+%<-'$)#+,%)"'%M,6(#&5'%'78'()$%
*,&%8('$',)%4+-,)'(%*(5-0',)$%)+%)"+$'%8('$',)'&%61%)"'%4+08*,1?%4(#)#4*..1%'7*0#,#,5%)"'%
2*1%)"'%8.*,,#,5%8(+6.'0%#$%/(*0'&:%E+$)%+/%)"'%'08#(#4*.%2+(3%/+(%)"#$%4*$'%$)-&1%#,%R"*8)'(%
\#D'%('.1%-8+,%&+4-0',)$%*,&%+6$'(D*)#+,:%L%$'.'4)#+,%+/%3'1%&+4-0',)$%('D#'2'&%*('%
8('$',)'&%#,%!*6.'%f%6'.+2:
Making space for reconciliation in Canada's planning system 104
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Case study Documents
Multiple historical
case studies
related planning
change and
Crown-Indigenous
relations in Haida
Gwaii and BC
The New Relationship Agreement signed by the Province of BC and the leadership of
the First Nations Summit, the Union of BC Indian Chiefs, the BC Assembly of
First Nations
Province of British Columbia (2010, May 7). Updated procedures for meeting legal
obligations when consulting First Nations.
Indian and Northern Affairs Canada (2011, March). Aboriginal consultation and
accommodation: Updated guidelines for federal officials to fulfill the duty to
consult. Ottawa: Government of Canada.
Council of the Haida Nation. (2010). Constitution of the Haida Nation.
Council of the Haida Nation. (2002). Haida Statement of Claim.
Lee, Lynn. (2012, September). People, land & sea: Environmental governance on
Haida Gwaii. Prepared for Action Canada Northern Conference, Haida Gwaii.
Ten n an t , P a ul . (1990). Aboriginal people and politics: The Indian land question in
British Columbia, 1849-1989. Vancouver: UBC Press.
Case 1. Strategic
land use & co-
management
Council of the Haida Nation & Province of British Columbia (2007, September 13).
Haida Gwaii Strategic Land Use Agreement.
Council of the Haida Nation & Province of British Columbia (2010, Dec). Haida Gwaii
Land Use Objectives Order.
Council of the Haida Nation & Province of BC. (2009). Haida-BC Kunst'aa Guu
Kunst'aayah – The Beginning – Reconciliation Protocol.
Council of the Haida Nation (2005, April). Haida Land Use Vision Haida Gwaii
Yah'guudang [Respecting Haida Gwaii].
Council of the Haida Nation. (2001-2013). Haida Laas News of the Haida Nation.
Case 2. Enbridge
Joint Reivew
Panel
Government of Canada (2012, April 17). Responsible resource development: Jobs,
growth and long-term prosperity (Economic Action Plan 2012).
Oliver, J. (2012, January 9). An open letter from Natural Resources Minister Joe Oliver.
The Globe and Mail
Joint Review Panel for Enbridge Northern Gateway Project (2012). Hearings held at
Old Massett Community Hall and George Brown Recreation Centre in
Skidegate.
Joint Review Panel for Enbridge Northern Gateway Project (2013, March 11). Cross-
examination hearing held at Chances, Prince Rupert.
Joint Review Panel for Enbridge Northern Gateway Project. (2012-13) Various
procedural directions.
Council of the Haida Nation. (2007). Towards a Marine Use Plan for Haida Gwaii.
Council of the Haida Nation. (2001-2013). Haida Laas News of the Haida Nation.
Various (2009-2013). Newspaper articles.
Various (2009-2013). News releases from environmental, First Nation, and government
organizations.
Table 4. List of key documents reviewed
105 GALBRAITH
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c) Participant observation
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)"'1%&+?%*,&%+6$'(D'%2"*)%#$%5+#,5%+,S:%!"'%0')"+&%('D'*.$%-,'78'4)'&%*4)#+,$?%$-(8(#$'$%)"*)%
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#,%S0*3#,5%$')).'(%$8*4'S%#,%C*#&*%F2*##%ZF('3XE*()#,?%N>>d[?%#)%*.$+%"'.8$%6(#,5%*6+-)%)"+$'%
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8(+B'4):
Method of analysis: Critical discourse analysis
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)"'%.*,5-*5'%+/%)'7)$%4*,%'78+$'%$+0'%+/%)"'%2+(3#,5$%+/%)'7)$%*,&?%61%'7)',$#+,?%)"'%2*1%)"*)%
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;+(0*,%\*#(4.+-5"%ZObb`%#,%E#..$?%N>>f[?%2#)"%(++)$%#,%\+-4*-.)#*,%&#$4+-($'%*,*.1$#$%ZE#..$?%
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)"*)%&#$)#,5-#$"'$%)"*)%*,*.1$)%/(+0%)"'%8*()#4#8*,)$S%-,&'(%*,*.1$#$%Z\*#(4.+-5"?%Obba?%8:%
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$+4#*.%$)(-4)-('$%&')'(0#,'%&#$4+-($'%*,&%Z4[%)"'%('8(+&-4)#D'%'//'4)$%*('%$"+2,%)+%*4)%
4-0-.*)#D'.1%+,%)"+$'%$)(-4)-('$?%S$-$)*#,#,5%)"'0%+(%4"*,5#,5%)"'0S:%!"'%/+4-$%+/%)"#$%
('$'*(4"?%)"',?%#$%+,%)"'%8(+4'$$%61%2"#4"%&#$4+-($'$%$"*8'%8.*,,#,5%#,$)#)-)#+,$:%J8'4#9#4*..1?%
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Conclusion
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109 GALBRAITH
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111 GALBRAITH
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CHAPTER 5. REMAKING PLANNING SPACE
Introduction
I,%R+.'%C*((#$S%5!C,+/1R!),3-1P'!:-1ZN>>N[?%)"'%"#$)+(#4*.%5'+5(*8"'(%)(*4'$%)"'%2*1%)+&*1S$%
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*))'08)$%*)%('4+,4#.#,5%)"'%4+08')#,5%('*.%*,&%#0*5#,'&%5'+5(*8"#'$%',4+-,)'('&%2"#.'%
-,&'()*3#,5%)"#$%)*$3:%!"'%4+,$'<-',4'%"*$%6'',%)"*)%I,',+-$%8'+8.'$%2"+%"*D'%*%.+,5%
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)+%(*)#+,*.#g'%*,&%#08+$'%$)*)'X&'9#,'&%(-.'$%/+(%4+,$#&'(#,5%Z8(+8'()1[%)#).':%I,&''&?%#)%2*$%
8+$#)'&%#,%R"*8)'(%!"(''%)"*)%2"#.'%)"'$'%$8*4'$%+8'(*)'%)+&*1%#,%2*1$%)"*)%)-+.%)+%6'%
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A brief history on state-led planning spaces
Setting the context
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Making space for reconciliation in Canada's planning system 114
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Making space for reconciliation in Canada's planning system 116
Illustration 3: Indian Reserves with old village names and modern settlements
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121 GALBRAITH
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I$.*,&%*)%)"'%8'*3%+/%.+55#,5%*4)#D#)#'$%ZJ0#)"%*,&%J)'((#)?%N>O>?%8:Occ[:%!"#$%#$.*,&%#$%.+4*)'&%
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'D',)$%+//'(%)"'%$*0'%3#,&$%+/%+88+()-,#)1%$)(-4)-('$:%L%D',-'%#$%5(*,)'&%0+('%+(%.'$$%
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Case 1: Collaborating with the provincial government
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Obbb%&#$8-)'%+D'(%)"'%(','2*.%+/%)"'%.*(5'$)%/+('$)(1%)',-('%+,%C*#&*%F2*##%Z!(''%\*(0%
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Making space for reconciliation in Canada's planning system 122
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*4)+($%)+%"*D'%)"'#(%#,)'('$)$%"'*(&:%!"#$%6'4+0'$%'D#&',)%#,%)"'%/+..+2#,5%8*(*5(*8"$:%
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"*D'%5#D',%)"'%C*#&*%4.'*(%(#5")$%)+%+D'(%N>x%+/%)"'%C*#&*%F2*##%.*,&%6*$'%ZN>>?>>>%"*[?%
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123 GALBRAITH
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Making space for reconciliation in Canada's planning system 126
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Making space for reconciliation in Canada's planning system 128
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Making space for reconciliation in Canada's planning system 138
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139 GALBRAITH
RCL@!MP%`:%PMELhI;F%@eL;;I;F%J@LRM%
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Making space for reconciliation in Canada's planning system 140
RCL@!MP%`:%PMELhI;F%@eL;;I;F%J@LRM%
Venue Crown purpose Haida purpose
McKenna-
McBride Royal
Commission
(1912-1916)
Collect information from communities to
determine adequacy of size of reserve
land (Harris, 2002), not 'Indian title' (CHN,
2001, p.7).
Concern over visitors staking ground in 'our
own country' and being told that the islands
'belong to men who never saw these lands'
(Adams quoted in Harris, 2002, p.213).
Joint Senate-
Parliamentary
Committee
(1926, 1927)
To study the dispute over land, to 'satisfy
and quiet the Indians', and to have it
'settled' (Tennant, 1990, p. 104).
If title were refused to be acknowledged, 'we
are simply dependent people' (Kelly quoted in
Tennant, 1990, p. 108).
West Coast Oil
Port Inquiry
(1976)
'[T]o inquire into the environmental, social
and navigational safety aspects of oil port
proposals and the general public
concerns about oil tanker traffic on the
west coast of Canada' (Thompson, 1978,
p.1).
'We the Haida people would rather go back to
sails before we let oil spills damage our sea
resource, the backbone of our culture' (Lavina
Lightbone, President, Council of the Haida
Nation quoted in UBCIC, 1977).
Moving
between
blockades / war
in the woods
and the courts
over forestry
decisions
(1980s-2000s)
There is no 'fiduciary or constitutional
duty' 'to consult' where there are 'claimed,
but not established, Aboriginal rights'
(Attorney General of Canada, 2003;
Minister of Forests, 2003).
The lawsuit argued legal and equitable
encumbrance and 'breach of fiduciary duty'
(Haida v. BC, 2004, s.5), 'by reason of
aboriginal title of the Haida Nation to the lands,
waters, wildlife and resources, including the
forests, of Haida Gwaii' (Haida v. BC, 1997,
s.1A).
BC Treaty
Commission
process (1991-
today)
'The First Nations, Canada, and British
Columbia establish a new relationship
based on mutual trust, respect, and
understanding – through political
negotiations' (The First Nations of BC et
al., 1991, p. 29).
BC policy 'Treaty Cap' was 5% of Haida Gwaii.
BC Crown offer of 20% of Haida Gwaii in 2005
was rejected in favour of land use planning
over 100% of Haida Gwaii (Council of the
Haida Nation, 2007).
Co-
management
for Gwaii
Haanas (1993-
today)
(resulting out of
Lyell Island
Athlii Gwaii
blockade in
1985)
These lands may become 'a reserve for a
National Park of Canada and a National
Marine Park of Canada... [and] Canada
intends to establish the park reserves
pending the disposition of any Haida
claim to any right, title or interest in or to
the lands comprised therein' (Gwaii
Haanas Agreement, s. 1.1).
'The Haida have designated and managed the
Archipelago as the 'Gwaii Haanas Heritage
Site', and thereby will maintain the area in its
natural state while continuing [the Haida] way
of life as they have for countless generations.
In this way, the Haida Nation will sustain the
continuity of their culture while allowing for the
enjoyment of visitors (Gwaii Haanas
Agreement, s.1.1).
'Notwithstanding and without prejudice to the aforesaid divergence of viewpoints, and in
recognition of the convergence of viewpoints with respect to objectives for the care,
protection and enjoyment of the Archipelago, the parties agree to constructively and co-
operatively share in the planning, operation and management of the Archipelago...' (s.1.3)
Case 1.
Kunst'aa Guu
Kunst'aayah –
The Beginning
–
Reconciliation
Protocol (2009-
Haida Gwaii is Crown lands, subject to...
the legislative jurisdiction of the
Parliament of Canada and the Legislature
of the Province of British Columbia
(Kunst'aa Guu Kunst'aayah, 2009, s. A).
Haida Gwaii is Haida lands... subject to...
collective Title of the Haida Nation who will
manage Haida Gwaii in accordance with its
laws, policies, customs and traditions
(Kunst'aa Guu Kunst'aayah, 2009, s. A).
'The Parties hold differing views with regard to sovereignty, title, ownership, and
141 GALBRAITH
RCL@!MP%`:%PMELhI;F%@eL;;I;F%J@LRM%
today) jurisdiction over Haida Gwaii...Notwithstanding and without prejudice to the aforesaid
divergence of viewpoints, the Parties seek a more productive relationship and hereby
choose a more respectful approach to co-existence' (s.A)
NaiKun
Offshore Wind
Farm
environmental
assessment
(2003-2011)
'To ensure that projects are considered in
a careful and precautionary manner
before federal authorities take action in
connection with them, in order to ensure
that such projects do not cause significant
adverse environmental effects (CEAA,
1992, s.4(1)(a)).
'The environmental assessment process
provides for the thorough, timely and
integrated assessment of the potential
environmental, economic, social, heritage
and health effects that may occur during
the lifecycle of these projects, and
provides for meaningful participation by
First Nations, proponents, the public, local
governments, and federal and provincial
agencies' (EAO, n.d.).
'Our people have always put our land, waters
and culture first and we intend to ensure the
sustainable development of the wind resource
in our territory. The terms of reference for the
review was set in respect to this special
relationship with our lands and waters, and
focused on what we know to be issues of
priority' (Guujaaw, 2009).
Marine use
planning (2007-
today)
'[T]o ensure a healthy, safe and
prosperous ocean area by engaging all
interested parties in collaborative
development and implementation' to
achieve: 'healthy and resilient
ecosystems; sustainable economies;
reduced inter-user conflicts; thriving
coastal communities with strong cultural
and economic ties to coastal and marine
areas' (PNCIMA, 2010)
'Haida culture is intertwined with all of creation
in the land, sea, air and spirit worlds. Life in the
sea around us is the essence of our well-
being, and so our communities and culture.'
The goals of the marine use plan are: 'to
achieve: Conservation and sustainability in all
human activities; and Effective collaborative
management of the sea around Haida Gwaii'
(CHN, 2007).
Case 2.
Enbridge
project Panel
environmental
assessment
(2009-2013)
To 'consider the potential environmental
effects associated with the Project... [and]
determine whether the Project is also in
“the public convenience and necessity”'
pursuant to existing legislation (Natural
Resources Canada et al., 2009).
'Our people have been here for a long, long
time and it’s not through any gift of the
government that we have rights or privileges or
anything like that. It comes from our ancestry,
our birthplace here...We thought [this] was a
forum for our people and the island people to
speak' (JRP, 2012b, para 12305).
Table 5. Comparing purposes for each planning event, Crown and Haida perspectives
Making space for reconciliation in Canada's planning system 142
RCL@!MP%a:%YM!]MM;%@GeI!IRJ%L;A%@PMAIR!IG;%\GP%L%@I@MeI;M%
CHAPTER 6. BETWEEN POLITICS AND PREDICTION FOR A PIPELINE
Introduction to case 2
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Making space for reconciliation in Canada's planning system 150
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Date Milestone in Panel process
May 2010 Enbridge submits application to Panel. Panel reviews application for completeness.
September 2010 Panel invites comments from public on the process and the Enbridge application.
January 2011 Panel considers public comments on process and application, finding a gap in the
Enbridge risk assessment analysis for project, ordering Enbridge to file additional
information. Panel revised the list of issues to be considered in the process and the
list of communities to be visited.
May 2011 Panel receives additional information from Enbridge.
Panel issues hearing order, setting out the ways to engage in the process.
June 2011 Panel visits 11 communities to share information on the process.
August – November
2011
Two rounds of information requests from registered participants directed to
Enbridge. Two rounds of responses from Enbridge directed back to registered
participants.
January 2011 Deadline for registered participants to submit written evidence for the record.
January – March 2012 Oral hearings take place in 17 communities.
March – August 2012
November 2012 –
January 2013
Community hearings take place in 23 locations (including six cities outside of the
project area).
May – July 2012 In May, registered participants invited to direct information requests to other
registered participants who filed written or oral evidence. Responses given in July.
August 2012 Deadline for public to submit letter of comment.
August 2012 – May
2013
Cross-examinations phase of the final hearings takes place.
May – June 2013 Final arguments phase of the final hearings takes place.
June – December
2013
Panel considers evidence and writes report.
December 19, 2013 Panel issued report and recommends federal government approve the project,
subject to 209 conditions.
June 17, 2014 Minister of Natural Resources issued approval of project, subject to Panel
conditions. Requires National Energy Board to issue certificate of public
convenience and necessity within seven days of cabinet decision.
Table 6. Milestones for the Enbridge project Panel environmental assessment process
151 GALBRAITH
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Making space for reconciliation in Canada's planning system 154
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A focus on environmental assessment reform
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Law Summary of 2012 changes
Canadian
Environmental
Assessment Act (Bill
C-38)
The Act was replaced and underwent many significant changes, including elevating
full decision authority for project approval to cabinet, restricting who can participate
to only those 'directly affected', introducing time limits on decisions, narrowing the
factors considered to those strictly within federal jurisdiction (a jurisdiction that has
shrunk due to changes in other environmental laws, outlined below), reducing the
number of assessments (notably eliminating the requirement for the least
controversial projects subject to a 'screening' level assessment, which made over
90% of assessments under the old Act), and allowing the federal governments to
opt out of the assessment process where an 'appropriate substitute' is in place in a
provincial/territorial/land claim jurisdiction. These changes may affect the way
consultation takes place in assessments by reducing the total number of
assessments and, thus, opportunities for consultation, narrowing the pathways by
which a project may be considered to give rise to an impact upon an Aboriginal right
to only those environmental effects within federal jurisdiction, and speed up the
available time for consultation.
National Energy
Board Act (Bill C-38)
Changes include elevating full decision authority for project approval to cabinet,
introducing time limits on decisions, allowing projects to be 'split' and approved in
parts (e.g. where a roads or additional facilities are necessary for a project to
function, these parts may be reviewed separately), deleting the public hearing
requirement for licences to export oil, gas, electricity, and including only those
'directly affected' in public hearings. Significant paperwork must also be filed before
participants may be included (Munson, 2013).
Fisheries Act (Bill C-
38)
When a permit is required for disrupting fish habitat under this Act, the Canadian
Environmental Assessment Act is 'triggered' thereby initiating an environmental
assessment. The new Act no longer requires a permit unless there will be a
'permanent' alteration or destruction of habitat that supports fisheries. The previous
category, fish habitat, did not necessarily include habitat that supported fisheries
and, thus, was a much broader category of jurisdiction. The new Act also allows the
federal government to sign agreements with provinces to cooperate on powers,
roles, and functions concerning fish. The new Canadian Environmental Assessment
Act is no longer 'triggered' by other pieces of legislation; rather, developments are
subject to assessments if they are deemed a 'designated project' under new
regulations or by new discretionary powers granted to the Minister and Agency.
Navigable (Waters)
Protection Act (Bill C-
45)
When a permit is required under this Act, the previous Canadian Environmental
Assessment Act was 'triggered' thereby initiating an environmental assessment.
The Act once gave the federal government jurisdiction to 'protect' waters for
environmental / navigable purposes, but the new Act no longer applies to any
'navigable water'77 (estimated to be over 2 million rivers and 32,000 major lakes,
and 3 oceans). The new Act only applies to prescribed bodies of water (62 rivers,
97 lakes, and 3 oceans). It also exempts large pipelines and power lines.
dd R*$'%.*2%4.*(#9#'&%)"'%0'*,#,5%+/%)"#$?%$-55'$)#,5%)"*)%*%2*)'(%2*$%,*D#5*6.'%2"',%#)%4+-.&%"+.&%*%9.+*)#,5%
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2'..:
Making space for reconciliation in Canada's planning system 156
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Species at Risk Act
(Bill C-38)
Changes include taking away time limits on permitted or licensed activities that
affect species at risk and their habitat and exempts National Energy Board from
considering species at risk and their habitat when assessing pipelines.
Table 7. Key legal reforms in 2012 that affect environmental assessments78
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Illustration 6: Signs erected before Panel arrived for oral hearings on Haida Gwaii.
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Illustration 7: Panel proceedings in Haida Gwaii
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)"#$%*.)'(,*)#D'%#08*4)%8(')#+,%)"*)?%*$%2'%$''%.*)'(%#,%)"#$%4"*8)'(?%4"*..',5'$%)"'%#08*4)%
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2#)"#,%)"'%M,6(#&5'%*$$'$$0',):%!"'%9!+!.,!+1L+3,(&+?-+)!"16%%-%%?-+)16:)15-#&'$%)"#$%
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&'$4(#8)#+,%+/%)"#$%4(#)#<-':%
167 GALBRAITH
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Y+*(&%q%E#,#$)'(%+/%M,D#(+,0',)?%N>>b?%8:f[:%L,1%0+(*.%+(%')"#4*.%.'$$+,$%&'(#D'&%/(+0%)"'$'%
8('$',)*)#+,$%)"*)%0#5")%#,9.-',4'%+-(%-,&'($)*,&#,5%+/%)"'%('.*)#+,$"#8$%6')2'',%/++&%*,&%
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*6$',4'%+/%$8'4#'$%*,&%8.*,)$%-$'&%61%"-0*,$%)"*)%4*,%6'%0*88'&%+,)+%*,1%'7#$)#,5%#08*4)%
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Making space for reconciliation in Canada's planning system 168
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169 GALBRAITH
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M,D#(+,0',)?%e'+,*%L5.-33*<?%L6+(#5#,*.%L//*#($%*,&%;+()"'(,%A'D'.+80',)?%Y'(,*(&%
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#,9.-',4'%+,%)"'%)+,'%+/%)"'%&#$4+-($'?%+//'(#,5%,+)%+,.1%('*$+,*6.'%('4+00',&*)#+,$%/+(%
#,4.-&#,5%\#($)%;*)#+,$%#,%'4+,+0#4%&'D'.+80',)?%6-)%'08"*$#g#,5%0'*,#,5/-.%4+..*6+(*)#D'%
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Making space for reconciliation in Canada's planning system 174
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)"'%8(+B'4)%/(+0%8(+4''&#,5%*.)+5')"'(:%!"'%N>Of%!$#."<+)S#,%D%YR%J-8('0'%R+-()%(-.#,5%2*$%
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*%$'(#'$%+/%,'2%4(#)'(#*%)"*)%)"'%R(+2,%0-$)%/-.9#.%#/%)"'1%&+%,+)%5*#,%4+,$',)%/(+0%\#($)%
;*)#+,$%2"'('%)#).'%#$%,+)%1')%8(+D',:%!"'%4*$'%2*$%#$$-'&%)++%.*)'%#,%)"'%2(#)#,5%8(+4'$$%)+%
#,)'5(*)'%#,)+%)"'%*,*.1$#$:%I,$)'*&?%)"'%#08.#4*)#+,$%+/%)"#$%4*$'%/+(%4('*)#,5%,'2%+88+()-,#)1%
$)(-4)-('$%2#)"#,%*,&%*.+,5$#&'%)"'%8.*,,#,5%$1$)'0%*('%6(#'9.1%&#$4-$$'&%*)%)"'%',&%+/%
R"*8)'(%M#5"):
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',D#(+,0',)*.%.*2$%#,%N>ON:%!"#$%4*$'%2*$%8('$',)'&%)+%4+,$#&'(%+88+()-,#)#'$%)"*)%0#5")%6'%
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*,&%G2',$?%N>>a[:%Y-#.&#,5%-8+,%)"'%#,X&'8)"%4*$'%+/%4+..*6+(*)#D'%.*,&%-$'%8.*,,#,5%+,%
C*#&*%F2*##%+-).#,'&%#,%R"*8)'(%\+-(?%)"#$%4*$'%+//'($%*%&(*0*)#4*..1%&#//'(',)%*44+-,)%+/%
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/*D+-('&%D',-'%)+%)"*)%+/%',D#(+,0',)*.%*$$'$$0',)?%4"*..',5#,5%)"'%4+,D',)#+,*.%S(#5")X*$X
175 GALBRAITH
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\'&'(*.%5+D'(,0',)%8+.#41%*,&%('.*)'&%0'4"*,#$0$%+/%('4+,4#.#*)#+,%8-(8+()%)+%*&&('$$%)#).'%
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',5*5'%#,%4+,$-.)*)#+,%*,&%*44+00+&*)#+,%'7'(4#$'$:%L&&#,5%)+%)"'%*.('*&1%&#D'(5',)%
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#,%8.*,,#,5?%)"'%M,6(#&5'%ML%+0#))'&%'78('$$%4+,$#&'(*)#+,%+/%#08*4)$%+,%)#).'%#,%)"'#(%
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8-6.#4?%)"'%/'&'(*.%5+D'(,0',)%+8','&%-8%*%,'2%D',-'?%*88+#,)#,5%*%J8'4#*.%\'&'(*.%
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(#5")$%*,&?%$8'4#9#4*..1?%\#($)%;*)#+,$%*,&%','(51X('.*)'&%('$+-(4'%&'D'.+80',):%]"',%
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5+D'(,0',)?%#,4.-&#,5%*%('4+00',&*)#+,%)+%S('9#,'%)"'%4-((',)%*88(+*4"%)+%4+,$-.)*)#+,S%*,&%
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f:d%+/%)"'%QP@%P'8+()%ZN>Oc6[:%I,%)"#$%$'4)#+,?%'D#&',4'%8('$',)'&%)+%)"'%@*,'.%)"*)%
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Making space for reconciliation in Canada's planning system 176
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177 GALBRAITH
RCL@!MP%d:%G;%!CM%eIEI!J%!G%PMRG;RIeIL!IG;%I;%@eL;;I;F
CHAPTER 7. ON THE LIMITS TO RECONCILIATION IN PLANNING
Introduction
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Mechanism of reconciliation Mechanism as expressed in the two cases
Legal mechanisms of reconciliation:
- Treaty negotiations
- Justifying incursions based on consultation and,
where appropriate, accommodation;
- Creating rules and regulations associated with
adequacy of consultation and Aboriginal claims;
- Negotiation (rather than litigation); and,
- Changing common law in ways that relate to
Aboriginal rights protected in s.35(1) of the
Constitution.
Cultural rights tend to be protected over self-determination,
but are limited when in conflict with government agendas.
Crown's duty to consult and accommodate:
Case 1 (Haida Gwaii land use regime). No consultation
took place despite BC's infringement in violation of
fiduciary duty (reformed law restricted consultation
requirements).
Case 2 (EIA for Enbridge proposal). Information exchange,
oral hearings provided space for TK, resources to
accumulate evidence and present to decision maker, Panel
recommendation for additional mitigation to address
marine risks, but excluded arguments over title. Project
framed as matter of national concern and appeared in
conflict with cultural rights.
Opportunity structures:
Defined as 'configurations of resources, institutional
arrangements and historical precedents for social
mobilization' (Kitschelt, 1986, p. 58). These structures can
facilitate or constrain social and political change and can
act endogenously or exogenously.
Opportunity structures (other than consultation):
Case 1. Legal precedent describing duty, experience
accessing the courts for rights claims, etc.
Case 2. Opportunities for public participation and, equally,
reforming these opportunities, media scrutiny, political
alliances, raise and simplify authority to cabinet, etc.
Venue shopping:
Occurs when actors strategically seek out a more
receptive political venue. This action requires the issues to
be redefined to suit the new venue and may allow for the
mobilization of new actors, access to new resources,
among other advantages.
Venues in each case:
Case 1. Land use: Court → forestry license transfer →
road blockade → interim agreement → Kunst'aa Guu
Kunst'aayah - - → (future) Title Case
Case 2. Marine use: federal integrated marine planning
process → provincial regional planning process → NaiKun
EIA → Enbridge EIA94 - - → (future) Title Case
Logic of appropriateness:
Assumes that those interacting with institutions will
generally act in a way that 'conforms to the norms of the
organization' (Peters, 2005, p. 29). The norms of any
institution, though, are open to interpretation and, thus,
require 'monitoring behaviours and reinforcing dominant
views about appropriateness' (p. 30).
Central rule violations for each venue:
Case 1. Crown violates duty to consult by transferring
forest license without consulting the Haida.
Case 2. Public opposition overwhelms process, extending
review process schedule by a year; and, Enbridge
deliberately excludes title from impact assessment though
process meant to be central method for addressing rights
(including title).
Planning reform:
Conceptualized as enforcing the state's definition of
'appropriate' norms of the planning system. Reforms aim to
streamline planning processes to make them more
efficient, especially for those projects or sectors viewed as
'essential' to fulfil state policy priorities.
Planning reform events:
Case 1. Reforms to planning laws from 2002-2004
removed statutory obligations to oversee forest license
transfers, resulting in the Crown not fulfilling their duty to
consult and 2005 road blockade.
Case 2. Changes to federal environmental assessment
and related laws in 2012, reducing total number of projects
reviewed, excluding participants, reducing federal
oversight on statutory decision processes (some of which
are tied to Crown duty to consult), and raising decision
authority to cabinet.
Table 8. Mechanisms of reconciliation and their expression in each case study
bf !"'%D',-'%$"#/)#,5%/+(%6+)"%4*$'$%&#&%,+)%,'4'$$*(#.1%+44-(%#,%)"'%+(&'(%8('$',)'&%#,%)"'%)*6.'%*,&%0*,1%
D',-'$%"*D'%6'',%*44'$$'&%*)%+,4':%L%&')*#.'&%&'$4(#8)#+,%+/%)"'%$"#/)#,5%#$%8('$',)'&%#,%)"'%'08#(#4*.%
4"*8)'($:
Making space for reconciliation in Canada's planning system 182
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\+(%6+)"%4*$'$?%C*#&*%*,&%R(+2,%',5*5'0',)%)"(+-5"%)"'%4+,$-.)*)#+,%8(+4'$$%#$%*%4',)(*.%
+,':%P'/+(0$%2'('%0*&'%)+%/+('$)(1%.*2$%*,&%',D#(+,0',)*.%*$$'$$0',)%.*2$%)"*)%"*D'%
('$-.)'&%#,%4"*,5'$%)+%)"'%2*1%4+,$-.)*)#+,%"*$%6'',%p%2#..%6'%#08.'0',)'&:%!"'%8(+4'$$%#$%*%
/-,&*0',)*.%8*()%+/%)"'%R(+2,S$%8+.#41%+/%('4+,4#.#*)#+,?%*%8+.#41%'$)*6.#$"'&%/+..+2#,5%4*$'%
.*2%)"*)%#&',)#9#'&%('4+,4#.#*)#+,%*$%*%S/-,&*0',)*.%8-(8+$'S%+/%$:c`ZO[%+/%R*,*&*S$%
R+,$)#)-)#+,%L4)%ZP:%D%k*,%&'(%@'')?%Obba[:%P'4+,4#.#*)#+,%"*$%*%0-4"%6(+*&'(%&'9#,#)#+,%#,%)"'%
.#)'(*)-('%'7*0#,'&%#,%)"'%$'4)#+,%+,%('4+,4#.#*)#+,%#,%R"*8)'(%!2+%Z8:%cb[:%I,%)"*)%4"*8)'(?%
)2+%4',)(*.%#&'*$%*('%#,)(+&-4'&%)+%4+08.#4*)'%)"'%*88(+*4"%)*3',%61%)"'%R(+2,:%Y+((+2$%
ZN>>O?%8:%ccXcf[%4+,4'8)-*.#g'$%('4+,4#.#*)#+,%*$%*%8(+4'$$%+/%('*4"#,5%)"'%S0#&&.'%5(+-,&S%
2"'('%8*()#'$%0'')%S#,%0-)-*.%('$8'4)%*,&%('4+5,#)#+,%)+%,'5+)#*)'%)"'%('$+.-)#+,%+/%)"'#(%
&#//'(',4'$S:%C'%5+'$%+,%)+%'74.-&'%*4)#+,$%)"*)%('<-#('%I,',+-$%8'+8.'$%)+%S*6*,&+,%)"'#(%
(#5")$:::%)+%/-.9#.%+6B'4)#D'$%)"*)%*('%+/%|$-/9#4#',)%#08+()*,4'|%)+%)"'%,+,XL6+(#5#,*.%
4+00-,#)1S:%!"'%0#&&.'%/(&*+.1#$%4+,$)#)-)'&%61%)"'%)'((#)+(1%#,%&#$8-)'%*,&?%)"-$?%?*%)%6'%
#,4.-&'&%#,%)"'%('4+,4#.#*)#+,%8(+4'$$:%!"'%.*,&%#$%4',)(*.%)+%)"#$%('.*)#+,$"#8:%I)%#$%,+)%B-$)%*%
0*)'(#*.%+6B'4)%)"*)%8(+&-4'$%0*)'(#*.%2'*.)"%*,&%2'..X6'#,5?%6-)%#$%8(+&-4'&%)"(+-5"%"-0*,%
('.*)#+,$%2"#.'%*.$+%4+,$)#)-)#,5%)"'$'%('.*)#+,$%ZY.+0.'1?%N>>N[:%
M,5.'%ZN>O>[%+//'($%4+,)(*$)%)+%)"#$%8(#,4#8.'&%D#'2%+/%('4+,4#.#*)#+,%2#)"%*%4(#)#<-'%+/%)"'%
&+0#,*,)%(#5")$X6*$'&%*88(+*4":%J"'%9#,&$%)"'('%#$%5','(*.%*5(''0',)%)"*)%)"'%S(#5")%)+%
4-.)-('S%#$%*%$-/9#4#',)%.'5*.%D'"#4.'%/+(%8(+)'4)#,5%I,',+-$%(#5")$%'D',%)"+-5"%#)%'74.-&'$%
)"'%(#5")%)+%$'./X&')'(0#,*)#+,%q%+/%8+.#)#4*.%*,&%'4+,+0#4%*-)+,+01%q%*%/-,&*0',)*.%
4+08+,',)%I,',+-$%(#5")$:%\-()"'(?%2"',%)"#$%4-.)-(*.%(#5")%#$%('.#'&%-8+,?%)"'$'%(#5")$%
0*1%6'%-,B-$).1%#,/(#,5'&%-8+,%2"',%)"'1%4+0'%#,)+%4+,9.#4)%2#)"%4'()*#,%$)*)'%#,)'('$)$:%
M,5.'S$%#&'*$%*('%'7)',&'&%)+%$-55'$)%)"*)%2"',%)"'%S(#5")%)+%4-.)-('S%4+0'$%#,)+%4+,9.#4)%2#)"%
$)*)'%#,)'('$)$%#,%*%8.*,,#,5%D',-'?%)"'%S*88(+8(#*)'%-$'S%+/%*%8.*,,#,5%#,$)#)-)#+,%#$%
<-'$)#+,'&:%!"'$'%&#D'(5',)%D#'2$%+/%('4+,4#.#*)#+,%$-55'$)%*,%#,"'(',).1%-,'D',%8+.#)#4*.%
*,&%#,$)#)-)#+,*.%)'((*#,%/(+0%2"#4"%)"'%R(+2,%*,&%I,',+-$%8+.#)#4*.%*4)+($%*88(+*4"%)"#$%
8(+4'$$:%J#,4'%)"'%#,$)#)-)#+,*.%/+(0%+/%('4+,4#.#*)#+,%#$%8('&+0#,*,).1%4+,$)#)-)'&%)"(+-5"%
)"'%8.*,,#,5%$1$)'0?%)"#$%-,'D',,'$$%#$%'D',%0+('%'D#&',)%2"',%2'%*43,+2.'&5'%)"*)%)"'%
',)#('%$)*)-)+(1%$1$)'0%q%#)S$%(-.'$%+/%8(+4'&-('?%#)$%D*.-'$%*,&%#,)'('$)$?%#)$%D#'2%+/%2"*)%
4+,$)#)-)'$%'D#&',4'%q%#$%4('*)'&%61%*,&%/+(%R(+2,%5+D'(,0',)$:%
183 GALBRAITH
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!"'%('$'*(4"%9#,&#,5$%8('$',)'&%#,%)"#$%4"*8)'(%$-88+()$%$+0'%+/%)"'%4(#)#4#$0%8('$',)'&%
'*(.#'(%#,%)"#$%&#$$'()*)#+,_%,+)*6.1?%R(+2,%*88(+*4"'$%)+%('4+,4#.#*)#+,%*('%/*#.#,5:%MD',%)"'%
S6'$)%4*$'S%'7*08.'%+/%)"'%4+..*6+(*)#D'%C*#&*%F2*##%.*,&%-$'%('5#0'%4+,)#,-'$%)+%+8'(*)'%
8('&+0#,*,).1%/(+0%)"'%D*,)*5'%8+#,)%+/%)"'%R(+2,?%2#)"%"#5"%8(#+(#)1%#,&-$)(1%$'4)+($%/+(%
)"'%@(+D#,4'%'74.-&'&%/(+0%)"'%('5#0'%',)#('.1:%!"#$%('$'*(4"%&+'$%,+)%+//'(%*%$1$)'0*)#4%
'D*.-*)#+,%+/%'#)"'(%+/%)"'$'%8(+4'$$'$?%6-)%'78.*#,$%*,&%&'$4(#6'$%)"'%8+)',)#*.%/+(%4"*,5'?%
)"'%8+)',)#*.%/+(%(#5")$%)+%+8',%-8%+88+()-,#)#'$%/+(%0+D#,5%)"'%D*,)*5'%8+#,)%+/%)"'%&+0#,*,)%
8.*,,#,5%$1$)'0%)+%$"#/)%#)%4.+$'(%)+%*%S0#&&.'%5(+-,&S:%!"'('%#$%0+('%('*$+,%/+(%)"#$%+8)#0#$)#4%
)+,'%/+..+2#,5%*%.*,&0*(3%N>Of%J-8('0'%R+-()%+/%R*,*&*%&'4#$#+,%)"*)%5*D'%4.'*(%)#).'%)+%)"'%
!$#."<+)S#,%;*)#+,?%'$)*6.#$"#,5%*%,'2%$')%+/%8(#,4#8.'$%*(+-,&%L6+(#5#,*.%)#).':%!"#$%&'4#$#+,%
8(+D#&'$%4.*(#)1%+,%)"'%,*)-('%+/%)#).'_%#)%*88.#'$%)+%.*(5'%"#$)+(#4%)'((#)+(#'$%Z,+)%$0*..%8#'4'$%+/%
#,)',$#D'.1%-$'&%.*,&[?%*,&%)"*)%q%#/%)#).'%#$%.#3'.1%+(%8(+D',%q%)"'%R(+2,%#$%',4+-(*5'&%)+%5*#,%
:&+%-+)%/(+0%#,&#D#&-*.%;*)#+,$:%!"#$%4+-()%&'4#$#+,%2*$%#$$-'&%61%)"'%)#0'%)"#$%&#$$'()*)#+,%
2*$%,'*(.1%9#,*.#g'&?%$+%#$%,+)%#,)'5(*)'&%#,)+%)"'%*,*.1$#$%+/%)"#$%('$'*(4":%I,#)#*.%)"+-5")$%+,%
)"'%8+)',)#*.%#08.#4*)#+,$%+/%)"#$%&'4#$#+,%/+(%)"'%('$'*(4"%9#,&#,5$%*,&%)"'%('4+,4#.#*)#+,%
8(+4'$$%#,%R*,*&*%*('%8('$',)'&%*)%)"'%',&%+/%R"*8)'(%M#5"):%!"'%/+..+2#,5%$'4)#+,%&#$4-$$'$%
('$'*(4"%9#,&#,5$%#,%('.*)#+,%)+%)"'%#,#)#*.%8(+8+$#)#+,:
Proposition 1. Conditions for reconciliation
!"'%9#($)%8(+8+$#)#+,%4+,$#&'($%)"'%4+,&#)#+,$%)"*)%#,9.-',4'%)"'%8(+4'$$%+/%('4+,4#.#*)#+,:%\+(%
)"#$%)+%6'%-,&'($)++&?%8+2'(%*,&%+88+()-,#)1%0-$)%6'%.+4*)'&%#,%$8*4'%*,&%)#0':%J4*.'%#$%*,%
'$$',)#*.%4+,4'8)%)+%-,4+D'(%)"'$'%.+4*)#+,$%*,&%4"*(*4)'(#g'%)"'%-,'D',,'$$%#,%)"'0%*,&%
6')2'',%)"'0:%!"'%4*$'$%$-88+()%)"'%$-55'$)#+,%)"*)%)"'%R(+2,%*,&%I,',+-$%*4)+($%0'')%
0+$)%/('<-',).1%#,%)"'%4+,$-.)*)#+,%8(+4'$$%X%*%8(+4'$$%)"*)%+44-($%2"',%*%R(+2,%&'4#$#+,%#$%
('<-#('&%('5*(&#,5%*%8(+8+$'&%&'D'.+80',)%+(%8.*,%X%(*)"'(%)"*,%*%)('*)1%,+(%+)"'(%
,'5+)#*)#+,%)*6.':%!"'%8.*,,#,5%*,&%4+,$-.)*)#+,%$1$)'0$%*('%&'D'.+8'&%/(+0%)"'%D*,)*5'%
8+#,)%+/%)"'%R(+2,?%*&+8)#,5%)"'%(-.'$%*,&%8(+4'&-('$%+/%)"'%/'&'(*.%+(%8(+D#,4#*.%
5+D'(,0',)$:%I)%#$%*%$8*4'%2"'('%)"'%R(+2,%*,&%I,',+-$%8+.#)#4*.%*4)+($%6(#,5%2#)"%)"'0%
D*.-'$%)#'&%)+%)"'#(%$8*4'$%+/%&'8',&',4':%]"',%#,%)"'$'%$8*4'$?%)"+-5"?%'*4"%*4)+(%0-$)%
('$8+,&%)+%)"'%+6B'4)%-,&'(%$4(-)#,1?%2"')"'(%#)%#$%*%/+('$)(1%)',-('%+(%*,%+#.%8#8'.#,'%*,&%
$"#88#,5%8(+B'4):%@.*,,#,5%#$%4+,)'$)'&%$8*4'%)"*)%"*$%8*()#4-.*(%/-,4)#+,$%*,&%<-*.#)#'$%)"*)%
Making space for reconciliation in Canada's planning system 184
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.#0#)%#)$%*6#.#)1%)+%$'(D'%*$%*%D',-'%/+(%('4+,4#.#*)#+,:%!"'%0+&'%+/%8.*,,#,5%#$%#,9.-',4'&%61%
)"'%+6B'4)$%#)%5+D'(,$%*,&%0*1%4+0'%#,)+%4+,9.#4)%2#)"%5+*.$%+/%('4+,4#.#*)#+,:%!"#$%#$%'D#&',)%
#,%)"'%C*#&*%F2*##%4*$'%$)-&1%#,%$'D'(*.%2*1$%*$%'78.*#,'&%6'.+2:
R"*8)'(%!2+%8('$',)'&%*,%*(5-0',)%#,%&'/',4'%+/%$4*.'%*$%*,%'$$',)#*.%*,*.1)#4*.%/(*0'%/+(%
$)-&1#,5%8+2'(%2"',%4+,$#&'(#,5%I,',+-$%',5*5'0',)%#,%$)*)'X.'&%8.*,,#,5%$1$)'0$:%!"#$%
('$'*(4"%9#,&$%)"*)%*%r9.*)j%+(%)+8+.+5#4*.%/(*0'%Z$''%L..',?%N>>b_%E*($)+,%')%*.:?%N>>`[%2+-.&%
-,/*#(.1%'74.-&'%4+,$#&'(*)#+,%+/%"+2%)"'%$)*)'%*,&%I,',+-$%8+.#)#4*.%*4)+($%6+)"%&'(#D'%
8+2'(%/(+0%*%$8'4#9#4%8.*4'%*,&%)'((#)+(1%1')%-$'%Z4+,$)(-4)'&[%$4*.'$%)+%0*,#8-.*)'%*,&%
4+'(4'%)"'%8.*,,#,5%$1$)'0?%*,&%5*#,%#,9.-',4':%!"'%C*#&*%F2*##%4*$'%$)-&1%$-88+()$%)"'$'%
#&'*%)"(+-5"%*,%'.*6+(*)#+,%+/%M,5.'S$%*(5-0',)_%$8'4#9#4*..1?%)"#$%('$'*(4"%9#,&$%)"*)%)"'%)#'%)+%
8.*4'%*,&%)'((#)+(1%5','(*..1%&#$0#$$'&%*$%*%/-,&*0',)*.%4+,4'8)%#,%'7*0#,#,5%)"'%(#5")%)+%
4-.)-('%*$%#)%#$%'08.+1'&%#,%8.*,,#,5:%H')?%#)%#$%)"'%D'(1%)#'%)"*)%5#D'$%(#$'%)+%)"'$'%(#5")$:%
@(+)'4)#,5%)"'%(#5")%)+%4-.)-('%#$%*.$+?%#,%#)$'./?%/-,&*0',)*..1%8.*4'X$8'4#9#4%*,&?%#,%)-(,?%5#D'$%
(#$'%)+%)"'%(#5")%)+%0*3'%&'4#$#+,$%*6+-)%)'((#)+(1:%!"'%*88(+*4"%+/%0'('.1%8(+)'4)#,5%*%S(#5")%
)+%4-.)-('S%2#)"+-)%8(+D#&#,5%)"'%(#5")%)+%#,9.-',4'%*%&'4#$#+,%+(%4+..*6+(*)'%0'*,#,5/-..1%+D'(%
+4'*,%5+D'(,*,4'%#,*)'$%*%0#$-,&'($)*,&#,5%6'"#,&%)"'%0'*,#,5%*,&%8-(8+$'%+/%8.*,,#,5%
6')2'',%)2+%&#$)#,4)%)(*&#)#+,$?%*$%'D#&',4'&%#,%)"'%$'4+,&%4*$':%J'./%&')'(0#,*)#+,%#$%(#5")%
*,&%*%/-,&*0',)*.%'78('$$#+,%+/%)"'%('$8+,$#6#.#)1%)+%8(+)'4)%*,&%('.*)#+,$"#8%2#)"%*,4'$)(*.%
.*,&$%*,&?%)"-$?%)"'%(#5")%)+%)#).'%4*,,+)%6'%&'4+-8.'&%/(+0%)"'%(#5")%)+%4-.)-(':%A'$8#)'%)"#$%
/*4)?%)"'%$)*)'%D#'2$%4.*#0$%)+%I,',+-$%$+D'('#5,)1%*$%8+.#)#4$%,'$)'&%S2#)"#,S%#)$%+2,%
6+(&'($%*,&%S-,&'(S%#)$%B-(#$)#+,:%!"#$%"#'(*(4"#4*..1%$4*.'&%#,$)#)-)#+,*.%/(*0'2+(3%5#D'$%
0'*,#,5%*,&%.'5#)#0*41%)+%.*2$%)"*)%'//'4)#D'.1%S5(*,)S%('$+-(4'$%*,&%*-)"+(#)1%)+%S.+4*.S%
I,',+-$%4+00-,#)#'$:%I,',+-$%;*)#+,$%*,&%)"'%R(+2,%4.*#0%+2,'($"#8?%$+D'('#5,)1?%
*,&%B-(#$)#+,%+D'(%)"'%$*0'%.*,&%*,&%('$+-(4'$%1')%)"'%('4+5,#)#+,?%('$+-(4'$?%*,&%
B-(#$)#+,*.%$8*4'%*//+(&'&%#,%'D',%)"'%S6'$)%4*$'S%/+('$)(1%.*,&%-$'%8.*,,#,5%('5#0'%#$%+,.1%
*,%#,#)#*.%6*61%$)'8%)+2*(&$%)"'%S0#&&.'%5(+-,&S%)"*)%0*1%)*3'%$'D'(*.%.#/')#0'$:%!"-$?%(,/0)%1
?*%)1,+:"*.-1),)"-1!%1!1>*+.!?-+)!"1:&?'&+-+)1%&1)0-1'(&:-%%1&>1(-:&+:,",!),&+1:!+1H-/,+1)!C,+/1
'"!:-T1E0,%1?-!+%A1!)1?,+,?*?A1%0!(,+/1_*(,%.,:),&+!"1%'!:-1#,)01U+.,/-+&*%1:&??*+,),-%1#0-(-1
)0-1(-:&+:,",!),&+1'(&:-%%1)!C-%1'"!:-A1,+1)0-1'"!++,+/1%$%)-?T1%
!"'%+6B'4)%-,&'(%$4(-)#,1%#,%)"'%8.*,,#,5%8(+4'$$%*.$+%$"*8'$%)"'%0+&'%+/%8.*,,#,5%ZR+2'..%
185 GALBRAITH
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*,&%E-(&+4"?%Obbb_%R+2'..?%N>>d[:%I,%)"'%)2+%0*#,%4*$'$%'78.+('&%#,%)"#$%('$'*(4"?%/+('$)(1%
*,&%*,%+#.%8#8'.#,'%*('%)"'$'%+6B'4)$%)"*)%$"*8'%)"'%8.*,,#,5%8(+4'$$:%!"'%$4*.*(%<-*.#)1%+/%)"'%
+6B'4)%+/%5+D'(,*,4'%*,&%)"'%8.*,,#,5%$1$)'0%#)%#$%$-6B'4)%)+?%6+)"%"*D'%#08+()*,)%
#08.#4*)#+,$%/+(%"+2%)"'%8(+4'$$%-,/+.&$:%!"'$'%+6B'4)$%"*D'%#,9.-',4'%+,%)"'%8+)',)#*.%)+%
#,9.-',4'%"+2%4#)#g',$S%D*.-'$%*('%*4)#D*)'&%Z/+..+2#,5%C*B'(?%N>>c[%*,&%)"'%&'5(''%)+%2"#4"%
.*)',)%4+,9.#4)%0+D'$%)+%+6$'(D*6.'%4+,9.#4)%Z/+..+2#,5%e-3'$?%N>>`[:%!"'%-(5',41%*$$+4#*)'&%
2#)"%+6B'4)%*.$+%"*$%#,9.-',4'%+,%)"'%8(+4'$$?%2#)"%/+('$)(1%$-6B'4)%)+%2*,#,5%#,)'(,*)#+,*.%
8(#4'$%*,&%+#.%'78+()%+,%)"'%)+8%+/%)"'%/'&'(*.%5+D'(,0',)S$%*5',&*:%!"'$'%9#,&#,5$%*('%
'.*6+(*)'&%-8+,%#,%)"'%,'7)%$'4)#+,:%I,%5','(*.?%)0-1%'!),!"1-B)-+)1!+.1*(/-+:$1!%%&:,!)-.1#,)01
)0-1&H_-:)1&>1/&3-(+!+:-10!%1.,>>-(-+)1,?'",:!),&+%1>&(1#0&1,%1!:),3!)-.1!+.10)0-1'(&:-%%1
*+>&".%:%!"'%4+,9.#4)%+D'(%/+('$)(1%2*$%+,'%.*(5'.1%6')2'',%/+('$)(1%#,&-$)(1?%5+D'(,0',)?%
*,&%)"'%C*#&*%;*)#+,:%]"#.'%)"'('%2*$%$+0'%&#D#$#+,%*0+,5$)%('$#&',)$%+/%C*#&*%F2*##?%)"'('%
2'('%$'D'(*.%8+2'(/-.%$)*)'0',)$%)"*)%$"+2'&%$)(+,5%$-88+()%/+(%)"'%C*#&*%8+$#)#+,:%!"'%
8#8'.#,'?%+,%)"'%+)"'(%"*,&?%&#D#&'$%&+g',$%+/%\#($)%;*)#+,$?%8(+D#,4#*.%*,&%/'&'(*.%
5+D'(,0',)$?%0-,#4#8*.#)#'$?%*,&%4#)#g',$%*4(+$$%)"'%4+-,)(1:%I/%1+-%4+,$#&'(%)"'%$8*)#*.%
S('*4"S%+/%)"'%+#.%$*,&$%#$$-'?%"+2'D'(?%)"#$%&#D#$#+,%'7)',&$%)+%$'D'(*.%+)"'(%8*()$%+/%)"'%
2+(.&:%!"'$'%&#//'(',4'$%5+%$+0'%2*1%)+%'78.*#,%2"1%)"'%/+('$)(1%8.*,,#,5%8(+4'$$%$.+2'&%
&+2,%&'4#$#+,$%*,&%+8','&%-8%B-(#$)#+,*.%$8*4'?%2"#.'%)"'%('/+(0$%)+%',D#(+,0',)*.%
*$$'$$0',)%$''0%)+%"*D'%('$-.)'&%/(+0%)"'%M,6(#&5'%8#8'.#,'%8.*,,#,5%8(+4'$$:%
Proposition 2. Mechanisms of reconciliation
!"'%$'4+,&%8(+8+$#)#+,%/+4-$'$%+,%)"'%0'4"*,#$0$%*D*#.*6.'%2#)"#,%8.*,,#,5%$8*4'$:%!"'$'%
0'4"*,#$0$%#,9.-',4'?%*,&%*('%#,9.-',4'&%61?%)"'%8.*,,#,5%$1$)'0%*,&%#)$%4+,9#5-(*)#+,$%+/%
8+2'(%*,&%$4*.':%R*,*&*S$%/'&'(*.%8.*,,#,5%$1$)'0%#$%"#5".1%4+08.'7?%4"*(*4)'(#g'&%61%#)$%
B-(#$)#+,*.%+D'(.*8%*,&%9.-#&#)1%)"*)%&+'$%,+)%4+,/+(0%2#)"%&+0#,*,)%*$$-08)#+,$%+/%,'*).1%
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Making space for reconciliation in Canada's planning system 186
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187 GALBRAITH
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Transformative change is possible
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No need to redefine the issue to suit a new venue
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191 GALBRAITH
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Mechanism 2. Different interpretations of the rules
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Agonistic approaches may stabilize power and defer conflict to another time or venue
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Making space for reconciliation in Canada's planning system 192
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Targeting an inappropriately used venue for reform
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193 GALBRAITH
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Conflict over appropriate use may lead to important questions and public debate
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211 GALBRAITH
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$'))#,5%!$#."<+)S#,%J-8('0'%R+-()%(-.#,5%#$$-'&%#,%Q-,'%N>Of%)"*)%('<-#('$%)"'%R(+2,%)+%&'*.%
2#)"%)"'%#$$-'%+/%L6+(#5#,*.%)#).'%0+('%$'(#+-$.1:%!"#$%(-.#,5%"*$%*.$+%6'',%&(*2,%-8+,%61%
$'D'(*.%B-#*.%('D#'2$%)"*)%*#0%)+%$)+8%)"'%M,6(#&5'%8(+8+$*.%/(+0%8(+4''&#,5:%!"'%
#08.#4*)#+,$%+/%)"#$%*('%&#$4-$$'&%/-()"'(%*)%)"'%',&%+/%R"*8)'(%M#5"):
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!+%$-00*(#$'?%'D#&',4'%/(+0%)"#$%('$'*(4"%.',&$%$-88+()%)+%R+2'..%*,&%G2',$S%ZN>>a[%
8(')#+,%)"*)%8.*,,#,5%('/+(0%2#..%4"*,5'%)"'%8+.#)#4*.%+88+()-,#)1%$)(-4)-('$%'06'&&'&%#,%
8.*,,#,5%'D',)$:%I)%#$%)++%'*(.1%)+%*44-(*)'.1%)(*4'%"+2%)"'$'%$)(-4)-('$%"*D'%6'',%4"*,5'&%*$%
*%('$-.)%+/%)"'%N>ON%/'&'(*.%8.*,,#,5%('/+(0$?%6-)%8('.#0#,*(1%'D#&',4'%8('$',)'&%#,%R"*8)'(%
J#7%+//'($%$+0'%#08+()*,)%.'$$+,$:%@.*,,#,5%('/+(0%*88'*($%)+%4+,$+.#&*)'%*,&%.#,'%-8%)"'%
D',-'$%)"*)%4+,$)#)-)'%R*,*&*S$%4+08.'7%/'&'(*.%8.*,,#,5%$1$)'0:%!"'%4('*)#+,%+/%*%$#08.#9#'&%
8.*,,#,5%$1$)'0%*88'*($%)+%"*D'%'('4)'&%*,%#08+()*,)%6*((#'(%#,%/(+,)%+/%)"+$'%8+.#)#4*.%*4)+($%
2"+%-$'%D',-'%$"+88#,5%$)(*)'5#'$%61%.#0#)#,5%)"'%,-06'(%+/%8+)',)#*.%D',-'%$"+88#,5%
8+$$#6#.#)#'$:%\-()"'(0+('?%)"+$'%+88+()-,#)1%$)(-4)-('$%)"*)%('0*#,%#,%'*4"%D',-'%"*D'%
4"*,5'&%#,%4"*(*4)'(?%*4)#D*)'&%61%0+('%,*((+2.1%/(*0'&%#$$-'$:%I,%*&&#)#+,%)+%)"#$%$)(-4)-(*.%
4"*,5'?%)"'('%$''0$%)+%6'%*%8-6.#4%8'(4'8)#+,%)"*)%('/+(0$%"*D'%8.*4'&%#08+()*,)%.#0#)$%+,%
)"'%2*1%L6+(#5#,*.%(#5")$%2#..%6'%*&&('$$'&%#,%)"'$'%8.*,,#,5%$8*4'$%Z':5:%A'06#43#?%N>Oc[?%
2"#4"%0*1%"*D'%#,&#('4)%'//'4)$%+,%)"'%2*1%5(+-8$%#,)'(*4)%2#)"%*,&%-$'%)"'$'%D',-'$%#,%)"'%
/-)-(':%E+('%('$'*(4"%#$%,''&'&%)+%-,&'($)*,&%"+2%',D#(+,0',)*.%*$$'$$0',)$%*('%8'(4'#D'&%
*,&%2"')"'(%+(%,+)%4"*,5'$%#,%8'(4'8)#+,%0*1%.'*&%)+%4"*,5'$%#,%)"'%2*1%8+.#)#4*.%*4)+($%
6'"*D'%#,%('.*)#+,%)+%)"'$'%D',-'$:
Summary of conclusions
Y*((1%*,&%@+()'(%ZN>OO[%"#5".#5")%)"'%)',$#+,%*88*(',)%#,%)"'%8.*,,#,5%.#)'(*)-('%6')2'',%
$4"+.*($"#8%)"*)%'08"*$#g'$%)"'%0'(#)$%+/%8.*,,#,5%*$%*%-,#D'($*.%5++&%*,&%)"'%$4"+.*($"#8%
)"*)%'08"*$#g'$%)"'%#,B-$)#4'$%)"*)%8.*,,#,5%4*,%6(#,5%)+%I,',+-$%4+00-,#)#'$:%!"'1%*(5-'%
)"*)%#,%+(&'(%)+%*))',&%)+%)"#$%)',$#+,?%*,*.1)#4*.%/(*0'2+(3$%0-$)%6'%$',$#)#D'%)+%6+)"%)"'%
)(*,$/+(0*)#D'%*,&%+88('$$#D'%8+$$#6#.#)#'$%+/%8.*,,#,5:%I,%R*,*&*?%.*,&%*,&%('$+-(4'%-$'%
8.*,,#,5%)',&$%)+%6'%4+.+,#*.%#,%#)$%*88(+*4"%6-)%#$%#,4('*$#,5.1%8('/'(('&%*$%*%$8*4'%)+%8-($-'%
('4+,4#.#*)#+,%5+*.$%+D'(%+)"'(%D',-'$%$-4"%*$%)"'%)('*)1%8(+4'$$%ZM5*,?%N>ON[:%!"-$?%*%4',)(*.%
9#,&#,5%+/%)"#$%('$'*(4"%#$%)"*)1#0,"-1'"!++,+/1,+%),)*),&+%1?!$1&>>-(1,?'&()!+)1&''&()*+,),-%1)&1
'*(%*-1(-:&+:,",!),&+1/&!"%A1)0-$1?!$1!"%&1H-1*%-.1)&1:&+%)(!,+1)0-?T1
!"'%4+-()$%"*D'%'$)*6.#$"'&%*%$'(#'$%+/%0'4"*,#$0$%/+(%('4+,4#.#,5%L6+(#5#,*.%(#5")$%*,&%)"'%
$+D'('#5,)1%+/%)"'%R(+2,%Zh,+7?%N>OO[?%2"#4"%*('%'78*,&'&%-8+,%#,%)"#$%&#$$'()*)#+,:%!"'%
0+$)%4+00+,%+/%)"'%/+(0*.?%.'5*.%0'4"*,#$0$%-$'&%#,%',D#(+,0',)*.%*,&%,*)-(*.%('$+-(4'%
215 GALBRAITH
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8.*,,#,5%8(*4)#4'?%*,&%('<-#('&%61%/'&'(*.%*,&%8(+D#,4#*.%R(+2,%5+D'(,0',)$?%*('%)"+$'%+/%
4+,$-.)*)#+,%*,&%*44+00+&*)#+,%Z':5:%I;LR?%N>OO[:%!"'%*,*.1$#$%"'('%9#,&$%)"*)%)"'%8(*4)#4'%+/%
4+,$-.)*)#+,%#,%)"'$'%8.*,,#,5%D',-'$%'//'4)#D'.1%&'/'($%)"'%+88+()-,#)1%)+%2+(3%+,%('$+.D#,5%
)"'%)#).'%&#$8-)'%q%)"'%+D'(.*88#,5%(#5")$%)+%B-(#$)#+,?%+2,'($"#8?%*,&%$+D'('#5,)1%+D'(%.*,&%
*,&%2*)'(%q%)+%*,+)"'(%D',-':%I,%)"'%M,6(#&5'%4*$'?%)"'%4+-()$%2'('%('/'(('&%)+%*$%)"'%0+$)%
*88(+8(#*)'%D',-'%/+(%*&&('$$#,5%)"#$%&#$*5(''0',)?%2"#.'%5+D'(,0',)%8+.#41%('/'($%#)%)+%)"'%
)('*)1%8(+4'$$%Z':5:%I;LR?%N>OO[:%I,%)"'%4*$'%+/%)"'%4+..*6+(*)#D'%.*,&%-$'%('5#0'%+,%C*#&*%
F2*##?%)"#$%('$'*(4"%$"+2$%)"*)%'D',%)"+-5"%)"'%)#).'%&#$8-)'%#$%0+('%4.'*(.1%&'9#,'&%*,&%
*5(''&%-8+,?%#)%#$%$')%*$#&'%)+%*,+)"'(%)#0'%2#)"%)"'%8+)',)#*.%/+(%#)%)+%6'%&'/'(('&%)+%*,+)"'(%
D',-':%I,%6+)"%+/%)"'$'%&#D'(5',)%4*$'$?%)"',?%)"'%&#$*5(''0',)%+D'(%)#).'%#$%'74.-&'&%/(+0%)"'%
8.*,,#,5%D',-':%!"#$%('$'*(4"%9#,&$%)"*)%R*,*&*%&+'$%,+)%5#D'%B-(#$)#+,*.%$8*4'%)+%*&&('$$%
)"'%)#).'%&#$8-)':%L)%)"'%)#0'%+/%2(#)#,5?%"+2'D'(?%)"'%!$#."<+)S#,%D:%YR%ZN>Of[%J-8('0'%R+-()%
(-.#,5%"#5".#5")'&%)"#$%5*8?%('<-#(#,5%)"'%R(+2,%)+%4+,$#&'(%)#).'%-$#,5%*%S4-.)-(*..1%$',$#)#D'%
*88(+*4"S?%6*$#,5%)"#$%&')'(0#,*)#+,%+,%S)"'%&-*.%8'($8'4)#D'$%+/%)"'%L6+(#5#,*.%5(+-8%#,%
<-'$)#+,:::%*,&%)"'%4+00+,X.*2%,+)#+,%+/%8+$$'$$#+,S%Z$:%fO[:%!"#$%B-&5'0',)%-,&'(.#,'$%
E*)-,5*S$%ZN>Oc[%4*..%/+(%&+0#,*,)%8.*,,#,5%$1$)'0$%)+%5#D'%B-(#$)#+,*.%$8*4'%)+%
I,',+-$%8.*,,#,5%)(*&#)#+,$%$+%)"'1%0*1%/-,4)#+,%*,&%#,9.-',4'%)"'%&'4#$#+,%8(+4'$$:%!"*)%
#$?%*%S4-.)-(*..1%$',$#)#D'%*88(+*4"S%#$%+,'%)"*)%0*3'$%'<-*.%(++0%/+(%I,',+-$%8'($8'4)#D'$%
+,%',D#(+,0',)*.%*,&%('$+-(4'%8.*,,#,5%*,&%0*,*5'0',):
A'$8#)'%M5*,S$%ZN>ON[%$-55'$)#+,%)"*)%4+,$-.)*)#+,%0#5")%5#D'%(#$'%)+%*%S0+('%-$'/-.S%D',-'%
)"*,%)"'%)('*)1%8(+4'$$%)+%6'5#,%)"'%('4+,4#.#*)#+,%8(+4'$$?%)"#$%('$'*(4"%0*3'$%4.'*(%)"*)%#)%
2#..%,+)%)*3'%8.*4'%-,)#.%)"'%)#).'%#$%('4+5,#g'&%$-4"%)"*)%B-(#$)#+,%*,&%+2,'($"#8%*('%$"*('&%
2#)"%)"'%R(+2,:%!"#$%('$'*(4"%*.$+%6(#,5$%$+0'%+8)#0#$0%)+%)"#$%4(#)#4*.%+6$'(D*)#+,:%I,&''&?%
2"*)%#$%0+$)%#,)'('$)#,5%*6+-)%)"#$%('$'*(4"%#$%)"*)%#)%4('*)'$%*,%'08#(#4*.%/(*0'2+(3%)+%
+6$'(D'%8+$$#6#.#)#'$%/+(%8-($-#,5%('4+,4#.#*)#+,:%]"#.'%)"'%8.*,,#,5%8(+4'$$%#$%,+)%'78.#4#).1%
&'$#5,'&%)+%('4+,4#.'%*$$'()#+,$%+/%R(+2,%$+D'('#5,)1%*,&%I,',+-$%#,)'('$)$?%#)%8(+D#&'$%
#08+()*,)%#,$#5")$%+,%)"'%)#).'%&#$8-)'%#)$'./%*,&%"+2%#,$)#)-)#+,$%*('%-$'&%*,&%4"*,5'&%+D'(%
)#0'%)+%'78('$$%I,',+-$%#,)'('$)$%,+)%-$-*..1%'78('$$'&%#,%9#,*.%&'4#$#+,$%*,&%8+.#4#'$:%
I,&''&?%)"'%4+,$)*,)%'78('$$#+,%+/%)#).'%#,%8.*,,#,5%D',-'$?%,+)%+,.1%(*#$'$%<-'$)#+,$%*6+-)%)"'%
8-(8+$'%+/%8.*,,#,5?%6-)%*.$+%+8',$%-8%8.*,,#,5%D',-'$%)+%*&0#)%*,&%('$8+,&%)+%I,',+-$%
8'($8'4)#D'$%+D'(%)#0':%G/)',%4+,$#&'('&%#08'(D#+-$%)+%4"*,5'?%)"'$'%8.*,,#,5%$1$)'0$%4*,%
Making space for reconciliation in Canada's planning system 216
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6'%0+	#'&%*,&%$"*8'&%61%)"+$'%*4)+($%',5*5#,5%2#)"%#):%
C+2'D'(?%8.*,,#,5%#$%*.$+%*%4+.+,#*.%)++.%)"*)%4*,%6'%-$'&%)+%',/+(4'%&+0#,*,)%#&'*$%*6+-)%
('4+,4#.#*)#+,%*,&%)#).':%]"#.'%,'2%$8*4'$%0#5")%6'%+8','&%-8?%)"'1%4*,%*.$+%6'%4.+$'&%&+2,:%
L6+(#5#,*.%(#5")$%*('%*%(*)"'(%D*5-'%.'5*.%4+,4'8)%2#)"%$'D'(*.%#,)'(8(')*)#+,$:%!"'%9.'7#6#.#)1%
#,%0'*,#,5%0*3'$%)"'%R(+2,%D-.,'(*6.'%)+%('$#$)*,4'%2"',%)"'%8-6.#4%8'(4'8)#+,%+/%#)$%
#,)'(8(')*)#+,%#$%4+,$#&'('&%)+%6'%#,4+(('4):%!"'%R(+2,%0*1%*.$+%',/+(4'%#)$%#,)'(8(')*)#+,%+/%
4+,$-.)*)#+,%#,%8.*,,#,5%)"(+-5"%8.*,,#,5%('/+(0:%!"'%#08.'0',)*)#+,%+/%*%S+,'%8(+B'4)?%+,'%
('D#'2S%8(+4'$$%"*$%#08.#4*)#+,$%/+(%)"'%2*1%4+,$-.)*)#+,%)*3'$%8.*4':%
!"'%&#$$'()*)#+,%6'5*,%2#)"%*,%*,*.1$#$%+/%.#)'(*)-('%4+,4'(,'&%2#)"%I,',+-$%8.*,,#,5?%
8+.#41%&1,*0#4$?%*,&%('4+,4#.#*)#+,?%('$-.)#,5%#,%)"(''%)"'+(')#4*.%8(+8+$#)#+,$:%!"'$'%2'('%
-$'&%)+%/(*0'%)"'%*,*.1$#$%+/%$'D'(*.%"#$)+(#4*.%4*$'$%*,&%)2+%#,X&'8)"%4*$'$%/(+0%C*#&*%F2*##:%
!"#$%4"*8)'(%"*$%8('$',)'&%)"'%*,*.1$#$%*,&%('$'*(4"%9#,&#,5$%#,%+(&'(%)+%4+,9#(0?%('D#$'?%*,&%
'7)',&%)"'$'%+(#5#,*.%)"'+(')#4*.%8(+8+$#)#+,$:%!"'%4*$'$%$)-&#'&%"'('%"*D'%+//'('&%#08+()*,)%
,'2%#,$#5")$%#,)+%)"'%2*1%('4+,4#.#*)#+,%#$%$"*8'&%*,&%-,&'($)++&%#,%('.*)#+,%)+%8.*,,#,5%#,%*%
R*,*&#*,%8+.#41%4+,)'7):%!"'%9#,*.%4"*8)'(%4+,$#&'($%)"'%)"'+(')#4*.%*,&%8+.#41%#08.#4*)#+,$%+/%
)"'$'%9#,&#,5$%*,&%8(+8+$'$%*%('$'*(4"%*5',&*%)+%'78.+('%)"'0%/-()"'(:
217 GALBRAITH
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CHAPTER 8. CONCLUSIONS AND REFLECTIONS
R+00#$$#+,'($%4*0'%*(+-,&%#,%)"'%.*)'%O=>>$%*,&%)"',%*5*#,%#,%)"'%'*(.1%Ob>>$%U)+%*$3V%
+-(%8'+8.'%*%$8'4#9#4%<-'$)#+,?%S]"*)%.*,&%&+%1+-%,''&%)+%.#D'%+,^S%]'S('%5+#,5%)+%5#D'%1+-%
$+0'%.*,&?%2*$%)"'#(%*$$-08)#+,:%I,%)"+$'%&*1$?%+-(%8'+8.'%2'('%*$%'<-*..1%4.'*(%*,&%
'D'(1%6#)%*$%'.+<-',)%*$%2"*)%1+-S('%"'*(#,5%/(+0%+-(%8'+8.'%)+&*1%*6+-)%)"#$%M,6(#&5'%
<-'$)#+,:%G-(%8'+8.'%$*#&?%S!"*)S$%,+)%)"'%(#5")%<-'$)#+,S:::%UG-(%8'+8.'V%$*#&?%SL44+(&#,5%)+%
1+-(%.*2?%1+-%0-$)%&'*.%2#)"%)"#$%<-'$)#+,%+/%L6+(#5#,*.%)#).'?%*,&%2'SD'%,'D'(%*&&('$$'&%
)"*)%<-'$)#+,S%ZE#.'$%P#4"*(&$+,%2#)"%)"'%C*#&*%;*)#+,?%QP@?%N>ON*?%8*(*$%N>NdcXN>Nd`[:%
UIV/%*%$8#..%2*$%)+%+44-(%XX%*,&%2'%6'.#'D'%)"*)%#$%*%"#5".1%-,.#3'.1%'D',)%XX%)"*)%#/%)"'('%2*$%
*,%'//'4)%+,%*%"*(D'$)*6.'%('$+-(4'?%)"'('%*('%0'4"*,#$0$%#,%8.*4'%/+(%4+08',$*)#+,%*,&%
('"*6#.#)*)#+,%*,&%('4+D'(1%*,&%)"+$'%*('%,+)%4+,$#&'('&%$8'4#9#4*..1%6'4*-$'%2'%)"#,3%
)"*)%Z*[%#)S$%*,%-,.#3'.1%'D',)%*,&%Z6[%#/%#)%2*$%)+%+44-(?%)"',%)"'('%*('%0'4"*,#$0$%#,%8.*4'%
)+%*&&('$$%*,&%0#)#5*)'%)"*)%ZQ'//('1%F('',%2#)"%M,6(#&5'?%QP@?%N>Oc?%8*(*%NN==b[:
@.*,,#,5%#,$)#)-)#+,$%*('%-$'&%#,%&#//'(',)%2*1$%)+%*4"#'D'%&#//'(',)%8-(8+$'$:%!"'%8(+4'$$%61%
2"#4"%+,'%-$'%8('D*#.$%+D'(%*,+)"'(%-$'%#$%*,%#08+()*,)%*('*%+/%('$'*(4"%/+(%8.*,,#,5%)"'+(1%
*,&%8(*4)#4'%*,&%'$8'4#*..1%('.'D*,)%)+%)"'%I,',+-$%8.*,,#,5%.#)'(*)-(':%I,%)"'%9#($)%
<-+)*)#+,%*6+D'?%8.*,,#,5%#$%D#'2'&%*$%*,%$8*4'%/+(%'78('$$#,5%C*#&*%)#).'%+D'(%C*#&*%F2*##%)+%
)"'%R(+2,%/+(%+D'(%*%4',)-(1:%A-(#,5%)"#$%)#0'?%)"'('%"*$%6'',%*%)(*,$/+(0*)#+,%#,%)"'%2*1%
I,',+-$%8'+8.'$%('.*)'%)+%)"'%R(+2,:%I,%)"'%$'4+,&%<-+)*)#+,?%8.*,,#,5%#$%-$'&%*$%*%
)'4",#4*.X(*)#+,*.%8(+4'$$%61%2"#4"%*,%#08*4)%+,%*,%L6+(#5#,*.%(#5")%0*1%6'%8(')'&%2#)"%
$+0'%4'()*#,)1:%!"#$%*88(+*4"%)+%8.*,,#,5%8''.$%*2*1%*,1%0+(*.%#,)'(8(')*)#+,%+/%I,',+-$%
3,+2.'&5'%ZR(-#3$"*,3?%N>>>[%*,&%4.*#0$%)+%)"'%(#5")%)+%.*,&%6*$'&%+,%4+,)#,-+-$%
+44-8*)#+,?%.#0#)#,5%*,1%(#5")%)+%S*,%'//'4)%+,%*%"*(D'$)*6.'%('$+-(4'S:%I,%)"'%9#,*.%P'8+()%+/%)"'%
Q+#,)%P'D#'2%@*,'.%)"*)%#$$-'&%)"'%@*,'.%('4+00',&*)#+,%)+%8(+4''&%2#)"%)"'%8(+B'4)?%
M,6(#&5'S$%8'($8'4)#D'%8('D*#.'&%2"#.'%)"'%C*#&*%8'($8'4)#D'%2*$%0'('.1%*43,+2.'&5'&%Z$:%
f:d?%QP@?%N>Oc6[:%!"#$%8+2'(%&1,*0#4%"#5".#5")$%)"'%"#$)+(#4%*,&%+,5+#,5%S+88('$$#+,%)"*)%
$)*)'X6*$'&%8.*,,#,5%+/)',%6(#,5$%*6+-)%/+(%UI,',+-$V%4+00-,#)#'$S%ZY*((1%*,&%@+()'(?%
N>OO?%8:%Odc[:%%
!"'$'%)2+%<-+)*)#+,$%*.$+%4+,)(*$)%)"'%8+$$#6.'%#08.#4*)#+,$%+/%*&+8)#,5%*%S(#5")%)+%4-.)-('S%
&'9#,#)#+,%+/%*,%I,',+-$%(#5")%+D'(%)"*)%+/%)"'%(#5")%)+%$'./X&')'(0#,*)#+,%*,&%)#).'%ZM,5.'?%
N>O>[:%!"'%S(#5")%)+%4-.)-('S%&'9#,#)#+,%#$%'78('$$'&%#,%)"'%$'4+,&%<-+)*)#+,%*6+D'%#,%)'(0$%+/%
8+)',)#*.%#08*4)$%+,%S*%"*(D'$)*6.'%('$+-(4'S?%2"#.'%)"'%(#5")%)+%B-(#$)#+,?%$+D'('#5,)1?%*,&%
Making space for reconciliation in Canada's planning system 218
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+2,'($"#8%#$%'78('$$'&%#,%)'(0$%+/%('8'*)'&%',5*5'0',)%2#)"%)"'%R(+2,%+,%)"#$%)+8#4%$#,4'%
)"'%O=>>$:%!"'%F+D'(,0',)%+/%R*,*&*%*&&('$$'$%)#).'%#,%)"'#(%&')'(0#,*)#+,%+/%S$)(',5)"%+/%
4.*#0S?%$"*8#,5%)"'%2*1%)"'%.'5*.%0'4"*,#$0$%+/%('4+,4#.#*)#+,%X%4+,$-.)*)#+,%*,&%
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Making space for reconciliation in Canada's planning system 232
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235 GALBRAITH
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Making space for reconciliation in Canada's planning system 236
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237 GALBRAITH
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APPENDICES
273 GALBRAITH
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APPENDIX A. THE PATH TO A RESEARCH DESIGN
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Making space for reconciliation in Canada's planning system 274
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Research step or methodology Research method or source of information
Topic area 1. Map policy networks influencing
dynamics of energy planning under 'urgent' climate
change agenda, and consider the implications of
planning reform.
- Review academic literature on policy networks
- Conduct pilot study, including helicopter interviews
with key informants who make up the 'green energy'
policy networks, including those involved from Haida
Gwaii in the NaiKun Offshore Wind Farm and its
impact assessment
- Issue basic online survey to identify ties between
participants
Key decision point that changed the research design: Conversations and meetings with various individuals
and groups involved involved in the research directed me towards the history of the relationship between
the Haida Nation and the Crown and how the conflict has recently changed to a more conciliatory tone
through a planning process.
Topic area 2. Consider the history of Indigenous-
settler geographies in planning in BC, discovered
Indigenous planning literature. Refocused
exclusively on NaiKun planning event, highlight
nature of planning within the context of conflict and
recent successes of planning
Create an in-depth narrative, from start to finish, of
the NaiKun planning process. Conducted interviews
and other data collection over a six month period.
Many interviews were directed to the history and
politics of Haida Gwaii with many highlighting the
success of the new co-managed land use
management regime.
Key decision point that changed the research design: In addition to the emphasis placed on the co-
management land use regime (selected as case 1), the politics around the Enbridge case unfolded with the
release of a highly divisive letter issued by Minister Joe Oliver. Returning to Haida Gwaii a few weeks after
the letter was issued to present the research findings, I was able to attend the oral hearings for Enbridge in
Haida Gwaii.
Final topic area. Presented in dissertation. Presented in Chapter Three.
Table 9: The research process, 2009-2013
275 GALBRAITH
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APPENDIX B. THE 'PROBLEM' WITH RESEARCH
Conducting research in Haida Gwaii
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Making space for reconciliation in Canada's planning system 278
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1 G aaysiigang: An ocean forum for Haida Gwaii, 2009, page 7.
2 See Appendix 6 of the Five Year Plan for more information on these objectives. The CHN had started a
draft Heritage Policy in the mid-1990s, drawing upon the Sto:lo Nation Heritage Policy.
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$O"78*,,"6**%*)"*%2"+-'"!(#-,N'1*5$"]*%*5'0'%+"P$*(2U")>#-"*)"!1'V"
7(ZC:$8)4,"*%2"^#$++"^1$#$0:'W)"*%*1C),)"$O"+-'",)1*%2W)"#$0N1'V")$#,*1"*%2"
- 2 -
DRAFT for discussion Version 2 July 11, 2011
'%&,($%0'%+*1"[)C)+'0\"2C%*0,#)"*%2"^>)*%"G$(+'(3P$NNW)"]*)+'(W)"
'V*0,%*+,$%"$O"+-'"+'%),$%":'+8''%",2'*)"*:$>+"%*+>('U"%*+,$%U"*%2"#$1$%,*1,)0?"
^>:)'c>'%+"+$"+-'"')+*:1,)-0'%+"$O"78*,,"6**%*)U"*"),5%,O,#*%+"%>0:'("$O"
)+>2,')"-*&'":''%"N>:1,)-'2"$%",+)")>##'))U")>#-"*)"X'%2C"X-'*+1'CW)"]*)+'(W)"
$%"-$8",+"-*)"1,%4'2"#>1+>(*1"*%2"'#$1$5,#*1")>)+*,%*:,1,+,')U"P('%+"e$:'()+',%"*%2"
^*(*-"e'&,%W)"N*N'("$%",+)">)'"$O"+(*2,+,$%*1"'#$1$5,#*1"4%$81'25'U"*%2"^>Z*%%'"
6*84'W)"N*N'("+-*+"*(5>')",+"-*)":''%"*%"[*1+'(%*+,&'"0'*%)"O$("(')$1&,%5"*"
2''N1C"'%+('%#-'2"1*%23>)'"2,)N>+'\?"78*,,"6**%*)"-*)"*1)$":''%">)'2"*)"*"
)>:M'#+"$O"#$0N*(,)$%"+$"#$%)'(&*+,$%",%,+,*+,&')"*#($))"Q*%*2*U"*)",%"e*&,2"
]#h'++C"*%2"],#-'1'"e'*4,%W)"#$0N*(,)$%"+$"!>1*&,4U"h,&,*%'"X',+Z%'("*%2"
],#-'1,%'"]*%)'*>W)"#$0N*(,)$%"+$"A1>*%'U"@>4+>+"Y$5*,+U"*%2"X*N>)4"Y*+,$%*1"
G*(4)U"G-,1,N"e'*(2$%"*%2"J*8('%#'"P'(5W)"#$0N*(,)$%"+$"G*#,O,#"F,0"*%2"
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:'+8''%"Q*%*2,*%"*%2"^$>+-"!O(,#*%",%,+,*+,&')?
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#$00>%,+C"1,*,)$%",%"SIIH"O$11$8,%5"+-'"^$>+-"]$('):C"!5(''0'%+?"6'('U"-'"
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9%"+-,)"#-*N+'("-'"('#('*+')"*"2,*1$5>'":'+8''%",)1*%2'()"*%2"*"),%51'"6*,2*"
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#$%&'()*+,$%"*%2"5('*+'(">%2'()+*%2,%5"$O"%'5$+,*+,$%"'VN'#+*+,$%)"*%2"
>1+,0*+'1C"1'*2)"+$":'++'("$>+#$0')?"6'"#(,+,#,Z')"N($O')),$%*1"%'5$+,*+,$%"
*NN($*#-')"+-*+":CN*))"N'()$%*1"('1*+,$%)"O$("+-'")*4'"$O"'OO,#,'%#C?"6'"*(5>')"
+-*+"N'()$%*1"('1*+,$%)-,N)"*('"O>%2*0'%+*1"O$("(')$1&,%5"#($))3#>1+>(*1"#$%O1,#+?"
]$('"('#'%+1CU"(')'*(#-"-*)":''%">%2'(+*4'%"$%"+-'"#$11*:$(*+,&'"1*%2">)'"
N1*%%,%5"N($#'))?"J$>,)'"@*4'2*W)"G-e"(')'*(#-U"[G$8'("*%2"#$%+')+*+,$%",%"
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- 3 -
DRAFT for discussion Version 2 July 11, 2011
'&'%+)"1'*2,%5">N"+$"+-'"),5%,%5"$O"+-'"6*,2*"78*,,"^+(*+'5,#"J*%2"K)'"
!5(''0'%+?"^-'")>55')+)"+-*+"%>0'($>)"O*#+$()"N1*C'2",0N$(+*%+"($1')",%"+-,)"
-,)+$(,#"'&'%+U"%$+*:1C."
D*E"*11,*%#')"8,+-"'%&,($%0'%+*1"5($>N)"*%2",)1*%2"#$00>%,+,')U"
D:E"+-'"*2$N+,$%"$O"'#$)C)+'03:*)'2"0*%*5'0'%+"N(,%#,N1')"+-*+"('O1'#+)"
6*,2*"N(,%#,N1')"$>+1,%'2",%"+-'"6*,2*"J*%2"K)'"h,),$%U"*%2
D#E"N$8'("*%2"#$%+')+*+,$%"+-*+"N1*C'2"$>+"+-($>5-"+-'"^>N('0'"Q$>(+"
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*%2"+-'";HH<"9)1*%2"^N,(,+"F,),%5"($*2":1$#4?
g>)+,%'"@$8%)'%2"-*)"*1)$"#$%),2'('2"+-')'"'&'%+)?"9%"-'("]*)+'(W)"+-'),)U")-'"
'VN1$(')"-$8"+-'"G($&,%#'"('N($2>#')"0C+-)"*:$>+")+*+'")$&'(',5%+CU"*%2"
(',%O$(#')"+-'"1'5,+,0*#C"$O"X')+'(%"1'5*1U"N$1,+,#*1U"*%2"'#$%$0,#"('5,0')?"^-'"
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0*2'"$%"6*,2*"78*,,U"#$%#'(%)"
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- 4 -
DRAFT for discussion Version 2 July 11, 2011
(*,)'2":C"#,+,Z'%)"*%2"1'*2'()"*($>%2")N'#,O,#"'%'(5C"N($M'#+)U"%$+*:1C"+-'"
Y*,A>%"$OO)-$('"8,%2"N($M'#+"*%2"+-'"/%:(,25'"Y$(+-'(%"7*+'8*C"N($M'#+?"
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$OO)-$('"8,%2"N($N$)*1"+$">%2'()+*%2"-$8"2':*+')"$&'("#1,0*+'"#-*%5'"
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9%")>00*(CU"+-,)"(')'*(#-"$%"'%&,($%0'%+*1"2'#,),$%30*4,%5"-*)"-'1N'2"+$"
2$#>0'%+"+-'"&'(C"('#'%+"-,)+$(C"$O"6*,2*"78*,,?"!1)$U"+-')'"1'))$%)"1'*(%'2"
O($0"6*,2*"78*,,"-*&'"-'1N'2")+>2'%+)"*%2"$+-'("(')'*(#-'()">%2'()+*%2"+-*+"
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D*E">)'")+$(C3+'11,%5"+$"#($))"#>1+>(*1"2,&,),$%)
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D#E"(*,)'"+-'"('#$5%,+,$%"$O"+-'"6*,2*"*)"+-'"(,5-+O>1"-',()"$O"6*,2*"78*,,?
!)"+-,)"4%$81'25'",)"*NN1,'2",%"%'8"N1*#')U"+-'"1'))$%)"1'*(%'2"$%"6*,2*"78*,,"
8,11"(')$%*+'"*#($))"+-'"51$:'?
@-'"#$%&'()*+,$%"$%"(')'*(#-
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N*(+,#,N*+'",%"*%",%O$(0*1"#$%&'()*+,$%"$%"(')'*(#-"*%2"*"2(*O+"$O"+-,)"2$#>0'%+?"
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1,:(*(,')"*%2"$OO,#')?"^$0'"$O"+-,)"(')'*(#-"-*)":''%"#$0N1'+'2",%"(')N'#+O>1"*%2"
>)'O>1"8*C)U"%$+*:1C"+-'"(')'*(#-">%2'(+*4'%"*)"N*(+"$O"+-'",)1*%238,2'"N>:1,#"
O$(>0)"O$("+-'"6*,2*"78*,,"1*%2">)'"N1*%%,%5"N($#'))?"9+",)"-$N'2"+-*+"(')'*(#-"
$%""'%&,($%0'%+*1"2'#,),$%30*4,%5"0,5-+"-'1N"$+-'("#$00>%,+,')"1'*(%"O($0"+-'"
'VN'(,'%#'"$O"6*,2*"78*,,":$+-"$%"*%2"$OO",)1*%2?
^$0'"N*(+,#>1*("#-*11'%5')"O*#,%5"(')'*(#-'()"*%2"#$00>%,+,')"8-$",%+'(*#+"
8,+-"+-'0"*('"2,)#>))'2":'1$8?"
D*E @-'"5$*1)"$O"(')'*(#-'()"*%2"#$00>%,+,')"*('"2,OO'('%+?"@-,)"2,OO'('%#'",)"
,0N$(+*%+"*%2"0>)+":'"*#4%$81'25'2?"R$("'V*0N1'U"0$)+"(')'*(#-'()"*,0"
3 For additional information on this research, visit: https://sites.google.com/site/galbraithlindsay
- 5 -
DRAFT for discussion Version 2 July 11, 2011
+$"#$11'#+"*%2",%+'(N('+"4%$81'25'"*%2":(,%5"%'8"4%$81'25'"+$"+-',("
2,)#,N1,%'"*%2"+$"+-'"#$00>%,+,')"$("N'$N1'"8,+-"8-,#-"+-'C"8$(4?"
9%2,&,2>*1)"*%2"5($>N)",%&$1&'2",%"'%&,($%0'%+*1"2'#,),$%30*4,%5U"$%"+-'"
$+-'("-*%2U"*('"8$(4,%5"+$"0*4'"+-')'"2'#,),$%)"*%2"8$(4,%5"+$"
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D:E F')'*(#-'()")-$>12"('O1'#+">N$%"+-'"#$%+'V+"$O"6*,2*"78*,,?"X-,1'"
(')'*(#-'()")-$>12":'"5,&'%"+-'"O(''2$0"+$"N>()>'"+$N,#)"$O"+-',("
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#$0N1'V"-,)+$(C"$O"+-,)"N1*#'"*)"8'11"*)"6*,2*"N($+$#$1)"*%2",%+'(')+)?
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$%"6*,2*"78*,,"*('")+>2'%+)"8-$"*('"8$(4,%5"+$8*(2)"*"2'5(''"D'?5?"
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>%O*0,1,*("8,+-"+-*+"*('*"$O"8$(4U"('),2'%+)"8-$"-*&'"$OO'('2"+-',("
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'OO$(+U"+-$>5-",+"2$')"+*4'")>:)+*%+,*1"+,0'"*%2"#*%":'"c>,+'"'VN'%),&'?"
F')'*(#-'()")-$>12":'"N('N*('2"O$("+-,)?
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8*C?
- 6 -
DRAFT for discussion Version 2 July 11, 2011
P,:1,$5(*N-C
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- 8 -
DRAFT for discussion Version 2 July 11, 2011
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This document was compiled by Lindsay Galbraith. An online
v e r s i o n i s a v a i l a b l e h e r e :
https://sites.google.com/site/researchhaidagwaii/
For more information on this document or to get in touch with
Lindsay, send her an email at leg31@cam.ac.uk or visit her
website here: http://www.geog.cam.ac.uk/people/galbraith/
The opinions expressed in this document do not necessarily reflect those of the author.
The research included in this document only concerns environmental decision-making.
This includes studies on the politics, law, science, economics, and geographies of (i)
protecting and managing Gwaii Haanas and (ii) completing and implementing local
initiatives, especially land and marine use and conservation initiatives across the
islands. It excludes the large amount of research on the biophysical environment as
well as research that focuses on the North and Central Coasts of which Haida Gwaii is
one part of this region. There are very significant amounts of research that has been
conducted on Haida Gwaii such as title law, archaeology and anthropology, health, and
engineering that are not included here.
- 9 -
L@@M;AI{%R:%@PMeIEI;LPH%I;!MPkIM]%FWIAM
APPENDIX C. PRELIMINARY INTERVIEW GUIDE
Making space for reconciliation in Canada's planning system 280
Interview Guide
Generally, my research concerns whether or not the issue of climate change can transform the way we
understand energy policy issues and democracy. Using the NaiKun offshore wind project as a case study I
will explore how such a renewable energy project planning event produces knowledge relevant to energy
policy, where it comes from, and how it becomes more or less important when making decisions, especially
when the development in question is proposed within indigenous lands. Does climate change alter the way
we use knowledge to make decisions? Does it shift historic (e.g. colonial) relations? More information can
be found on my website, here: https://sites.google.com/site/galbraithlindsay/Home
The purpose of this interview is to collect details of the assessments and discussions used in the
environmental assessment and related activities that took place for the NaiKun offshore wind project,
derived from your direct experience and observation.
Questions
1. How did you get involved in the NaiKun EA?
2. How would you describe your role in the NaiKun EA and related processes?
3. If you could identify just one issue, what was the issue of greatest concern assessed this process?
4. How did CHN's involvement influence the EA process and related negotiations? Or was the CHN
process entirely separate?
I am interested in how climate change issues were discussed in the EIA. I understand that coastal erosion
and ocean acidification are concerns for residents of Haida Gwaii as is diesel electricity generation.
5. Do you recall how the coastal erosion and sediment transfer issues were raised in the EA?
a. Did you consult with outside parties, like citizens, scientists or stakeholders on this issue? If so, can
you give me an example of how this helped to shape your assessment?
b. What information did you consult in your assessment of this issue? Can you give me an example?
6. Do you recall how the impacts to seafood was raised in the EA?
a. Did you consult with outside parties, like citizens, scientists or stakeholders on this issue? If so, can
you give me an example of how this helped to shape your assessment?
b. What information did you consult in your assessment of this issue? Can you give me an example?
7. I understand that self-sufficiency is a shared goal amongst Haida and the others living on Haida Gwaii.
Do you recall how this idea was discussed in the EA?
a. Did you consult with outside parties, like citizens, business people, experts, or stakeholders on this
issue? If so, can you give me an example of how this helped to shape your assessment?
b. What information did you consult in your assessment of this issue? Can you give me an example?
8. [Ask, if relevant] What was learned in the UK visit? Did any of this help you better understand:
a. Coastal erosion?
b. Impacts on seafood?
c. Self-sufficiency?
9. Is there any other information about your involvement in the NaiKun EA that I should be aware of?
Lindsay Galbraith Department of Geography University of Cambridge leg31@cam.ac.uk
Research Ethics
The following guidelines will be followed when undertaking this research.
1) Informed consent will be obtained from participants through verbal agreement, email, or
written confirmation. Any written assurances regarding consent, confidentiality, and data
storage and handling will be provided to the participant upon request.
2) Participants will be asked if they are comfortable with having an audio recording device at
the interview. If this is not acceptable, I will ask permission to take notes using pen and
paper.
3) Participants will be assured that I will be the only person with access to the interview
recording and/or notes.
4) A copy of the interview transcript will be provided to the participant upon request. Any
changes that the participant wishes to make to the transcript at this time will be made and
will replace the original transcript.
5) If the participant requests that their identity not be revealed, I will see if they are
comfortable with a number of techniques researchers use to hide the identity of
individuals. First, I will ask if they are comfortable with me identifying them as a
participant in the study, where I will not tie their name to what they have said to me.
Second, I will ask if they are comfortable with me tying their words to the name of their
organization (e.g. leader from the Council of the Haida Nation) or a more general category
(e.g. staff member of a Haida Nation organization), that in no way reveals their personal
identity. Any request regarding confidentiality will be respected.
6) Interview recordings and/or notes will be transcribed as soon as is possible and stored on a
password-protected computer and backed up on a password-protected external hard drive.
Original recordings and notes will be stored in a secure (locked and fireproof) location
only accessible to the researcher.
7) Research will be reported to the community in a number of presentations to various
groups. A short, Plain English report will also be circulated to participant organizations
(e.g. Council of the Haida Nation), if it is something that will be read by the participants.
8) Ethics are discussed as part of a yearly reporting requirement to my Supervisor, Professor
Susan Owens, and my committee members. Additional assurances from these individuals
on my consideration of research ethics can be produced upon request.
Lindsay Galbraith Department of Geography University of Cambridge leg31@cam.ac.uk
L@@M;AI{%A:%RCPG;GeGFH%L;A%AMJRPI@!IG;%G\%hMH%MkM;!J
APPENDIX D. CHRONOLOGY AND DESCRIPTION OF KEY EVENTS
Making space for reconciliation in Canada's planning system 282
L@@M;AI{%A:%RCPG;GeGFH%L;A%AMJRPI@!IG;%G\%hMH%MkM;!J
Planning
process
Decision
date
Decision outcome Process description Authority/ies
Case 1. Collaborative Land Use Planning and Decision-making
Supreme Court
Case: Haida v.
BC
2004 Upheld Crown's duty
to consult and
accommodate,
adding the duty
exists even where
these interests are
not yet proven.
Haida went to court to
challenge BC transfer of Tree
Farm License 39 in 1995.
Supreme Court of
Canada
Islands Spirit
Rising Road
Blockade and
Agreement
2005 The Province agreed
to many of the Haida
terms, facilitating the
land use planning
process.
BC appeared to directly
contravene the 2004 court
case, leading to a road
bloackade for forestry
operations. The political climate
gave the Haida an advantage.
Council of the Haida
Nation (CHN) and
Province
Haida Gwaii
Strategic Land
Use Agreement
2007 New protected areas
and management
strategies were
established to
conserve cultural
and ecological
values.
Guided by the Haida principle
Yah'guudang (Respect) and
EBM.
CHN and Province
Kunst'aa guu –
Kunstaayah –
The Beginning –
Reconciliation
Protocol
2009 An agreement to
share power in
policy-level
decisions involving
natural resources on
Haida Gwaii.
Negotiations were part of the
Provincial policy of The New
Relationship and in line with
the interests of the Haida
Nation to gain greater control
over these decisions.
CHN and Province
Annual
Allowable
(Timber) Cut
Determination
2012 The 2013 allowable
cut would be 47.8%
of the previous
year's allowable cut.
The first major policy decision
coming out of the jointly run
CHN-BC Haida Gwaii
Management Council.
Haida Gwaii
Management
Council
Environmental Assessment for NaiKun Offshore Wind Farm
BC
Environmental
Assessment
November
2009
NaiKun was
awarded a certificate
authorizing the
project to proceed
under certain
conditions
After initiating the process in
2003, NaiKun submitted their
assessment report to the office
in May 2009. The working
groups, information requests,
community meetings, and
public comment period all
wrapped up within the year.
Ministry of
Environment
Haida
Environmental
Rescan
Report,
Two independent
reports concurred
Three-tiered process: CHN
283 GALBRAITH
L@@M;AI{%A:%RCPG;GeGFH%L;A%AMJRPI@!IG;%G\%hMH%MkM;!J
Assessments
and General
Vote
September
2009
Gunton
Report,
August 2011
General
Vote,
December
2011
with the provincial
and federal
environmental
assessment
decisions.
A general vote on
whether or not the
project should
proceed (specifically
if the Haida Nation
should invest in the
40% stake), is
pending.
1. Independent review of the
NaiKun EA submission by
Rescan Consultants.
2. Independent review of the
full EA by Professor Tom
Gunton at Simon Fraser
University.
3. General vote resulted in
resounding 'no' to the
commercial deal part of the
project.
Canadian
Environmental
Assessment
March 2011 Federal authorities
agreed that the
project may proceed
under certain
conditions.
While the process was
coordinated with the BC
process, additional time was
needed to satisfy federal
requirements.
Ministry of Fisheries
and Oceans,
Transport Canada,
and Natural
Resources Canada
BC Hydro Clean
Power Call
June 2010 27 projects were
selected in 2010.
NaiKun was not
selected.
In June 2008, a call for power
projects was issued in
response to the demand for
electricity identified in the most
recent long term electricity
plan. In November 2008, over
68 proposals were submitted.
BC Hydro (Crown
Corporation)
Haida Gwaii Marine Use Planning
Haida Gwaii
Marine Use Plan
Expected
late-2013
Unknown at this
time.
Guided by the 2007 Towards a
Marine Use Plan. Haida public
engaged at Gaaysiigang
Ocean Forum in 2009, through
a marine working group, and a
future public consultation
process. The process will
establish a marine spatial plan
and protected area network.
CHN
Pacific North
Coast Integrated
Management
Area
Expected
late 2013
Unknown at this
time.
Started as an honourable
process aimed at engaging
First Nations on marine
planning, including integrating
sub-regional processes. Half-
way through the process, the
federal government removed
funding so the new
'streamlined' process will now
simply inform sub-regional
processes.
Chaired by
Fisheries and
Oceans Canada
and Coastal First
Nations
Marine Planning Expected Expected December Aims to inform the federal CHN and Province
Making space for reconciliation in Canada's planning system 284
L@@M;AI{%A:%RCPG;GeGFH%L;A%AMJRPI@!IG;%G\%hMH%MkM;!J
Partnership
(MaPP)
December
2013
2013 'streamlined' process in a
collaborative way, yet early
reports suggest there will be
challenges in addressing policy
sectors that are clearly outside
provincial jurisdiction (e.g.
marine shipping and fisheries).
Case 2. See Table 6 in Chapter Five for a description of events for the Enbridge case.
285 GALBRAITH
L@@M;AI{%M:%G\\JCGPM%GIe%FGkMP;L;RM%!IEMeI;M
APPENDIX E. OFFSHORE OIL GOVERNANCE TIMELINE
Making space for reconciliation in Canada's planning system 286
L@@M;AI{%M:%G\\JCGPM%GIe%FGkMP;L;RM%!IEMeI;M
Time period Characteristics of offshore oil policy
1913-1958 In 1913, the first oil well was drilled off of the west coast of Canada in the Queen Charlotte Basin, on the north
island (Graham Island) of Haida Gwaii. More wells were drilled onshore until 1958 when seismic activity was
first recorded in the area (MacConnachie 2007).
1960s The Province declared its right to control offshore oil exploration activities being permitted by the federal
government. A few years later, the province backed down on this declaration and the federal government
allowed drilling in the offshore for a short period (MacConnachie 2007).
1969-1972 In 1969, the US proposed to ship oil from Alaska through BC coastal waters. 'In 1972, the Government of
Canada imposed a moratorium on crude oil tanker traffic through the Dixon Entrance, Hecate Strait, and Queen
Charlotte Sound due to concerns over the potential environmental impacts. The moratorium was subsequently
extended to include all offshore oil and gas activities. This was followed by a prohibition by the Government of
British Columbia' (Priddle, 2004, p.2). The tanker moratorium was passed as a resolution in the House of
Commons under the government of Prime Minister Pierre Trudeau, where it was stated 'the movement of oil by
tanker along the coast of British Columbia from Valdez Alaska to Cherry Point in Washington is inimical to
Canadian interests especially those of an environmental nature' (House of Commons Debates, May 15, 1972, at
2245, in De Mestral, 1974).106 'In bilateral talks in the Trudeau era, it was made clear to the U.S. that Canada
would similarly ban east-west tanker traffic to Canadian West Coast ports' though small shipments of crude from
Vancouver terminals 'were allowed under a grandfather clause' - 'it was the tanker ban that was the catalyst for
the companion moratorium on offshore oil development' (David Anderson, retired Liberal Environment Minister,
quoted in Sutherland, 2007).
A voluntary tanker exclusion zone has existed since the 1970s as a shipping industry code of practice, where
crude oil tankers traveling from Valdez, Alaska, to the US west coast must not travel within this exclusion zone
in Canada to avoid tanker grounding.
1976-2002 In an effort to clarify the federal-provincial jurisdiction in BC's coastal waters, the federal Court of Appeal
decided that the Strait of Georgia (to the south of Hecate Strait) and the wider territorial sea (excluding bays,
harbours and inland waters) belongs107 to Canada. This 1976 decision does not provide clarity on whether or not
the Hecate Strait is considered to be 'inland waters' and, thus, whether it is provincial or federal territory (Finkle
1990). The province maintains its claim to these waters, having passed three separate Orders-in-Council
declaring the territorial sea an Inland Marine Zone (Hudec 2002). Legal experts have been calling for a Pacific
Accord to resolve the jurisdictional dispute in a similar manner to the Arctic and Atlantic coasts108 (Finkle 1990;
Hudec 2002).
O>a%L44+(&#,5%)+%A'%E'$)(*.%ZObdf[?%*))'08)$%2'('%0*&'%)+%/+(0*.#g'%)"'%&'4.*(*)#+,%)"(+-5"%)"'%I,)'(,*)#+,*.%
Q+#,)%R+00#$$#+,%6-)%)"#$%2*$%('B'4)'&%61%)"'%;#7+,%5+D'(,0',):
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287 GALBRAITH
L@@M;AI{%M:%G\\JCGPM%GIe%FGkMP;L;RM%!IEMeI;M
Time period Characteristics of offshore oil policy
2002-2010 BC's 2002 Energy Plan signalled to Canada that they were willing to take steps necessary to lift the federal-
provincial moratorium on offshore oil and gas activities. Canada followed more cautiously, undertaking a
strategic environmental assessment on this question between 2003 and 2005 (Noble, 2009). However, the
assessment reports make clear that the public held “vigorously polarized views” (Priddle et al., 2004) and First
Nations “felt that lifting the moratorium would not be in their best interests” (McAlpine, 2005).109
Despite these concerns, however, then Minister of Natural Resources, Gary Lunn, stated that '[t]here actually is
no moratorium for (oil tanker) traffic coming into the West Coast' in 2006. He pointed instead to 'a voluntary
exclusion zone' that applies to US tankers carrying Alaska oil to terminals in Washington state (Sutherland,
2007). The BC Minister of Energy, Mines and Petroleum Resources, Richard Neufeld, made similar statements
highlighting the fact that the moratorium was just 'a policy' and 'not based on legislation' (The Vancouver
Province, 2007). In 2010, Prime Minister Harper followed suit, suggesting that the Government of Canada is not
legally bound to any moratorium and will not formalize one110.
Following earlier motions put forward in Parliament, a non-binding motion was passed in Canada's House of
Commons in 2010 by opposition parties concerned with the increasingly vocal opposition to the Enbridge
project (McCarthy, 2010). The opposition parties called on the government to formalize the moratorium on oil
tanker traffic in Pacific north coast waters. In response, Canada's Prime Minister stated that any tanker traffic
ban would result in blocking delivery of heating oil to coastal communities, Aboriginal people, and Vancouver
Island (House of Commons, 2010). Soon after making this statement, an election campaign was called and
Prime Minister Harper campaigned on the commitment to not formalize the moratorium if he won a majority,
which he did in May 2011. Today, the government claims to be bound only the a 'voluntary tanker exclusion
zone' that was created in 1985 between US and Canada for tankers transiting between Valdez, Alaska, and
Puget Sound, Washington, and 'does not apply to oil tankers travelling to or from Canadian ports' (Sutherland,
2007; Transport Canada, 2012). At the time of writing this, Canada also adheres to the offshore oil and gas
exploration moratorium (Transport Canada, 2012).
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2*)'($:%I,%('$8+,$'?%C*(8'(%$)*)'&%#,%)"'%C+-$'?%SH'$)'(&*1%)"'%+88+$#)#+,S$%#&'*%+,%)*,3'(%)(*/9#4%2*$%*%
6.*,3')%6*,?%$+%2'%2+-.&%,+)%6'%*6.'%)+%&'.#D'(%"'*)#,5%+#.%)+%4+*$)*.%4+00-,#)#'$?%*6+(#5#,*.%8'+8.'?%+(%
&'.#D'(%/-'.%)+%k*,4+-D'(%I$.*,&:%;+,'%+/%)"#$%#$%2'..%)"+-5")%+-)S%Zf>Tc?%C+-$'%+/%R+00+,$?%N>O>[:%A-(#,5%)"'%
'.'4)#+,%4*08*#5,%4*..'&%$"+().1%*/)'(?%C*(8'(%4+00#))'&%)+%,+)%/+(0*.#g#,5%)"'%0+(*)+(#-0%#/%"'%2+,%*%
0*B+(#)1:%
Making space for reconciliation in Canada's planning system 288
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APPENDIX F. HISTORY OF ENVIRONMENTAL ASSESSMENT IN CANADA
J#,4'%)"'%Y'(5'(%I,<-#(1%#,%)"'%Obd>$?%MIL%"*$%6'4+0'%#,4('*$#,5.1%#08+()*,)%)+%5+D'(,0',)$%
2"',%8.*,,#,5%('$+-(4'%*,&%#,/(*$)(-4)-('%&'D'.+80',)$:%L)%)"*)%)#0'?%)"'%/'&'(*.%
5+D'(,0',)%2*$%$''3#,5%)+%'$)*6.#$"%*%.'5#$.*)'&%MIL%8(+4'$$?%)+%('8.*4'%)"'%0-4"%.'$$%
8('$4(#8)#D'%/'&'(*.%',D#(+,0',)*.%*$$'$$0',)%*,&%('D#'2%8(+4'$$%ZMLP@[%4*6#,')%8+.#41%
&#('4)#D'%/(+0%Obdc:%!"(+-5"+-)%)"'%Ob=>$%*,&%Obb>$?%)"'%4+,4'(,%2*$%+D'(%"+2%)+%&'D'.+8%
*%8(+4'$$%)"*)%2+-.&%*D+#&%&-8.#4*)#,5%)"'%/-,4)#+,$%+/%8(+D#,4#*.%*5',4#'$:%!"'%('$-.)%2*$%*%
6+&1%+/%MIL%8+.#4#'$%(*)"'(%)"*,%*,1%,'2%.'5#$.*)#+,%ZJ*&*(%}%J)+.)'?%Obba[:%L%$'(#'$%+/%4+-()%
(-.#,5$OOO%*,&%8-6.#4%&#$',4"*,)0',)%2#)"%)"'%MIL%8(+4'$$OON?%"+2'D'(?%/+(4'&%)"'%5+D'(,0',)%
)+%'78*,&%#)$%(+.'OOc%*,&%4+,&-4)%*$$'$$0',)$%'D',%*/)'(%8(+D#,4'$%"*&%5#D',%8(+B'4)$%)"'%5+X
*"'*&%ZF('',2++&?%N>>f?%8:d>XdO[:%!"#$%('$-.)'&%#,%)"'%8*$$#,5%+/%)"'%ObbN%9!+!.,!+1
L+3,(&+?-+)!"16%%-%%?-+)16:)%)"*)%('<-#('&%*,1%8(+B'4)%)+%6'%*$$'$$'&%#/%#)%+44-(('&%+,%
/'&'(*.%.*,&$?%#,D+.D'&%/'&'(*.%/-,&#,5?%+(%('<-#('$%)"'%/'&'(*.%5+D'(,0',)%)+%#$$-'%*%8'(0#)%
+(%.#4',$'%ZObbN?%4:cd?%$:`ZO[[:%W,)#.%Obbf?1YR%('.#'&%-8+,%)"(''%0*B+(%8(+B'4)%('D#'2%
8(+4'$$'$%ZYR%J8'4#*.%G/9#4'%/+(%M,D#(+,0',)?%Obb`[%6-)%#,)(+&-4'&%%L+3,(&+?-+)!"1
6%%-%%?-+)16:)A12"#4"%2*$%4+,$#&'('&%)+%6'%+,'%+/%)"'%0+$)%(+6-$)%#,%R*,*&*%ZY+1&?%N>>c[:%
L%$#5,#9#4*,)%*88.#'&%*,&%5('1%.#)'(*)-('%"*$%$#,4'%*44-0-.*)'&%+,%)"'$'%8(+4'$$'$%Z':5:%
;#3#/+(-3?%Obbd_%J*&.'(?%Obba_%G/9#4'%+/%)"'%L-&#)+(%F','(*.%+/%R*,*&*?%N>>b_%G/9#4'%+/%)"'%
L-&#)+(%F','(*.%+/%YR?%N>OO[%*,&%)"'#(%(+.'%#,%L6+(#5#,*.%5+D'(,*,4'%*,&%5+D'(,0',)%
L6+(#5#,*.%8+.#4#'$%Z':5:%F*.6(*#)"%')%*.:?%N>>d_1Q'8$+,%')%*.:?%N>>`_%Q+$'8"?%N>>`[:%E-4"%+/%)"#$%
.#)'(*)-('%"*$%6'',%4(#)#4*.%*,&%)"'%8-6.#4%8'(4'8)#+,%+/%MIL%#,%YR%*,&%R*,*&*%"*$%6'',%(*)"'(%
8++(_%)"'%8('D*#.#,5%D#'2%S2*$%)"*)%#)%2*$%,+)%8+$$#6.'%)+%('4+00',&%*5*#,$)%*%8(+B'4)?%+,.1%)+
*88(+D'%#)%+(%0#)#5*)'%#)$%'//'4)$S%ZY+1&?%N>>c_%;#3#/+(-3?%Obbd_%!-(3'.?%N>>d?%8:`c[:%]#)"#,%
OOO%\(#',&$%+/%)"'%G.&0*,%P#D'(%J+4#')1%D:%R*,*&*%ZE#,#$)'(%+/%!(*,$8+()[?%UObbNV%O%JRP%c_%9!+!.,!+1G,".",>-1
4-.-(!),&+1U+:T13T19!+!.!1I5,+,%)-(1&>1)0-1L+3,(&+?-+)K?%UOb=bV%c%\:R:%c>b_%M*$)0*#,%Y*,&%D:%R*,*&*%Z%\'&'(*.%
L&0#,#$)(*)+(%[?%UObbcV%O%\R%`>O
OON%Y#..%P''$%ZOb=>[%+//'($%*%4+08('"',$#D'%4(#)#<-'%+/%MLP@%*$%#)%2*$%6'#,5%*88.#'&%)+%*%4+,)(+D'($#*.%8.*,%)+%
&'D'.+8%"1&(+4*(6+,$%#,%)"'%Y'*-/+()%J'*%/+(%)"'%9#($)%)#0':%C'%$-55'$)$%)"*)%&'$8#)'%MLP@%('4'#D#,5%
2+(.&2#&'%*44.*#0?%S8-6.#4%#,)'('$)%5(+-8$%*,&%,*)#D'%+(5*,#g*)#+,$:::%*('%*6*,&+,#,5%)"'%8(+4'$$%',%0*$$'S%
Z8:%c``[:
OOc%\'&'(*.%#,D+.D'0',)%#,%MIL%'78*,&'&%.*(5'.1%6'4*-$'%4*$'$%(-.'&%)"*)%/'&'(*.%B-(#$)#+,%4.'*(.1%*88.#'&?%
,+)*6.1%9#$"'(#'$%*,&%L6+(#5#,*.%('$'(D'%.*,&$?%2"'('%MIL$%&#&%,+)%8('D#+-$.1%4+,$#&'(%)"'$'%'.'0',)$%#,%*,1%
$1$)'0*)#4%2*1:%@(+D#,4'$%8(+)'$)'&%+D'(%4+,4'(,$%)"'%/'&'(*.%5+D'(,0',)%2*$%',4(+*4"#,5%#,)+%)"'#(%
B-(#$)#+,%*,&%+2,'($"#8%+D'(%,*)-(*.%('$+-(4'$%ZF('',2++&?%N>>f[:
289 GALBRAITH
L@@M;AI{%\:%CIJ!GPH%G\%M;kIPG;EM;!Le%LJJMJJEM;!%I;%RL;LAL
)"#$%.#)'(*)-('?%0+('%$8'4#*.#$'&%('$'*(4"%#,%)"'%*('*%+/%S)(*&#)#+,*.%3,+2.'&5'S%Z!h[%
&'D'.+8'&?%6+-,&%61%.'5#$.*)#+,%ZRMLL?%ObbN?%$:Oa:O[%*,&%5-#&'.#,'$%ZEkMIPY?%N>>`[%*$%2'..%
*$%6(+*&'(%4+,4'(,$%+D'(%)"'%R(+2,S$%&-)1%)+2*(&$%L6+(#5#,*.%8'+8.'$%)"(+-5"%MIL%Z\;MER?%
N>>b[:%@*4#%')%*.:%ZN>>N?%8:OON[%*(5-'%)"*)%SL6+(#5#,*.%8'+8.'%2#..%4+,)#,-'%)+%$''3%2*1$%+/%
#,4.-&#,5%)"'#(%3,+2.'&5'%*,&%#,8-)%)+%#08(+D'%',D#(+,0',)*.%('.*)#+,$%*,&%*$$'$$0',)$%+/%
&'D'.+80',)%8(+B'4)$%#,%)"'#(%)(*&#)#+,*.%)'((#)+(#'$S:%
E-4"%+/%)"'%4+,9.#4)%6')2'',%\#($)%;*)#+,$%*,&%)"'%$)*)'%+D'(%)"'%8-(8+$'%+/%MIL%4*,%6'%
/(*0'&%*$%*%&#$*5(''0',)%+D'(%)"'%0'*,#,5%+/%S('4+,4#.#*)#+,S?%&#$4-$$'&%*6+D':%J4"+.*($%"*D'%
4+,$#&'('&%)"'%)"'+(')#4*.%6*$#$%+/%)"#$%&#$*5(''0',)%*,&%"+2%#)%#08*4)$%#,$)#)-)#+,$%$')%-8%)+%
*&&('$$%)"#$%5+*.?%.#3'%)('*)1%,'5+)#*)#+,$%Z':5:%M5*,?%N>ON_%I(.6*4"'(X\+7?%N>>b[:%!"#$%#$%
&#$4-$$'&%#,%5('*)'(%&')*#.%#,%)"'%$'4+,&%4"*8)'(:%I,%k*,%&'(%@'')?%('4+,4#.#*)#+,%#$%4+,9#(0'&%
*$%S6(#&5#,5%+/%*6+(#5#,*.%*,&%,+,X*6+(#5#,*.%4-.)-('$S%)*3#,5%#,%)"'%8'($8'4)#D'$%+/%6+)"%
*6+(#5#,*.%4.*#0$%*,&%4+00+,%.*2?%$-4"%)"*)%SU)V(-'%('4+,4#.#*)#+,%2#..?%'<-*..1?%8.*4'%2'#5")%
+,%'*4"S%Z8*(*$:%fN?%fbX`>?%4#)'&%#,%A'.5*0--32%D:%YR?%Obbd[:%
!"'$'%5+*.$%*('%#&',)#9#'&%#,%4+,$-.)*)#+,%8+.#4#'$%/+(%MIL$%6-)%('.1%-8+,%B-&5'0',)$%)"*)%*('%
#,9.-',4'&%61%)"'%&+0#,*,)%4-.)-('%4+,)(+..#,5%MIL$:%S!"'%#,)',)#+,%+/%)"'%UMILV%8(+4'$$%#$%
"+,+(*6.'%',+-5"_%)"'%8(+6.'0%#$%2#)"%)"'%-,&'(.1#,5%D*.-'$%+/%)"'%4-.)-('%2"#4"%*&0#,#$)'($%
#):%!"*)%#$%2"1%)"'%4*$'%#$%4+,$#$)',).1%*(5-'&_%.*,&%+2,'($"#8%0-$)%6'%$')).'&%6'/+('%
',D#(+,0',)*.%#08*4)%*$$'$$0',)%0*3'$%$',$'%/+(%;*)#D'%8'+8.'S%ZJ"*84+))?%Ob=b?%8:aO[:%Y-)%
2"*)%"*88',$%2"',%MIL%"*$%)"'%8+)',)#*.%)+%+//'(%5('*)'(%6','9#)$%*,&%0+('%4+,)(+.%+D'(%
&'D'.+80',)%)"*,%)"'%!('*)1%8(+4'$$%+(%+)"'(%D',-'$%)"*)%*('%'78('$$.1%&'$#5,'&%)+%S$')).'S%
.*,&%+2,'($"#8^%%L%$-00*(1%/+(%)"'%6*$#$%+/%)"#$%4+,9.#4)%6')2'',%)"'%$)*)'%*,&%\#($)%;*)#+,$?%
'78('$$'&%)"(+-5"%MIL?%#$%#,4.-&'&%#,%!*6.'%N:O%#,%R"*8)'(%!2+:%!"#$%$-00*(1%61%,+%0'*,$%
('8('$',)$%)"'%D*(#'&%+8#,#+,$%+/%\#($)%;*)#+,$%*4(+$$%YR:
;-0'(+-$%6'$)%8(*4)#4'%5-#&'.#,'$%"*D'%6'',%2(#))',%/+(%&'D'.+8'($%*,&%\#($)%;*)#+,$%)+%
*&&('$$%)"'$'%4(#)#<-'$%Z':5:%\;ML!]F?%N>>b_%Q+$'8"?%N>>`_%@.*)'%')%*.:?%N>>b_%!+6#*$?%N>>>[:%
C+2'D'(?%4*$'%.*2%"*$%6'',%8#D+)*.%#,%&'9#,#,5%)"'%R(+2,S$%&-)1%)+2*(&$%\#($)%;*)#+,$%#,%MIL%
*,&%',D#(+,0',)*.%8.*,,#,5%Z\;MER?%N>>b_%@*4#%')%*.:?%N>>N[%2#)"%0+$)%4*$'$%+D'(%MIL%6'#,5%
6(+-5")%)+%4+-()%61%\#($)%;*)#+,$%ZC*&&+43?%N>O>[:%]"#.'%)"'$'%&'4#$#+,$%"*D'%4('*)'&%.*1'(%
-8+,%.*1'(%+/%'D#&',4'%/+(%'*4"%$#&'%)+%#,)'(8(')%*,&%&'/',&%)"'#(%&#//'(',)%8+.#41%8+$#)#+,$%q%
Making space for reconciliation in Canada's planning system 290
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#,&''&%)"'%@(+D#,4'%*,&%R*,*&*%"*D'%&#D'(5',)%D#'2$%+,%2"*)%4+,$)#)-)'$%*88(+8(#*)'%
4+,$-.)*)#+,%*,&%*44+00+&*)#+,%*,&%+)"'(%*('*$%#,%)"'%MIL%8(+4'$$%Z@.*)'%')%*.:?%N>>b[%X%6+)"%
8'($8'4)#D'$%"*D'%/*(%5('*)'(%'78'4)*)#+,$%/+(%)"'%2+(3%*,&%4*('%('<-#('&%)+%*&&('$$%
L6+(#5#,*.%(#5")$%#,%MIL$%$#,4'%)"'#(%#,4'8)#+,:%!*6.'%c%+-).#,'$%*%,-06'(%+/%3'1%&'4#$#+,$%*,&%
+-).#,'%"+2%)"'1%*88.1%)+%MIL$:
291 GALBRAITH
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Consultation and accommodation is an enforceable legal duty: Haida v BC (2004) and Taku v BC
(2004) were the first to create 'a practical legal framework to work towards reconciliation of aboriginal and
Crown title' (McDade and Giltrow, 2007). Mikisew v. Canada (2005) extended this ruling from non-treaty to
Treaty areas, so it applied more broadly across Canada. McDade and Giltrow (2007) summarize the
procedural obligation outlined in Haida v BC (2004) as being one that focuses on ' addressing effects upon
aboriginal interests' and may require the Crown to 'make changes to its proposed actions' (p. 5). 'The
obligation arises in relation to an activity and at the earliest stages of contemplation of that activity.
Consultation must also be meaningful: it requires consideration of First Nation input and must involve the
real possibility of changing or cancelling the proposed activity' (p.2)
Limits to producing scientific evidence relating to Aboriginal rights in EIA: The case of George v.
Marczyk114 (1998) offers insights on the scientific data required in EIAs. Predictive wildlife and habitat
mapping was required to 'make a reasonable assessment' of the development's 'impact on their people and
territories, and the exercises of their rights in those territories' (para 70). In this case, the decision to
approve the Huckleberry Mine through an EIA may affect 'hunting, trapping, fishing, and harvesting
vegetables, berries, herbs, food and medicinal plants... or any spiritual or cultural sites, travel corridors,
general lodging sites, and other aspects of their lives which are inextricably linked to wildlife issues' (para
54). The judge added that demands for further information must not be 'unreasonable', and should not 'defy
generally accepted professional, scientific and commercial practices and standards' citing that in this case,
the information in the EIA fell below certain professional standards in ways supported by non-aboriginal
participants who agreed the need for further information was “reasonable' (para 72). Humber v. Canada
(2002)115 notes that a court cannot make a decision unless parties provide 'precise and useful narratives of
fact on which the Court could base a finding' (para 28).
Procedural requirements for consultation in EIA: In Taku v. BC (2004)116, the judge ruled that the
process set out in the 1995 BC Environmental Assessment Act requiring 'consultation with affected
Aboriginal peoples' (para 40) ensured BC met its duty to consult and accommodate (para 22). In support of
this claim, the judge also referenced the purposes of the Act that calls for 'participation' of First Nations and
the requirements for including First Nations on the project committees formed to coordinate and oversee
the EIA (para 6). Although the Taku River Tlingit First Nation were concerned that BC should have
recognized their jurisdiction to issue a permit to build a road to the proposed Tulsequah Chief Mine under
assessment, the judge ruled that the 'Province was under no duty to reach agreement with the TRTFN'
(para 22). Such requirements are also pertinent to federal EIA, where 'consultations about Aboriginal
interests' were determined to be 'an integral part of the Crown's obligations to consult with respect to the
overall (project) and should not be severed from that process' (Leighton v. Canada, 2007, para 69).117 As
outlined in Haida v. BC (2004)118, the Crown may have duty to accommodate 'by adapting decisions or
policies in response' but the Crown must 'balance societal and Aboriginal interests in making decisions that
may affect Aboriginal claims' (para 45). It is also clear that 'consultation is a two-way street' and there are
no grounds for complaint when consultation is refused 'in an effective forum created in good faith for such
consultation' (George v. Marczyk, 1998, para 73). This ruling was based on the 1994 BC EA legislation and
may not hold up today (Haddock, 2010). Indeed, Kwikwetlem (2009)119 recognized this fact, stating,
'[f]unctionally, the environmental assessment process is not the same process considered in Taku'.
No enforceable substantive requirements in EIA: Where there have been substantive complaints over
EIAs, like infringement to Aboriginal title, these complaints have been severed from the case (e.g. Taku v.
BC, 2004; Haddock, 2010). This means that substantive issues, like impacts to communities and control
over resources; 'the courts have stopped short of making formal declarations of Aboriginal title and have
OOf%F'+(5'%k:%E*(4g13?%Obb=%R*,.##%adcd%ZYR%JR[
OO`%C-06'(%M,D#(+,0',)*.%L4)#+,%F(+-8%D:%R*,*&*%ZE#,#$)'(%+/%\#$"'(#'$%*,&%G4'*,$%R+*$)%F-*(&[?%N>>N%\R!%
fNO
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``>?%N>>f%JRR%df:
OOd%e'#5")+,%D:%R*,*&*?%N>>d%\R%``c
OO=%C*#&*%;*)#+,%D:%Y(#)#$"%R+.-06#*%ZE#,#$)'(%+/%\+('$)$[?%N>>f%JRR%dc?%UN>>fV%c%JRP%`OO
OOb%h2#32').'0%\#($)%;*)#+,%D:%Y(#)#$"%R+.-06#*%ZW)#.#)#'$%R+00#$$#+,[?%N>>b%YRRL%a=
Making space for reconciliation in Canada's planning system 292
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tended to throw the issue back to Crown and First Nation negotiators, arguing that questions about land
rights are best resolved through political negotiations between the concerned parties' (Egan, 2012, p.18).
According to McDade and Giltrow (2007), this is because the federal court rules (i.e. Rule 302) limit the
court's ability to consider consultation issues that 'often arise in multi-decision large scale' decision
processes (p. 2). Often, the complaint is 'of a failure to consult in respect of the process of the whole
project', which often involves multiple agencies issuing multiple, separate decisions, the judicial review must
be limited to a single decision. This 'artificially frames the issue as though only a discrete decision were the
problem. Such a multiple decision complaint is 'beyond the Court's purview'. 'First Nations can find
themselves in a continually shifting landscape, in which they never get the benefit of a Court actually
looking at the core issue (consultation) because the focus will always be on discrete statutory decisions' (p.
9). While 'few major projects today require only one permit or governmental decision', the EIA process
'creates, by statute, a single window assessment process which precedes all other permits. No such
statutory structure exists for aboriginal accommodation' (p. 9), meaning that EIA is plays a very central role
in ensuring the Crown meets its obligations. This also has implications for courts to dismiss past
infringements, where such historic infringement can only be considered in consultation over present
decisions when additional infringement is likely (Carrier Sekani v. BCUC, 2009).
Table 10: Select case law guiding the role of EIA in 'reconciling' Aboriginal rights with the Crown
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YR:%\#($)?%YRS$%,'2.1%'.'4)'&%e#6'(*.%5+D'(,0',)%('8.*4'&%)"'%L+3,(&+?-+)!"16%%-%%?-+)16:)%
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<-'$)#+,:%\#($)?%)"'%,'2%L4)%+0#))'&%)"'%8-(8+$'$%$'4)#+,%+/%)"'%L4)%)"*)%"*&%8('D#+-$.1%
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Making space for reconciliation in Canada's planning system 294
