PROGRAMS OF SOCIO-ECONOMIC IMPACT MANAGEMENT: THE NORMAN WELLS PROJECT B.R.E., MURIEL A . KERR U n i v e r s i t y of B r i t i s h Columbia, 1973 A THESIS SUBMITTED IN PARTIAL F U L F I L L M E N T OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS in THE FACULTY OF GRADUATE STUDIES ( S c h o o l o f Community a n d R e g i o n a l P l a n n i n g ) We a c c e p t t h i s t h e s i s a s c o n f o r m i n g to t h a required standard THE U N I V E R S I T Y OF B R I T I S H COLUMBIA O c t o b e r 1985 © Muriel A. Kerr, 1985 In presenting degree this thesis in partial fulfilment of the requirements at the University of British Columbia, I agree freely available for reference and study. I further copying of this department or his or her representatives. that the Library shall make it agree that permission for extensive thesis for scholarly purposes may be by for an advanced It is granted by understood the head of my that publication of this thesis for financial gain shall not be allowed without copying or my written permission. Department of GRADUATE STUDIES - COMMUNITY AND REGIONAL The University of British Columbia 1956 Main Mall Vancouver, Canada V6T 1Y3 Date DE-6(3/81) ^ o V r S A ^ PLANNING ii - ABSTRACT The p u r p o s e o f t h i s t h e s i s i s t o a s s e s s t h e e f f e c t i v e n e s s o f t w o o f t h e -Norman Wells impact funding initiatives as programs of s o c i o - e c o n o m i c management. Social and e c o n o m i c development projects. component of beginning to attract measures industry, government and/or are These assessment Effective impacts impacts and a number socio-economic on J u l y 30, measures One of ensure that the t r a i n i n g these of this has been projects. vetted as are jobs Government package and management. being or sought avoid by negative approved of therefore impact $21.4 and m e a n i n g f u l . " by t h e potentially created management million and b u s i n e s s o p p o r t u n i t i e s are r e a l are development. socio-economic benefits project approach" a important 1970's impact mitigate resource an a s s e s s e d as h a v i n g The F e d e r a l a the and P i p e l i n e P r o j e c t , constituted was to scale become within impacts of was f o r m a l l y objectives, "coordination Project development 1981 measures i n s i s t e d be p a r t government's Wells Expansion that plan. have positive have management who w i s h large during issue impact and c o m m u n i t i e s socio-economic impacts. of an of impacts processes as t o enhance p o t e n t i a l Cabinet significant review attention of by-products socio-economic The Norman W e l l s O i l f i e l d Federal often "to w h i c h we The federal t o management associated with the Norman a the of future model for management The subject funding assess programs the The their impact general community of and communities of some d e b a t e of the key thesis within this two the Wells as of package. thesis impact The funding two of the impact purpose initiatives as is to programs of was the federal and in Dene the planning Valley. These involved in Nation and initiation support two of and the Metis programs monitoring programs are and the of for subject representatives effectiveness of two s o c i o - e c o n o m i c i m p a c t management for the Norman indicate The over the analysis Project. disagree of of the government r e p r e s e n t a t i v e s organizations instruments involve Territories Mackenzie between to this Wells the the Norman I first Project. In preparation developed model for a p r o c e s s model provides management are the the for framework located. actual within Next, issues and Well's review processes Project was Norman achieved Wells analysis socio-economic socio-economic This implementation i n i t i a t i v e s chosen f o r development parties-at-interest initiatives two Northwest social native the benefits these purpose the of of is management. d e s c r i p t i o n s of Association the this effectiveness socio-economic that of I which through Environmental a and content programs impact analysis Assessment and of the problems the these programs, i m p a c t management. examined anticipated of relationship fund during initiatives documents Review process socio-economic identified of This Panel impact between the the Norman under study. produced by (E.A.R.P.) the and - iv - the National Energy Board. initiatives. interviews funding This with I then examined was a c c o m p l i s h e d the relevant programs. My i n i t i a t i v e s as p r o g r a m s through actors assessment study process concerns. t h e two s t u d y of the effectiveness and impact o f t h e two. s t u d y to a set of c r i t e r i a that reflect the o f impact management. initiatives effectiveness criteria with o f documentation o f s o c i o - e c o n o m i c management i s b a s e d on a c o m p a r i s o n b a s i c r e q u i r e m e n t s o f programs two a review associated o f t h e i m p l e m e n t a t i o n o f t h e s e programs The i n f u l l the implementation of the failed to satisfy a l l but that required a r e l a t i o n s h i p with The t h e s i s c o n c l u s i o n , t h e r e f o r e , the the public program review i s t h a t as p r o g r a m s of s o c i o - e c o n o m i c i m p a c t management f o r t h e Norman W e l l s P r o j e c t , t h e two s t u d y i n i t i a t i v e s have n o t been e f f e c t i v e . and p r o p o s e t h r e e r e c o m m e n d a t i o n s I discuss the basis of this conclusion toward t h e p l a n n i n g f o r f u t u r e programs of s o c i o - e c o n o m i c impact management. This efforts thesis contributes associated Wells Project. with to the assessment the o v e r a l l approach of the impact management t o management o f t h e Norman I t s h o u l d be u s e f u l f o r p a r t i e s i n v o l v e d i n t h e d e t e r m i n a t i o n o f i m p a c t management p r o g r a m s i n f u t u r e development projects. This analysis w i l l a i d i n the planning o f e f f e c t i v e procedures t o reduce negative impacts, t h u s s e r v i n g t h e i n t e r e s t s o f b o t h t h o s e a f f e c t e d d i r e c t l y , and t h e n a t i o n a t large. TABLE OF CONTENTS Page N o . ABSTRACT ii TABLE OF CONTENTS L I S T OF TABLES L I S T OF ABBREVIATIONS v viii ix CHAPTER I. II. A PROCESS MODEL FOR SOCIO-ECONOMIC IMPACT MANAGEMENT 1 A. Introduction 1 B. C. D. Thesis Purpose T h e s i s Method Summary 7 8 11 SOCIO-ECONOMIC IMPACT MANAGEMENT: A SUB-PROCESS OF THE DEVELOPMENT PLANNING PROCESS 13 A. B. 13 14 Introduction S o c i o - E c o n o m i c I m p a c t Management P r o c e s s 1. S u b - P r o c e s s o f P r o j e c t Development 2. Components o f t h e S o c i o - E c o n o m i c Management P r o c e s s Process Impact S o c i o - E c o n o m i c I m p a c t I d e n t i f i c a t i o n and A s s e s s m e n t Impact M o n i t o r i n g S o c i o E c o n o m i c I m p a c t Management P r o g r a m / P l a n C. III. 14 Summary 17 17 23 24 28 THE NORMAN WELLS IMPACT FUNDING I N I T I A T I V E S 30 A. Introduction 30 B. Norman W e l l s R e v i e w P r o c e s s C o n t e n t 1. Environmental 2. National 3. Summary Analysis A s s e s s m e n t and R e v i e w P r o c e s s Energy Board Review 30 33 38 40 - vi Page N o . III. THE NORMAN WELLS IMPACT FUNDING C. D. IV. Documentation of INITIATIVES - Continued Implementation of I n i t i a t i v e s 41 1. Approval 2. The D e l a y P e r i o d - J u l y 3. First - Jan 1 - 1983-Dec 3 1 , 1983 63 4. Second C o n s t r u c t i o n Year - Jan 1 - 1984-Dec 3 1 , 1984 74 5. T h i r d C o n s t r u c t i o n Year 1 9 8 5 - J u n 3 0 , 1985 87 C o n s t r u c t i o n Year 41 3 0 , 1981 - D e c . 3 1 , - Jan 1 - 1982 Summary 94 A N A L Y S I S OF EFFECTIVENESS OF PROGRAMS OF SOCIO-ECONOMIC IMPACT MANAGEMENT Criterion I C r i t e r i o n II C r i t e r i o n III C r i t e r i o n IV Criterion V C r i t e r i o n VI C r i t e r i o n VII V. CONCLUSION, 49 95 95 98 99 103 106 110 113 DISCUSSION AND RECOMMENDATIONS 116 A. Conclusion 116 B. Discussion 117 a) b) C. Lack of a C l e a r l y Stated Purpose Related t o t h e Management o f S o c i o - E c o n o m i c I m p a c t s 118 Perceptual Differences 120 Recommendations 1. Integrate the Planning f o r the Socio-Economic I m p a c t Management P r o c e s s w i t h t h e O v e r a l l Development P r o j e c t P l a n n i n g P r o c e s s 2. Emphasise a l l Components o f t h e S o c i o - E c o n o m i c I m p a c t Management P r o c e s s 124 124 125 - vii Page N o ; 3. D. Final D e s i g n Programs o f S o c i o - E c o n o m i c Impact Management t o A c h i e v e t h e R e q u i r e m e n t s o f an E f f e c t i v e I m p a c t Management P r o g r a m Comment L I S T OF REFERENCES APPENDICES 126 128 129 A. Content A n a l y s i s Quotations 136 B. C. D. D . I . A . N . D . Approval Press Release Excerpt December 7 P o s i t i o n P a p e r T r e a s u r y Board A u t h o r i z a t i o n 143 145 153 - viii - LIST OF-TABLES Page No. I. II. III. Plan of Documentation of I n i t i a t i v e Implementation Process 10 Summary of Content Analysis of E.A.R.P. Mackenzie Valley Community Meetings 34 L i s t i n g of C r i t i c a l Events in the Implementation of the Two Study Impact Funding Programs - Norman Wells Project 43 LIST ix - OF-ABBREVIATIONS B.S.E.A.R.P. Beaufort CARC Canadian A r c t i c Resources C.E.I.C. C a n a d a E m p l o y m e n t and I m m i g r a t i o n CJL Committee COGLA C a n a d i a n O i l and G a s L a n d s DIAND Department EARP Environmental A s s e s s m e n t and R e v i e w EIA Environmental Impact FEARO Federal GNWT Government NEB National NWPCC Norman Wells Project Coordinating Committee NWPCO Norman Wells Project Coordination Office NWT Northwest SIA Socio-Economic Sea Environmental A s s e s s m e n t and R e v i e w Committee Commission f o r J u s t i c e and L i b e r t y of Indian Environmental Foundation Administration Affairs and N o r t h e r n Development Process Assessment A s s e s s m e n t and R e v i e w of the Northwest Energy Territories Board Territories Impact Panel Assessment Office CHAPTER 1 - I PROGRAMS OF - SOCIO-ECONOMIC IMPACT MANAGEMENT: THE NORMAN WELLS A. INTRODUCTION The Norman W e l l s Mackenzie by PROJECT. Valley the Federal planning. first of Oilfield the Northwest Cabinet, Construction o i l i n May, 1985. strategy was t h e s p e c i a l the of the p r o j e c t time Affairs The and N o r t h e r n purpose of subject began and P i p e l i n e Territories to a two y e a r in January, was a p p r o v e d delay to located on J u l y enable component funding initiatives of the federal or benefits by t h e M i n i s t e r of 1981 project shipped project package in the 30, sound 1983 and t h e p i p e l i n e A major approval Project, management announced t h e Department its of at Indian Development. this Norman W e l l s P r o j e c t impact Expansion thesis impact i s to funding assess the e f f e c t i v e n e s s initiatives as programs of of two o f the socio-economic management. " L a r g e s c a l e i n d u s t r i a l and r e s o u r c e d e v e l o p m e n t p r o j e c t s a r e a f f e c t i n g many a r e a s . . . . . Some o f t h e t y p e s o f p r o j e c t s having s u b s t a n t i a l e f f e c t s on n e a r b y c o m m u n i t i e s i n c l u d e e n e r g y resource development in many of the western states and Canadian p r o v i n c e s . . . . . o f f s h o r e petroleum development i n t h e N o r t h Sea and A r c t i c r e g i o n s o f C a n a d a and A l a s k a . . . . These developments present both opportunities and p r o b l e m s f o r the areas where they are located. The e c o n o m i c , d e m o g r a p h i c , p u b l i c s e r v i c e , f i s c a l , and s o c i a l effects (socio-economic impacts) of large-scale development p r o j e c t s h a v e been e x t e n s i v e l y e x a m i n e d by b o t h r e s e a r c h e r s , a n d decision-makers in recent years. A growing number of these a n a l y s e s and c a s e s t u d i e s p r o v i d e i n s i g h t s c o n c e r n i n g t h e e f f e c t s - 2o f s u c h a c t i v i t i e s on c o m m u n i t i e s l o c a t e d n e a r p r o j e c t s i t e s . A common theme t h a t emerges f r o m such a n a l y s e s is that, in the absence o f d e t a i l e d l o c a l p l a n n i n g and a c c e s s t o f i n a n c i a l and t e c h n i c a l a s s i s t a n c e from e x t e r n a l s o u r c e s . . . . . l a r g e p r o j e c t s w i l l frequently create substantial problems for their host communities.... T h u s , t h e need i s r e a d i l y a p p a r e n t to examine t h o s e m e a s u r e s w h i c h c a n be e m p l o y e d to a l t e r the e f f e c t s of p r o j e c t d e v e l o p m e n t on n e a r b y c o m m u n i t i e s , r e d u c i n g t h o s e e f f e c t s which are g e n e r a l l y viewed as u n d e s i r a b l e and e n h a n c i n g those c h a n g e s w h i c h a r e deemed b e n e f i c i a l . " ( H a l s t e a d e t a l . 1 9 8 4 : x i ) Northern Canada, of significant During this industrial time socio-economic allocation case time of both and R e v i e w and In a d d i t i o n a project, an a p p r o v i n g which the p r o j e c t elements of t h e management A example Norman Wells recommendation of of project Oilfield the Mackenzie environmental has resulted and r e v i e w . was The F e d e r a l a s e t terms in the In the initially impacts used to assess of northern number impacts and c o n d i t i o n s of within a n d c o n d i t i o n s become t h e process. Some of these elements and s o c i o - e c o n o m i c i m p a c t s . resource and P i p e l i n e Valley and Environmental has been of These terms large-scale Expansion years. and s o c i o - e c o n o m i c i n 1973-74 body must management a fifteen (1973/4-1977), impacts of environmental such last and a s s e s s i n g t h e p o t e n t i a l be i m p l e m e n t e d . the This environmental identifying has been t h e s i t e both assessment Inquiry instituted government determine recent the Berger socio-economic to will over projects. of the Valley Pipeline Project. Process, projects. Valley, over increased to processes assessing potential environmental major has interest development Valley, the proposed Mackenzie Assessment the concern and f u n d s of the Mackenzie for development public impacts of responsible of and p a r t i c u l a r l y t h e M a c k e n z i e Pipeline development Project. Inquiry In project spite (1977) of that is a no pipeline the be built Federal stage for in Cabinet this the Valley on July project three public review and issues environmental about the potential probability all about aboriginal that the Territories of the social Territories environmental, Environmental Assessment Assessment Panel recommendations two y e a r year Cabinet and t h e about delay the before claims. its The concern project. the support to would these socio-economic and Review National the the for the start start up o f up the of Wells oilfield pipeline of flow to themes Report - of- that while expansion had Other specific own. The Environmental contained review. conditional and a two construction. the Northwest i d e n t i f i e d during the was of Northwest the for -Decision Project above distribution their the low and, Ottawa. or of the the unequal felt anxious settlement Government o f Energy Board Reasons Norman peoples The wildlife, about prior concerns Process reviews. and work, members by t h e Board Considerable land Government Its benefits for the about Federal r e s i d e n t s were the by review Energy these northern without w o u l d be b o r n e or affect looking and The hearings. each of would accrue to project National community to approved processes: Board the socio-economic impacts approval delay before expected land of their technical Valley was assessment the during southerners expressed project added expressed this administration, interveners The of benefits the of native (G.N.W.T.) c o s t s of Water benefits approval financial Territories Mackenzie influx and Process, impacts project rights Review was N a t i v e A s s o c i a t i o n s and t h e the project contained Northwest about this specific the various years, The hearings, over ten 1981. Assessment concern - 30, Environmental and for 3 In and a the on a half press release announcing the Affairs and N o r t h e r n delays in the project approval, Development 4 - the Minister (D.I.A.N.D.), of the outlined Department of the reasons Indian f o r the s t a r t up: " t o a l l o w f o r e f f e c t i v e and m e a n i n g f u l p l a n n i n g s o s p e c i a l m e a s u r e s and b e n e f i t packages are i n e f f e c t during c o n s t r u c t i o n p h a s e o f t h e $1 b i l l i o n p r o j e c t . " that the " . . . . t o work t o w a r d m e e t i n g t h e c o n c e r n s o f t h e Dene and M e t i s r e g a r d i n g adequate time f o r n e g o t i a t i n g t h e i r land c l a i m . " " . . . . t o e n s u r e t h a t t h e t r a i n i n g o b j e c t i v e s , j o b and b u s i n e s s o p p o r t u n i t i e s w h i c h we h a v e i n s i s t e d be p a r t o f t h e p r o j e c t a r e r e a l and m e a n i n g f u l . " ( D . I . A . N . D . 1 9 8 1 : 4 ) Also $21.4 as part million of the package Department o f Indian of approval special press impact release, funding the to Minister be announced administered by a the Affairs. " . . . . t h e enhanced program package w i l l i n c l u d e o n - t h e - j o b and institutional training, strengthened services at the community l e v e l t o c o p e w i t h p o s s i b l e d i s r u p t i o n s and c h a n g e s , f u n d i n g f o r the Government o f t h e Northwest T e r r i t o r i e s to finance a d d i t i o n a l public services that w i l l be r e q u i r e d , and c o n t r i b u t i o n s t o t h e Dene and M e t i s t o p e r m i t them t o be i n v o l v e d i n p l a n n i n g and programming activities in conjunction with all levels of government." ( D . I . A . N . D . 1981:4) This funding words, "without native people beneficial package was f e l t front-end support do not experiences." always to necessary and t i m e equate (D.I.A.N.D. be to for planning, meaningful 1981:3) because, in Mr. Munro's opportunities involvement, jobs for and - According to a recent 5 - Department o f I n d i a n Affairs document: " T h i s f u n d i n g p a c k a g e was i n t e n d e d t o : respond t o t h e needs of northern communities and n a t i v e people in relation to the project; mitigate impacts and c a p t u r e economic opportunities; promote p r o j e c t p a r t i c i p a t i o n ; e s t a b l i s h m o n i t o r i n g ; and m a i n t a i n l e v e l s o f government s e r v i c e s . " ( D . I . A . N . D . 1984:17) The of impact funding socio-economic impact Norman Wells overall co-ordination Project Considerable seen by developments. carefully by i n at l e a s t Review Process Project Audit, and t h e Dene as a test case Wells to - a number the the management at the of the authority. D.I.A.N.D. 1984). Excerpts the Banff paper Seminar Wells of Office subject of the co-ordination has a no watched of some A s s e s s m e n t and on P r o j e c t given is Northern has been the the papers illustrate with has developed Sea Environmental from the as i t future The approach Seminar of agency Project Office and h a s b e e n - The B e a u f o r t strategies Project. Project. This of responsibility management Coordination 1983) and t h e B a n f f concerning the effectiveness from the D . I . A . N . D . for and o n l o o k e r s two a r e n a s (October on t h e Norman Project or regulatory (December Nation became Office has f o c u s e d participants debate within r e s p o n s i b i l i t y f o r t h e Norman W e l l s approach mandate that Co-ordinating The Norman coordination i s one measure management attention a l l actors legislative package by differences Assessment: D.I.A.N.D. in opinion process: - "The h a r d work o f g o v e r n m e n t departments and a g e n c i e s h a s r e s u l t e d i n t h e s u c c e s s f u l c o - o r d i n a t i o n o f t h e p r o j e c t b a s e d on co-operation " ( D . I . A . N . D . 1984:34) f r o m t h e Dene N a t i o n paper 6 - - "The D.I.A.N.D. case study, by g l o s s i n g o v e r problems and difficulties with the project, implies that the federal g o v e r n m e n t ' s m i n d i s made up a l r e a d y A thorough assessment of t h e Norman W e l l s P r o j e c t m u s t l o o k a t b o t h t h e p r o b l e m s and t h e p r o c e s s e s b e f o r e r e c o m m e n d a t i o n s c a n be made on f u t u r e p r o j e c t s . " (Dene N a t i o n M o n i t o r i n g P r o g r a m 1 9 8 4 : 1 6 ) One Nation of the and the implementation two program programs Wells the to sources Metis of the plan of disappointment Association impact initiatives Project. Nation major for, that and funding were respond A Dene N a t i o n has draft P r e s i d e n t ' s o p i n i o n of been package. designed to, and the Of to frustration for the Dene administration and the particular enable socio-economic press release the funding of concern are native involvement impacts of May 22, the 1984 the in Norman indicates programs: " . . . . T h i s was p o l i t i c a l money f r o m t h e s t a r t , and we c a n o n l y i n t e r p r e t t h e n e e d l e s s b u r e a u c r a t i c h a s s l e s as d i s g u i s e d p o l i t i c a l delay t a c t i c s . T h e y a r e s u c c e s s f u l l y h a m p e r i n g o u r e f f o r t s t o be i n f o r m e d and i n v o l v e d i n t h i s p i p e l i n e , w h i c h we o n l y a c c e p t e d a s a t e s t c a s e . " (Dene N a t i o n 1984b) The on Norman August most 12, effective involved." (Mar Wells Federal 1985, that tool," 1986b). he that Project Co-ordinator believed "allowed the impact the stated in funding people a phone programs themselves interview to to be "a become - 7B. THESIS -PURPOSE The specific focus of this thesis i s on the implementation of the two federal program i n i t i a t i v e s of the impact funding package as described in the Norman Wells Project approval announcement: "Enhanced existing government programs to address the community and social development needs of communities along the pipeline route so that they can respond to the project as the needs are i d e n t i f i e d . Native people w i l l be d i r e c t l y involved in the design of these programs and in aspects of program delivery as they relate s p e c i f i c a l l y to native communities. Projected government funding over f i v e years; $4.25 m i l l i o n . Planning support to northern active role in the planning and the design and implementation of the project. Projected funding (D.I.A.N.D. 1981:i) As noted effectiveness socio-economic natives to enable them to take an monitoring of the project and in programs i n i t i a t e d in response to over f i v e years: $1.25 m i l l i o n . " at the outset, the purpose of these impact impact management administration and implementation of the thesis funding for initiatives the Norman is to assess the as Wells programs Project. the a b i l i t y of these programs to be used f o r the Norman Wells actual program a c t i v i t y outcomes. The processes of the two funding programs w i l l be assessed against c r i t e r i a of e f f e c t i v e impact management programs. management of Project It i s as e f f e c t i v e strategies f o r impact that i s to be assessed, not the - 8The m a j o r q u e s t i o n s t o be a d d r e s s e d i n t h e t h e s i s a r e : C. 1. Does t h e i n t e n t o f e a c h p r o g r a m i n i t i a t i v e ( a s d e s c r i b e d i n the approval announcement press release) reflect socio-economic impact concerns expressed d u r i n g t h e Norman Wells Project review processes. 2. What w e r e t h e a d m i n i s t r a t i v e a n d i m p l e m e n t a t i o n a s s o c i a t e d w i t h t h e i n i t i a t i v e programs? 3. How effective were the initiatives as programs of s o c i o - e c o n o m i c i m p a c t management f o r t h e Norman W e l l s P r o j e c t ? events T H E S I S METHOD The methods employed t o answer t h e s e q u e s t i o n s the thesis purpose, included: 1. The d e v e l o p m e n t o f a p r o c e s s model order to provide socio-economic management 2. process a contextual impact program management. process provides analysis o f t h e two s t u d y The This the documentation documentation documents, selected to of criteria f o r t h e d i s c u s s i o n o f programs The discussion of the of the socio-economic impact of "history" includes initiatives. achieve program effectiveness in of impact management used in the initiatives. the isolate to o f s o c i o - e c o n o m i c i m p a c t management framework as a component and, therefore, and of a review document the of two impact funding the assessment the concerns that programs. and r e v i e w relate stage to the The material Wells for Environmental report of Decision Norman the Wells of the pipeline. with the community i n which E.A.R.P. texts The community the the National hearings contents contained issues, their the concern frequency analysis but according approval of used relevant with issues to for the their release the E.A.R.P. expression, The E . A . R . P . for and press of Reasons-for Norman Reasons application The d o c u m e n t a t i o n and t h e N . E . B of meetings, the the transcripts Board analysed in from meeting the was e x p r e s s e d . Panel taken Energy for were initiatives. to the form was and the Report of the Decision do n o t the t r a n s c r i p t s of the are isolated from the and t h e o r i g i n s o f t h e c o n c e r n s a r e i d e n t i f i e d . documentation process This from on analysis and R e v i e w P r o c e s s issues Assessment themselves content The two s t u d y indicates lend and based material Environmental the Assessment Panel document relationship texts used 9 - associated with description sections also within includes a description t h e two f u n d i n g i s presented each time the implementation initiatives. chronologically period. of (See T a b l e and i s d i v i d e d I) into three Table 1. Approval 2. Pre-Construction 3. First 4. Second C o n s t r u c t i o n 5. Third study Announcement Construction sections Federal Project for Project Year Northern 1981 1, 1981 - December 3 1 , 1982 1, 1983 - December 3 1 , 1983 January 1, 1984 December 3 1 , 1984 January 1, 1985 - Norman Wells administration the perceptions and - June 3 0 , Project events, implementation and/or 1985 observations specific of the two of relevant the U . B . C . Library, events. documentation Coordination the general Process January the Assessment (Yellowknife), Wales this 30, August Year and Implementation July Year cover actors regarding these Literature Initiative Period associated with initiatives of Start-Up Construction three events the - I Plan of -Documentation The 10 and Heritage and C o o r d i n a t i o n Review Office Metis was r e c e i v e d f r o m : Office (Yellowknife), Association Office Centre Support (Vancouver), the Dene (Yellowknife), (Yellowknife), Group, the D.I.A.N.D. and the (Ottawa). Norman Nation the Wells Office Prince Norman of Wells A number of interviews were documentation. Personal Wells Coordination Project Territorial week of Government February interviews with interviews with Office, 1985. in July previous and A u g u s t interviewees, Group s t a f f i n Ottawa d u r i n g these l a t t e r t h e Norman An a n a l y s i s o f t h e t w o s t u d y A to complete actors Nation Wells developed and 1985. at the Office final Norman to with the during the interviews In a d d i t i o n this and were follow-up contact was made Project and C o o r d i n a t i o n the Metis Support interviews. i n i t i a t i v e s t o a s s e s s t h e i r e f f e c t i v e n e s s as o f s o c i o - e c o n o m i c i m p a c t management. The a n a l y s i s was c o n d u c t e d i n the second c h a p t e r . c o n c l u s i o n , d i s c u s s i o n and recommendations socio-economic D. Dene Follow-up and w i t h using the c r i t e r i a order relevant the Association programs in o f f i c e s were c a r r i e d o u t i n Y e l l o w k n i f e 4-8, c o n d u c t e d by t e l e p h o n e conducted i m p a c t management f o r the planning of future programs. SUMMARY "The Norman W e l l s p r o j e c t i s t h e f i r s t m a j o r o i l and g a s p r o j e c t t h a t h a s been c a r r i e d o u t i n t h e N o r t h w e s t T e r r i t o r i e s a n d , as s u c h , t h e p r o j e c t c o m p o n e n t d e v e l o p e d b y DIAND t o r e s p o n d t o t h e p r o j e c t i s the f i r s t i n i t i a t i v e of i t s k i n d i n the f e d e r a l government. There i s c o n s i d e r a b l e i n t e r e s t i n t h e Norman W e l l s o i l f i e l d d e v e l o p m e n t a n d i n t h e a c c o m p a n y i n g DIAND p r o g r a m b e c a u s e t h e y a r e e x p e c t e d t o be f o r e r u n n e r s o f future activities in the North. F o r t h i s r e a s o n , t h e e x p e r i e n c e g a i n e d and lessons learned w i l l have r e l e v a n c e beyond the immediate program." (InterGroup C o n s u l t i n g Economists L t d . , 1983:7) The the contents impact contents this management should management information reducing of be programs will potential be a f f e c t e d efforts useful for aid thesis contribute associated with for future parties development the planning of negative impacts, thus directly, in can as w e l l as t h e to the the overall Norman W e l l s involved in projects. processes serving i n t e r e s t s of the the Project. determining The that assessment will hope be interests larger is The impact that effective of nation. of those the in to - 13 CHAPTER -11 A-PROGESS MODEL FQR-SQGIQ-ECONOMIC IMPACT MANAGEMENT A. INTRODUCTION The purpose socio-economic framework this impact for strategies of out of which This deliberately that such development of some generally a view continuous process management of identification degree viewed is projects socio-economic will t o assume impacts. impacts. and a s s e s s m e n t in emphasis: of within programs criteria for or program o f t h e two all impacts, a emphasis of process. what greater I believe emphasis less The l i t e r a t u r e with management management has been is are not, associated f o r the impact significantly impacts. much actors responsibility for prescriptive The c o m p o n e n t s socio-economic strong that a continuous encouraging of these for contextual i n the analysis recognizing t h e need a a management of in practice. Viewing date, provide model study. appropriate highlights To be u s e d while in a process be d i s c u s s e d i n p r i m a r i l y already important also will as e l e m e n t s b e e n p l a c e d on t h e management difference devised a to set This i s to is be i n i t i a t i v e s under done model impact components is develop socio-economic p r o c e s s model prescribed however, will to The set of c r i t e r i a Norman W e l l s P r o j e c t terms. is management. a discussion of effectiveness. The chapter placed as a on t h e on t h e attention has reflects this - 14 - "Despite a growing consensus that socio-economic impacts are important and must be a d d r e s s e d , the processes f o r effectively coping with such project effects have received very limited a t t e n t i o n i n t h e l i t e r a t u r e t o d a t e . . . . t h e m e c h a n i s m s w h i c h c a n be e m p l o y e d t o i n f l u e n c e s o c i o - e c o n o m i c e f f e c t s o f a p r o j e c t on n e a r b y c o m m u n i t i e s have r e c e i v e d o n l y a c u r s o r y t r e a t m e n t . Those r e v i e w s of " i m p a c t m i t i g a t i o n " w h i c h have a p p e a r e d , t y p i c a l l y d i s c u s s o n l y a few s e l e c t e d types o f impact m e a s u r e s . . . o r t h e y r e v i e w o n l y a few s e l e c t e d c a s e s w h e r e d e v e l o p e r s o r c o m m u n i t i e s h a v e t a k e n an a c t i v e role in influencing projects outcomes...Such discussions generally f a i l t o t a k e a c c o u n t o f t h e c u m u l a t i v e and i n t e r a c t i v e e f f e c t s o f m u l t i p l e i m p a c t management m e a s u r e s and p r o v i d e l i t t l e b a s i s f o r e v a l u a t i n g t h e s t r e n g t h s and l i m i t a t i o n s o f a l t e r n a t i v e a p p r o a c h e s of the c o n d i t i o n s under which each may be m o s t effective." ( L e i s t r i t z e t a l . 1983:3) This chapter socio-economic and, will, impact as part of program, will develop of an e f f e c t i v e chapter truth the therefore, management, discussion a set of socio-economic will of strategies criteria impact quoted above. B. SOCIO-ECONOMIC-IMPACT 1. Sub-Process-of-Project project proposed Development development and o n g o i n g i n each of these process within establishing management the This for the model of impact the basic program. model management requirements Portions of is a reflection i m p a c t management of this the has o n l y of researchers. MANAGEMENT-PROCESS process but connecting phases: implementation a t h e components Socio-economic r e c e n t l y begun t o r e c e i v e t h e a t t e n t i o n discrete describe show a h e a v y r e l i a n c e on a f e w s o u r c e s . o f t h e comment The prescribe is composed initiation; operation. phases Process of assessment In o r d e r a temporal and r e v i e w ; to ensure that i s c a r r i e d out e f f e c t i v e l y series of approval; the a c t i v i t i e s and e f f i c i e n t l y , methods of implementation exercises. project planning The exercises all sub-process of information designed actors in is the the overall initial directly organizations or equitable process components to be concepts integrate Rees 1984. (1984) the assessment: as being impact of a systematic comprehensive a the of assessment and al. changes project's impact planning development 1978; are to project parties and of connection planning IIASA 1979; already this should be All the - the planning and interest 1983). occurring in way t h e means for impact management impact management are beginning of research out in in strategies. resource development. Rees a and process Primarily and/or process provides between growing for and process. programs assessment a The significant management socio-economic project process. representatives all development show One impact in impact implementation. planning involved of into contribute be aspects take management community to should implementation possibilities. practices process socio-economic closer that that the development future et planning project should proposed Hoi l i n g believe with between larger existing are through potential impacted and/or suggested concerning of and c o o p e r a t i v e integration and stages representation negotiation components the development associations - non-token A closer part project have concerned government, gives form socio-economic process proponents, that should designed associated with the this to be development sub-processes components - process. comprehensive account such These should 15 management, processes that (Boothroyd Boothroyd environmental and and Rees impact - 16 - " . . . . a new p a r a d i g m f o r E I A . . . e m e r g i n g f r o m c u r r e n t p r a c t i c e - particularly i n Canada. The new p a r a d i g m s e e s E I A as a m a j o r c o m p o n e n t o f t h e d e v e l o p m e n t p l a n n i n g p r o c e s s r a t h e r t h a n as a p u r e r e s e a r c h a c t i v i t y . . D e v e l o p m e n t p l a n n i n g i s s e e n as e s s e n t i a l l y an ongoing p o l i t i c a l process i n the broadest sense of the t e r m , a p r o c e s s by w h i c h a s o c i e t y and i t s c o m m u n i t i e s make c h o i c e s a b o u t r e s o u r c e u s a g e and r e s o u r c e management i n s t i t u t i o n s . " (Boothroyd and R e e s , 1 9 8 4 : 7 ) . and The concept of the the management of comes of partially environmental development time, because and of information impacts, Rees 1984; effort produced the one attention beginning recognition is 1983; spent that the shot nature 1978), approaches and management to managing e n v i r o n m e n t a l goals are to the often et the gain al. lack the all emerging inadequate processes. C.S. no of Paine and more Holling i m p a c t s and p r o b l e m s et i s one et the process how much 1984); partially between management (Boothroyd a concern about closely project al. 1981), parties-at-interest support prediction matter integration process This with (Barnthouse 1978; assessment and associated assessment that the advocates. and a l s o b e c a u s e o f of between identification attempt assessment of link impacts the Holling during the is in regarding al. to a stronger socio-economic concern New is of be c o n c l u s i v e and Holling et 1984). assessment the Duinker a i.e. equal Rees and impacts and cannot money Beanlands of from development the of and the lack (Boothroyd and integrate a l . ' s adaptive impact approach example: "In e s s e n c e , t h i s approach provides a program of environmental assessment and management that responds to its effects as it proceeds. Knowledge g a i n e d i n e f f o r t s t o a s s e s s , r e g u l a t e , manage, and m o n i t o r m a n ' s e n v i r o n m e n t a l impact i s used t o improve these efforts. This sets the stage f o r an o n g o i n g , evolving program r a t h e r than a one-shot attack, and i t a l s o makes t h e most of programs t h a t cause u n f o r e s e e n p r o b l e m s . " (IIASA 1979:2). - of The p r o c e s s model the ideas within model 2. the to initiated overall be f o r m one c o n t i n u o u s described above. project 17 in The the model development are: major a) monitoring; components impact and c ) Socio-Economic In order identification h a s numerous of the and as the plan for and assessment three the Management an builds integral components on some process within the program or and examples must b) management process concurrent impact plan. Assessment management process Process impact assessment; Identification to purposes, and socio-economic i m p a c t management Impact seen pages process. identification the is process Components- o f - t h e - S o c i o - E c o n o m i c - I m p a c t The following be of impacts, conducted. are provided some Impact form of assessment below: "The purpose of the impact assessment system is to forecast project-induced change in local economic, demographic, public s e r v i c e , f i s c a l and s o c i a l c h a r a c t e r i s t i c s and t h e r e b y t o p r o v i d e a b a s i s f o r a n t i c i p a t i n g areas i n which problems are l i k e l y to a r i s e and w h e r e i m p a c t management e f f o r t s w i l l be n e e d e d . The s y s t e m c a n a l s o be u s e f u l in identifying opportunities for enhancement of project-related benefits. The i m p a c t a s s e s s m e n t s y s t e m t h u s p l a y s a p r i m a r y r o l e i n g u i d i n g i m p a c t management e f f o r t s . " (Leistritz et a l . 1982:16) "Assuming t h a t the o b j e c t i v e of the S . I . A . process i s to improve t h e management o f c h a n g e , t h e n i n e a c h p h a s e i t i s t h e outcomes that are important.....project alteration and other mitigative measures w i l l be d e t e r m i n e d b a s e d on t h e information required. There is, then a necessary link between the data collection c o m p o n e n t and t h e d e c i s i o n / a c t i o n c o m p o n e n t . " (Singer 1984:3) - 18 - The basic objective of impact assessment i s to p o s i t i v e and n e g a t i v e e f f e c t s o f p r o j e c t d e v e l o p m e n t o f m i t i g a t i o n and s o u n d m a n a g e m e n t . " (Rees, 1984:15) Impact assessment management process. Assessment and R e v i e w is an The important following Process In the Canadian socio-economic the Federal process section on preparation conducted anticipated of by the make p r e s e n t a t i o n s concern summarizes the the review mandate purpose of assessment project design 1979). given approval of of process or that there major are like process of the Process the is to project problems of groups and o f t e n by the a formal project Minister of the and The functions information if the project This to a the review experts that may are of by t h e P a n e l that in accordance with Environment. collected should is This public and t e c h n i c a l i s prepared produced assess includes addition the proposed A report to Statement. a i d i n the decision-making processes i m p a c t management with (E.A.R.P.). In includes interest information rejection. impact Environmental used Impact impacts. E.A.R.P. the aspects Panel the t h e Norman W e l l s P r o j e c t an E n v i r o n m e n t a l to the Panel. the of Federal p r o c e s s and c o n t a i n s r e c o m m e n d a t i o n s to all the Citizens, the Review socio-economic regarding t o them a n d / o r of and proponent Statement a Panel. the developments Assessment by t h e out component improvement. the preparation i s prepared point context, impacts of major involves Statement federal Environmental d i s c u s s i o n of does s u c h p r o c e s s e s and some n e e d s f o r and n e c e s s a r y identify the f o r purposes also within necessary be i s approved. used in The the for the (F.E.A.R.O. Experience for some Rees i t s effectiveness. brief to identifies the (C.E.A.C. Beaufort some of year his existence 1979; Rees Sea E n v i r o n m e n t a l concerns has a l l o w e d regarding 1980 a , b ; Asssessment the E.A.R. The s e l f - a s s e s s m e n t r o l e o f t h e p r o p o n e n t s , t h e p o l i c i n g r o l e of t h e government i n t e r v e n e r s and t h e r e a c t i v e r o l e o f t h e impact communities produces a counterproductive and predictable process. ( " . . . a protracted game o f a d v e r s a r i a l one-upmanship." (Rees, 1983:4)) b) the f a u l t y foundation assumption t h a t , given s u f f i c i e n t t i m e , money a n d e f f o r t , a l l s o c i o - e c o n o m i c i m p a c t s c a n be p r e d i c t e d ; c) t h e o f t e n s w e e p i n g g u i d e l i n e s g i v e n by t h e E . A . R . P . P a n e l t h e p r o p o n e n t f o r t h e p r e p a r a t i o n o f t h e Impact Statement; d) t h e o n e - s h o t n a t u r e o f t h e E . A . R . P r o c e s s w h i c h does n o t a l l o w f o r t h e assessment o f ongoing o r continuous development, a n d ; • e) t h e p r e d i s p o s i t i o n o f t h e government The relevance i s often restrictive the E.A.R.P. affect Impact Statement review rather than of of information limited Process. nature These roles and q u a l i t y (Rees, Process, as p a r t 1983). to impact roles by t o , and u s e f u l to of the impact i s a major by contained that o f a program these in the within the concentration a s an e n d i n process of actors made t o t h e P a n e l here management as a r e s u l t fostered information i s argued E.A.R.P. the relevant and t h e a t t i t u d e s f o r , the design development, existing management and p r e s e n t a t i o n s It the assigned to development. i . e . on t h e a s s e s s m e n t o f i m p a c t s , o f an o v e r a l l r e s u l t i n g from p r o j e c t to favour produced usefulness and i n t h e b r i e f s process. preliminary the and c o u n t e r p r o d u c t i v e the on t h e E . A . R . is i t s twelve 1983) roles the his Rees (Rees, of over a) process in In W.E. Process: the E.A.R.P. assessment 1983). Panel, the with 19 - where itself assessment t o manage weakness o f t h e E . A . R . impacts Process. - 20 Whereas critics of the public better serve process as a means the to the E.A.R.P. are interest, achieving often concerned proponents corporate often ends, that view the the particularly process assessment the approval of project. The step in assessment requirements the preparation overall of Farrow s t a t e are viewed development a strategy for as a h u r d l e process. seeking In a approval, t o be j u m p e d , paper that E. Stanley W. a single advocates and J . the E. L. that: "The objective should be t o o b t a i n the approvals e f f e c t i v e l y and w i t h i n t h e c o n t e x t o f c o r p o r a t e g o a l s . achieve t h i s a strategy i s required. q u i c k l y and In o r d e r t o A strategy for obtaining approvals under the provisions environmental impact legislation is advisable f o r a number reasons: It c l a r i f i e s corporate objectives It improves the understanding It i d e n t i f i e s and c o o r d i n a t e s It provides problems a of of framework of the s i t u a t i o n a c t i o n s toward for anticipating the corporate and goal responding to I t p r o v i d e s a t o o l w i t h w h i c h t h e manager c a n work p o s i t i v e l y toward a c h i e v i n g r e q u i r e d r e s u l t s . " ( S t a n l e y and F a r r o w , 1979 :1) This hazardous (Stanley strategy is described process of socio-economic and Farrow, 1979:1). a s s e s s m e n t as a p r e r e q u i s i t e of t h e management of as The "a impact emphasis to approval, development tool for navigating studies is on for.... the through approval." perception of n o t n e c e s s a r i l y a s an i n t e g r a l outcomes. The a s s e s s m e n t the process is the part often - s e e n as e x t e r n a l can be the limits of from the to the benign or tolerance nature impact development of the statement to - 21 process. negative information, information The attitude compliance. the and attitude the toward The process perception will proponent the affect the frames content participation in the review process. The and perception can vary and a t t i t u d e s from project g r o u p s c o u l d be u s e f u l of the i d e n t i f i c a t i o n of processes and that impactee Where be be the the special stop, as the obscured be the review In of process of submissions impacts to contained interest toward to these that found to which intervenors the other the be in is than those information token, the critical It it or issues is to is only these in i n terms verbal terms of the Intervenor submissions through not and forum f o r to a better going may ahead. itself. discussing issues development intervenors may necessary create a information process intervenors' and/or by impacts impact review contributed therefore, produce the motivated specific negative, on t h e the raised on is project Where information are encouraged to the change produced. important, by both program. impactee on process are and comment centering is the and diverse meetings. focussed intended produced program d e s i g n , written project, review impactees are information implementing i s p e r c e i v e d as t h e drawbacks, be l a c k i n g . the and be m a n a g e d , intervenor modify critiques process issues focus spite is perception by Where t h e r e v i e w concern, The i m p a c t management considered in delay or attitude of be intervenors t h e t e c h n i c a l and c o m m u n i t y limited, Where may to should the the project. specific information in records of desire to to of project may perceive the also be token. and impactees' information is an e n v i r o n m e n t in q u a l i t y of information. - 22 Government roles depending •involved, the project, the held the is assessment of faith proposed be a f f e c t e d depend project, impact responsible for dealing These fully proponent's impact the requisition information for intervenors if them t o in do so. the the the have process of similar the to which departments in those of areas or proponents the of to the process and or agency attitudes the quality agency of and as an the favour a'government participates review different protect perceptions commitment of bias to Where to and of government and/or the have intervenor information process, its the effect department is on to project. the potential as social for While they or critique process the employ and to is the could encouragement most the social reasons, participate information provided contribute often whatever the management to intervention process additional impact some degree review statement. several impact. nature agencies, the of to process a departmental department management with review regulate be degree the agencies participate may the and t h e for to on as a r e s u l t o f areas. likely effectiveness information impact to a government process, in the Government is be with mandate process Where will initiator, the and T h e r e may possible that review above. assessment project. project it the contributed the the with the proponent, about degree the others which described in on in some s u c h as t h e materials is actors only useful do to and statement, be personnel programs not in always critique often more contributed and/or useful the leads useful by environment these for Suggestions Rees, 1984; Rees, assessment relevant have 1983). components actors. responsible project been for design such impact individuals, the of project and impact suggested changes, Rees (1983) E.A.R.P. for a natural result agencies and assessment, programs. In envisions a and of the self-interests of the in the proponent being socially sound and might be policy communities (Boothroyd restructuring environmentally on- m a n d a t e d groups monitoring is the might an a s o c i o - e c o n o m i c impact proposals of government interest the suggestion advantage The of - reforming restructuring proposal. while preparing for preparation the for take This analyzing the One to the made 23 responsible and might including addition program be long-term areas responsible impact to for management such goal specific for impact assessment: " U l t i m a t e l y , of c o u r s e , i f p r o g r e s s i v e t r a n s f o r m a t i o n of the f i e l d proceeds to its logical c o n c l u s i o n , EIA as a d i s c r e t e s e t of project or development-related activities should disappear altogether. I t s v a r i o u s o b j e c t i v e s w i l l h a v e b e e n subsumed by a more p r o g r e s s i v e and humane d e v e l o p m e n t p l a n n i n g p r o c e s s . " (Rees, 1983:14) As stated socio-economic for some greater previously impact assessment impact management process has The components now be years. to received discussed component of considerable are those the attention in need inputs to of attention. Impact Monitoring The m o n i t o r i n g entire the of socio-economic i m p a c t s c a n be v i e w e d impact management as a s e t process. of support Seen in this the light, - 24 monitoring process, to to the the are design and ongoing impacts. socio-economic associated development of classes environmental In categories of considered within i m p a c t management of the impact The process might the and to are while management impact the appropriate are would to overall Issues most or to anticipated environmental, social p a r t i c u l a r p r o j e c t s p e c i f i c a l l y to and m a n a g e r i a l p u r p o s e s ; Socio-Economic is implement enhance the be which tracking of and e c o n o m i c i m p a c t s o f a provide data for m i t i g a t i v e cumulative impact m o n i t o r i n g - monitoring with a focus on critical issues in a region that is undergoing rapid development or change, whether r e l a t e d to or independent of a particular project." ( R e e s 1984:15) 9) It - nine below: monitoring management and likely 8) impact the the monitoring of s o c i o - e c o n o m i c agreements or c o n t r a c t s the m o n i t o r i n g of the v o l u n t a r y or c o n t r a c t u a l agreements between industry and g o v e r n m e n t f o c u s i n g on industry's performance w i t h r e s p e c t t o i n d u s t r i a l e m p l o y m e n t and r e l a t e d b e n e f i t s ; project of closely "7) for the outlines process, are l i s t e d of more to Carley that program, prediction Monitoring-:- management contribute, assessment evaluation and/or Michael categories the management others Socio-economic three socio-economic to monitoring process of impact impacts, Beaufort--Region, monitoring. the evaluation programs of Cumulative Indicators --foi—Canadals the management management process. the implementation impact impact to unanticipated Certain with critical and identification current future strategies the the I m p a c t Management purpose strategies potential to of the reduce benefits Program/Plan impact the management effects of or o p p o r t u n i t i e s program negative to design impacts associated with the and/or and to project. It is also strategies not have the that been the development A few examples i m p a c t management purpose of have 25 of the the impact capability identified in the management to respond program to assessment phase to impacts but do provide that may result from project. definitions are quoted that refer to programs of socio-economic below: "Impact management, only recently recognized as part of the assessment process, includes public and private actions to ameliorate impacts. The use of available i m p a c t . management strategies can a f f e c t t h e outcome o r change i n t h e s o c i a l and economic environment i n a community." ( G r e e n e and C u r r y 1 9 7 7 : 1 ) "Management: This i n v o l v e s government or proponent response to i m p a c t s by t a k i n g t h e r e m e d i a l a c t i o n t o a v o i d o r m i t i g a t e a d v e r s e impacts or to maximize b e n e f i c i a l i m p a c t s . " (Walkey 1984:6) "...a comprehensive approach encompassing measures which enhance the project's local benefits and a p p r o a c h e s which provide for v a r i o u s forms of compensation ( e . g . monetary, in-kind) to local interests, as w e l l as a c t i o n s t o reduce or e l i m i n a t e negative effects " ( L e i s t r i t z et a l . 1982:12) Objectives The of following the Socio-Economic quotation integrated approach objectives of in presents designing an Impact Management a framework impact of Program elements management required program and for the such a program: " T h e o b j e c t i v e s o f an i m p a c t management p r o g r a m a r e t o a n t i c i p a t e and a l l e v i a t e t h o s e p r o j e c t e f f e c t s w h i c h a r e g e n e r a l l y p e r c e i v e d as u n d e s i r a b l e and t o e n h a n c e e f f e c t s w h i c h a r e deemed b e n e f i c i a l . I n d e s i g n i n g an i m p a c t management p r o g r a m , t h e u s e o f a s y s t e m s p e r s p e c t i v e s t r e s s e s t h e n e e d f o r an i n t e g r a t e d a p p r o a c h . There a r e f o u r e l e m e n t s t o s u c h an a p p r o a c h . These a r e : an major (1) t h e need f o r (2) t h e need t o i n t e g r a t e t h e impact the o v e r a l l p r o j e c t s c h e d u l e ; (3) the need to g r o u p s , and (4) a comprehensive appropriately Once objectives management have been plan, the determined. The options compensation and mitigation. which broadens "(1) t h i s f i e l d of measures to governmental measures change; (3) measures to (4) measures to ( L e i s t r i t z et The federal the Project. to primarily thesis communities. the two Leistritz compensate al are the be et al. The f o u r c a p a c i t y of local the (It impact design study and and p l a n n i n g should funding a four systems be n o t e d initiatives to the be cope with interests." plan for are the strategies Norman second c a t e g o r y of throughout will typology (economic, thesis and m o n i t o r i n g that of and in this delivery be are: local of should category systems to impact d e s c r i b e d as m e a s u r e s i n d i v i d u a l s or groups; as m e a s u r e s employed categories local i n i t i a t i v e s under with and be use on considered interests socio-economic to often provide incentives 1982:19) s o c i a l / c o m m u n i t y development Valley consideration the for strategies options. with key s o c i o - e c o n o m i c i m p a c t management They would concerned enhance funding overall or activities with the u n c e r t a i n t i e s inherent and the impacts thereof." minimize demands and s o c i a l ) ; (2) all established measures for management involve t h e need t o d e a l r e a l i s t i c a l l y in the development process ( L e i s t r i t z et a l . 1982:12) " within approach; programs within the to the to above, enhance Mackenzie remainder referred Wells as of the either "initiatives" or to equate with The "strategy" c h o i c e of the objectives the action of actors, severity of the Once t h e connection, however, "program" is or combination degree resources specific of of impact strategies available to management responsibility socio-economic must be requirements are requirements and the be u s e d t o achieve plan will depend on designated and assumed by projected magnitude it of an i m p a c t management administered met. effective The and program or and implemented following program/strategy list of of so strategy that criteria program/strategy socio-economic will: I. reflect the participants socio-economic impact in the review processes; II. be o p e r a t i o n a l p r i o r project construction occur; III. be p l a n n e d to in concerns expressed by t h e commencement o f t h e development o r d e r t o d e a l w i t h i m p a c t s as t h e y in s u f f i c i e n t d e t a i l so that: a) measurable goals or t a r g e t s are d e f i n e d a g a i n s t which t h e p r o g r e s s o f t h e p r o g r a m o u t l i n e s c a n be a s s e s s e d ; b) r e g u l a r r e v i e w s of program outcomes, a c c o r d i n g to defined goals or t a r g e t s , are conducted throughout implementation period; c) r e v i s i o n s to the defined t a r g e t s made b a s e d on t h e r e v i e w s . or goals may easily is basic outlines management. The meant "measure"). socio-economic the the this - impacts. however, effectiveness the the In or strategy involved, various chosen, "programs". 27 the the be impact - 28 IV. u n a m b i g u o u s l y i d e n t i f y a l l t h e m a j o r p a r t i e s - a t - i n t e r e s t and their specific administration and implementation r e s p o n s i b i l i t i e s in r e l a t i o n to the programs; V. be s t a t e d by a m a j o r i t y o f t h e p a r t i e s - a t - i n t e r e s t e f f e c t i v e p r o c e s s ( m e a s u r e d i n t h e i r own t e r m s ) ; VI. be a d m i n i s t e r e d u s i n g purposive a c t i o n toward VII. define planning processes implementation agents; VIII. designate potential IX. be p r o v i d e d w i t h f u n d s s u f f i c i e n t t o i m p l e m e n t t h e g o a l s and t a r g e t s t o t h e d e s i r e d l e v e l o f a c h i e v e m e n t . These used evaluation also Wells impact these criteria. longer, An criterion IX from meaningfully to the programs assessment, in be of than the et own of assessed against study communities development was appropriate case of the two The the would agency for first program require this a separate Norman seven offices Wells the Socio-Economic list. Norman would r e q u i r e r e s e a r c h time s u f f i c i e n t f o r of in VIII Yellowknife some experience against the program in al.'s the criterion and involve contained My an with the greatest p r o g r a m g o a l s ; and Leistritz helpful. will assessment material chapter. particularly and o n - s i t e Valley a of much and the thesis. A impact funding thesis. SUMMARY In this was this contributed Mackenzie C. developed writing funding indepth package, were in I m p a c t -Management to be f a c i l i t a t e rapid of program g o a l s ; t h e most a p p r o p r i a t e agencies f o r e f f e c t i v e l y implementing the criteria literature processes that the achievement to summary, chapter, Planning for the should the s o c i o - e c o n o m i c i m p a c t management be impact an integral management part of process the process, project should take as d i s c u s s e d development place as part in process. of the overall planning management three process process major program. integrated and the discussion the provides of study the - the as functions of to the a i n i t i a t i v e s are It continuous within overall impact framework provides measured. socio-economic process and is activities these degree also The monitoring whatever contextual thesis. - development. assessment, overlap objectives remainder which the The should project described components management achieve is for 29 component is for the and parts necessary management the to an up of impact should be effectively process. analysis specific made impact This contained criteria in against - 30 CHAPTER-III THE-NORMAN-WELLS-IMPACT A. FUNDING INTRODUCTION The purpose of process content analysis, implementing actors' the two chapter to study is impact and to present document the funding perceptions section will impact funding detail available improvement in than programs the from quality of the the and t o present processes. The material socio-eonomic is a Portions reflection periods. proposals of the It and is also reports effectiveness of t h i s of and various as programs review administering of This the different of of in the analysis initiatives others. findings processes of be u s e d the i n t h e c a s e o f t h e Norman W e l l s P r o j e c t . more material the two in this management contain the this observations presented of INITIATIVES the a impact chapter amount of reflection of over the funding years. B. NORMAN WELLS-REVIEW The of each purpose of expressed Chapter this t h e two s t u d y during II, management of PROCESSES CONTENT A N A L Y S I S the analysis initiatives impact is impacts assessment to that to determine processes. of information be whether the s o c i o - e c o n o m i c impact review component produce are i s to reflects t h e Norman W e l l s P r o j e c t process project-induced content managed. the concerns indicated in socio-economic regarding It As is intent the relevant impact potential to the - subject of t h i s information purposes thesis, from the Norman review the Federal National Energy Board hearings. The other processes. two expansion impact It included portion national context Water licenses for Board both hearings Esso public, was to approval process. topic These the Project. and and mandate heard as w e l l official the the oilfield presentations technical projects intervenors dealt with the for water Ltd. The announcement and, by also the Board socio-economic chosen in were the contents Documentation considerations in a The Pipelines approval the only. the a p p l i c a t i o n s process. p r o c e s s e s were Transcripts Board considered as f r o m to assess energy covered were the than the It I decided to analyse Review Water both it Wells Process; project. Interprovincial after t o by t h e M i n i s t e r o f D . I . A . N . D . of the were c o n c e r n e d s o l e l y w i t h the issues accessible, thesis in Norman Review broader the impacts in nature. and t h e N . E . B . readily the of from the assessment to consider and were decision-making referred held the hearings E.A.R. relevant were conducted Process its hearings were were the processes in hearings p r i m a r i l y socio-economic process reflected Territories had a h a s a mandate Resources not and and o r g a n i z a t i o n s and p r e s e n t a t i o n s Board Process Energy Board of the P r o j e c t , is assess Northwest as e n v i r o n m e n t a l The N a t i o n a l pipeline the aspects residents to Assessment and E.A.R. as w e l l reviews conducted Wells pipeline community 'experts'. although the or not the review study. were hearings whether Project Environmental Norman and socio-economic Water Wells processes Project: N.W.T. t o know o f t h e i n i t i a t i v e s under Three from therefore, - 31 the because from of these concerns Cabinet's they were i n h i s press r e l e a s e announcing the from the E.A.R.P. community and technical Reasons for N.E.B. the Decision studying studied, was the used materials for expressions two s t u d y breaking in were as for was the the Panel's examination of Report. the The content N.E.B. of the down the text mentioned of concern initiatives 'backgrounder' Project. under related review. of the i n i t i a t i v e s to The o r i g i n a l t e x t the above, I focused attention to the key elements These key elements as t h e y press release i s quoted below:- were approving were the Norman Initiative b ) " P l a n n i n g s u p p o r t t o n o r t h e r n n a t i v e s t o e n a b l e them t o t a k e an a c t i v e r o l e i n t h e p l a n n i n g a n d m o n i t o r i n g o f t h e p r o j e c t a n d i n t h e d e s i g n and i m p l e m e n t a t i o n o f p r o g r a m s i n i t i a t e d i n response to the p r o j e c t . Projected funding over f i v e y e a r s : $1.25 m i l l i o n . " ( D . I . A . N . D . 1981:1) a) b) . . i s o l a t e d from the t e x t a r e : - community and s o c i a l development along the p i p e l i n e route a b i l i t y t o r e s p o n d t o needs as t h e y native involvement in the design program d e l i v e r y needs of communities are i d e n t i f i e d and o t h e r aspects need f o r p l a n n i n g s u p p o r t a d e s i r e on t h e p a r t o f n o r t h e r n n a t i v e r e s i d e n t s an a c t i v e r o l e i n t h e p l a n n i n g and m o n i t o r i n g project by documented a) " E n h a n c e d e x i s t i n g government programs to address the community and s o c i a l development needs of communities a l o n g t h e p i p e l i n e r o u t e so t h a t t h e y c a n r e s p o n d t o t h e p r o j e c t as t h e needs a r e i d e n t i f i e d . Native people w i l l be d i r e c t l y i n v o l v e d i n t h e d e s i g n o f t h e s e p r o g r a m s a n d in aspects of program delivery as they relate s p e c i f i c a l l y to native communities. Projected government funding over f i v e y e a r s : $4.25 m i l l i o n . " key elements a i s o l a t e d by originally of on encompassed Initiative The the hearings. In search hearings 32 - of to take of the Wells - 33 a d e s i r e on t h e p a r t of northern d e s i g n and i m p l e m e n t programs that a r i s i n g from the p r o j e c t . 1. Environmental Assessment According R.J.D. to 140 p r e s e n t a t i o n s . the Mackenzie made during the concentrated in August, the of the The residents were of 12 for community recorded that took E.A.R.P. Panel heard w e r e made b y r e s i d e n t s of place the in issues. presentations Yellowknife of were and which place All meetings took meetings focusing on expressions and native implied. Monitoring, Dene Meetings of revealed that in the were this community the of table findings greatest to that are importance provide a the key summarized in to basis of the community comparison for elements. explicit, the above 102 p r e s e n t a t i o n s were of Wells remainder environmental transcripts concerns i n i t i a t i v e key Out on Norman presentations The meetings V a l l e y Community identified II. The 1980. A study Table these communities. heavily Process (1981), 100 o f technical more Mackenzie elements Page, Over Valley and-Review native residents to respond to impacts concerning social involvement Nation, from Mackenzie as socio-economic development or was Erasmus. community impact mentioned Planning and/or Although these once as residents, issues activities. responsibility for a process, Georges Valley a by the then specific the not processes there need always was often president process for - 34 TABLE SUMMARY OF CONTENT ANALYSIS OF E . A . R . P . Concern r e s o c i o economic impacts a n d / o r Community and S o c i a l Development Issues COMMUNITY Monitoring II MACKENZIE VALLEY COMMUNITY MEETINGS Planning Jobs/ Dollars to go t o the North In F a v o u r o f Norman Wells Project 5 + H.N. 1 F o r t Norman (10 + H . N . ) Settle Claims First Norman Wei I s (12) 6 + H.N. F o r t Good Hope (10 + H . N . ) Fort Franklin (1) 1 + H.N. Wrigley (12 + H . N . ) Hay R i v e r (10) - Hay R i v e r (12 + H . N . ) reserve community Fort (4) Providence Fort (7) Simpson F o r t Simpson (11 + H . N . ) F o r t Rae (3) Detah (4 + H . N . ) TOTAL 96+6 H.N. 1 (G. Erasmus) (G. Erasmus) 12 (nb H . N . • H e r b N o r w e g i a n - V i c e P r e s i d e n t o f Dene G . Erasmus = P r e s i d e n t o f Dene N a t i o n . ) Nation (nb The number o f e x p r e s s i o n s does n o t n e c e s s a r i l y e q u a l t h e number o f p r e s e n t a t i o n s . One p r e s e n t a t i o n may d i s c u s s more t h a n one c o n c e r n . ) 5 + H.N. 2 + H.N. 3 1 + H.N. 1 (G.Erasmus) 1 3 3 + H.N. 26+1 30+6 H . N . H.N. 18 - 35 social for purposes an is economic 'planning' is not mentioned development at plan used o c c a s i o n a l l y i n government's responsibility all. to Georges for the a general improve Erasmus Mackenzie sense its refers and planning to the Valley. always for need The word concerned future with megaproject developments. The issues communities most are; any development to accrue Wells to often the settlement and t h e e.g. of jobs, facilities, accrue the and s o m e t i m e s claims settlement an issue obvious was of the Dene a b o r i g i n a l r i g h t s better with The residents northern expressed North the and/or sometimes to by concern regarding the northerners Project, mentioned as benefits natives a that a condition most might result The of one for for to expected the Norman c o n c e r n was benefits support important be latter project of Valley and c l a i m s p r i o r that dollars. belief the as Mackenzie would the the not project. community residents. There are majority of 18 these S i m p s o n and Hay Mackenzie expressions Valley expressions River non-native Sample quotations A. Community. communities numbers o f Appendix of in support were for from the Norman residents These communities which meetings of are were Wells Project. The Wells, Fort Norman larger held, than and the have other larger residents. from the E.A.R.P. Community Hearings are contained in - 36 City of There Yellowknife were Yellowknife. Wells will The Project. The much support The there only the be for Association of devolved to in the ensure but social of the that the Northwest Yellowknife that Jo Northwest the native the only that problems Mrs. includes i n terms of in Norman Project Territories. the presentations North was resulting MacQuarrie from Territories the concept of communities intervention from to the with North the the Norman Mental a actually the Health number health as Wells of decision-making regarding that left s u b s i d i e s and presents greater not was power and social mentions native decision-making. Hearings Presentations the the impact involvement concerns belief expressed regarding monitoring, This environmental the to hearings i n support accrue problems. Technical is community benefits One is support mentioned project the to the a r e made stimulation made intervenor, recommendations. being often increased One during unconditional. this were for economic always of made presentations reason arrangements Concerns Project. six major most costs potential the needed i s not concern that presentations Five of bring well. six at issues. focused proponents. the The Technical presentations p r i m a r i l y on t h e The Hearings critiques that Soc i o - E c o n o m i c of the were did concerned deal with mainly socio-economic Impact - Statement statement were with concerned prepared about by the - 37 amount need of time projected for and i f more time project benefits were to be e n h a n c e d . Two expressions that These of proper package venture proposal of were the of to the were the to project. be relevance expressions provide the of the to the regarding strategies A mitigated interventions have contained data to the these A and the and f o r the possibility for of the is advice. It of the communities decision-making but the consulting with and s o l i c i t i n g two the is placed not in programs, Panel Report. recommendations Panel funding of noted planning, that native the program emphasis people of less on The directly programs. the other joint the significant advice from the the are involvement be the of Panel's however, impact should the Some training within of whether purposes. funds, a number Report determine initiatives, contains Panel GNWT recommendations recommendations consultation to Panel initiative e.g. study purposes Process - studied i n the direct two are relevant were initiatives, Appendix involvement impacts i m p a c t management and R e v i e w reflected identified. for of baseline contents were funding of planning Assessment Report recommendations thrust interventions if for monitoring. Panel contents contained sufficient Environmental The prepare be n e c e s s a r y issues. meaningful to to initiative establishment in order felt meetings for available was technical necessity as The that major communities recommended delivery the the Mackenzie need or for Valley. - 38 - The P a n e l ' s c o n c l u s i o n r e a d s as f o l l o w s : "The P a n e l ' s r e v i e w o f t h e p r o j e c t h a s l e d t o t h e c o n c l u s i o n t h a t b e f o r e t h e Norman W e l l s O i l f i e l d E x p a n s i o n and P i p e l i n e P r o j e c t c a n be - - b u i l t within • -acceptable 1imits - of e n v i r o n m e n t a l - -and socio-economic -impact, important d e f i c i e n c i e s -in - the- Proponents' planning and- i n the preparedness • of government n e e d - t o - be rectifiecH I h i s c o n c l u s i o n h a s l e d t h e P a n e l t o recommend t h a t t h e p r o j e c t n o t be p r o c e e d e d w i t h u n t i l 1982 a t t h e e a r l i e s t , i n o r d e r t h a t t h e s e d e f i c i e n c i e s c a n be d e a l t w i t h . " (FEARO 1 9 8 1 : 3 ) 2. on National Energy Board Review Twenty-one presentations the Wells Norman made by c o m p a n i e s and w e r e in Project by was made the the Ontario Project N.W.T. by but Hay of Commerce Agency organizations benefits and Metis of the and t h e project Government gave c o n d i t i o n a l gave seven Inuvik Corporation These Village would of the oil Fort one the more made another made by supporting made The the by the conditions s h o u l d be made northerners. Northwest supporting was were Simpson. concerted e f f o r t accrue to made were industry, District), presentations of hearings and g a s were were Board presentations and and presentations attached. Association withheld government Two Energy presentations (Alberta, stipulated that the National twenty-one, Two Development Energy. the associated with Project. conditions presentations that federal of to the the River Stamping Yellowknife, The of Chambers with made by b o t h Of and o r g a n i z a t i o n s Minister Grade ensure that Project. support the w e r e made The Territories City also to of made support. support acknowledgement for of the and proposed some project action until toward, the five conditions jointly submitted 39 - by t h e Dene Nation, the G.N.W.T. and t h e Metis Association:- "(1) t h e need t o f o r m u l a t e a l o n g - t e r m p l a n f o r t h e development non-renewable r e s o u r c e s i n t h e Northwest Territories; (2) t h e r e q u i r e m e n t f o r a n o r t h e r n b a s e d a u t h o r i t y t o c o n t r o l and r e g u l a t e development t o a d e q u a t e l y serve t h e i n t e r e s t s o f the people of t h e Northwest T e r r i t o r i e s ; (3) the requirement (4) the requirement for policies and programs to ensure the a v a i l a b i l i t y o f e n e r g y s u p p l i e s t o meet t h e p r e s e n t and f u t u r e needs o f N o r t h e r n e r s ; a n d , (5) t h e r e q u i r e m e n t f o r some r i g h t s and c l a i m s . " (NEB There The five time was f o r a plan f o r the sharing of interventions Arctic land-use affecting the were Canadian claims, that Resource planning, needed the Mackenzie opinion that Foundation (C.J.L.) no Territories. land Project that projects. for The C . J . L . until until of The such time they these should Canadians to Dene community The Dene N a t i o n ' s for approval chiefs c l a i m s were the land, they of issues and h e l d approval. among other things, and Liberty that it Northwest would prejudice They h e l d p o s i t i o n was t h e same a s t h a t good the opposition not benefit position expressed on t h e b a s i s in native developments for Justice the Project were of C.A.R.C. of Project. the any residents settled. could aboriginal before the Project nor that controlled the The C o m m i t t e e felt as t h e i r issues require, impacts. of t o t h e Norman W e l l s the North receive would royalties; area identified to was i n o p p o s i t i o n benefits claims. with Project a n d management provided deal the in opposition Committee Valley the movement in 1981:118) and b e n e f i t s to monitoring Dene of from to the the position development o f t h e Dene c h i e f s . - 40 In documenting Norman Wells its E.A.R.P. consultation by establishment of and appropriate likely it be facilities further Project's NEB placed potential related resource harvesting, effects on established 3. a unduly the of taxing with community associated with places the of recommends the responsibility also from the community proponents, NEB t h e GNWT expresses the project its and w i l l the infrastructure, (NEB and that services, 1981:126) would on t h e g r a n t i n g of preparation, the concerns and socio-economic was f e a s i b l e The Board socio-economic d e s i r a b i l i t y , consultation, the Project and l i a b i l i t i e s compensation regional It The area". i t s regional benefits to deal also least Wells impact conditions communities, that t h e Norman to the proponents's socio-economic plans suggested of Board with benefit supports importance system. agencies. Board of the c o s t s . of i n terms a number conditions that The impacts will "without that modest monitoring Energy the and g o v e r n m e n t . burden resources National stressing government concluded and in northerners built the socio-economic federal native Board could states of bear t h e g r e a t e r The Panel an e f f e c t i v e the monitoring that views, proponents for opinion own out. a certificate. prior brought balance the The These to construction, before the Board, of e.g. opportunities for northerners, mitigation. The Board impact monitoring system also be Project. Summary The purposes content of the analysis two findings study indicate initiatives that reflect in a general sense, socio-economic the concerns expressed reflect of during the t h e major aboriginal community enabling rights communities expressed the E . A . R . P . of association with sense, C. to f o r development. prepare i n terms with by Georges planning federal and program monitoring Erasmus, monitoring in the and proponent r e f l e c t e d i n t h e two i n i t i a t i v e contents. a) General John Munro, announced attempt settlement to address t h e need f o r involvement of and a d v i c e , delivery do n o t it native was n o t or project once during o f t h e Dene N a t i o n . review processes preparedness therefore, Most was in a n d management are in a general INITIATIVES Events Minister the approval on J u l y was t h e was m e n t i o n e d President concerns, Approval an The consultation DOCUMENTATION OF - IMPLEMENTATION OF THE Project reflect process 1. which They and t h e c o n c e r n r e g a r d i n g of with government The r e v i e w They planning, concern processes. northerners needs Native responsibilities. the native review development hearings discussion Project claims. connection decision-making. - and l a n d was e m p h a s i z e d in Wells concern of and s o c i a l communities Norman 41 of of Indian t h e Norman 3 0 , 1981, subject to Affairs Wells a delay and Oilfield Northern Development, Expansion and P i p e l i n e in construction start up. Mr. Munro s t a t e d t h a t t h e " d e l a y was i n r e s p o n s e t o c o n c e r n s r a i s e d b y t h e n a t i v e people in the Mackenzie Territories that more time Valley and be a l l o w e d the Government for effective of the and m e a n i n g f u l Northwest planning so that special construction announced measures phase as p a r t of and this $1 42 - benefit billion of the approval packages are project." in effect (D.I.A.N.D. was a b e n e f i t s during the 1981:1). Also package: "We r e c o g n i z e t h a t t o o o f t e n , w i t h o u t f r o n t - e n d s u p p o r t and t i m e f o r p l a n n i n g , o p p o r t u n i t i e s f o r n a t i v e p e o p l e do n o t a l w a y s e q u a t e t o m e a n i n g f u l i n v o l v e m e n t , j o b s and b e n e f i c i a l experiences,....For t h i s r e a s o n , I h a v e i n s i s t e d on a c o m p r e h e n s i v e p a c k a g e o f v a r i o u s programs t o t a l l i n g ' $20 m i l l i o n over t h e d u r a t i o n o f t h e p l a n n i n g and c o n s t r u c t i o n p h a s e s o f t h e p r o j e c t t o e n s u r e t h a t t h e t r a i n i n g o b j e c t i v e s , j o b s a n d b u s i n e s s o p p o r t u n i t i e s w h i c h we h a v e i n s i s t e d be p a r t o f t h i s p r o j e c t a r e r e a l a n d m e a n i n g f u l . The e n h a n c e d program package w i l l i n c l u d e o n - t h e - j o b and i n s t i t u t i o n a l t r a i n i n g , s t r e n g t h e n e d s e r v i c e s a t t h e community l e v e l t o cope w i t h p o s s i b l e disruptions and c h a n g e s , funding for the Government of the Northwest T e r r i t o r i e s to finance additional public services that w i l l be r e q u i r e d , and c o n t r i b u t i o n s t o t h e Dene and M e t i s t o p e r m i t them t o be i n v o l v e d i n t h e p l a n n i n g a n d p r o g r a m m i n g a c t i v i t i e s i n conjunction with a l l levels of government. Final approval on program f u n d i n g and c o n d i t i o n s i s s u b j e c t t o T r e a s u r y B o a r d r e v i e w and a p p r o v a l . " (D.I.A.N.D. 1981:3). The press (Appendix package study B), "backgrounder" details and t h e maximum initiatives are particular initiatives Development Program; The project press resources with an individual dollar came to of be the initiatives allocations components further to this called stated "ensure government are allocated addition, accompanied for that agencies i n t h e most advisory committee that and effective each the (a) impact package. of funding and two these Social Program. would is The Later Community planning appoint undertaken associations manner." release initiative. Minister native consisting the and M o n i t o r i n g the detailed announcement of benefits and ( b ) t h e P l a n n i n g S u p p o r t release coordinator conjunction In the that (D.I.A.N.D. representatives and a in that 1981:4). from the - 43 - TABLE I I I L I S T I N G OF C R I T I C A L EVENTS IN THE IMPLEMENTATION OF THE TWO STUDY IMPACT FUNDING PROGRAMS NORMAL WELLS PROJECT Event Project Approval Announcement Date Occurred Participant(s) J u l y 3 0 , 1981 Minister Request f o r 1981-82 Funds both Programs Sept. Dene N a t i o n and Metis Association Revised November 1981 Dene N a t i o n and Metis Association Formal D e s i g n a t i o n of N a t i v e A s s o c i a t i o n s as r e s p o n s i b l e agents f o r t h e Community/ S o c i a l Development Funds Nov. Minister of D . I . A . N . D . , GNWT., Dene N a t i o n and M e t i s A s s o c i a t i o n Contribution Agreement signed f o r 81/82 Funds o f both Programs March Deadline f o r completion of 81/82 Program Activities May 3 1 , 1982 I n i t i a l requests f o r 1982/83 Funds May 1982 Final Submission f o r 82/83 Funds both Programs and a d d i t i o n o f 83/84 Requests Oct. Nov. Request 3 0 , 1981 11, 1981 1 2 , 1982 27-28/82 2/82 of Implementation Expected Actual D.I.A.N.D. Nov. 1/81 D.I.A.N.D., Dene N a t i o n , Metis Association Nov Dene N a t i o n Metis Association Mar 3 1 / 8 1 May 3 1 / 8 1 Summer 82 Mar 17/83 Summer 82 Mar 17/83 Dene N a t i o n Metis Association 1/81 Mar 12/82 Mar 12/82 - 44 - TABLE I I I L I S T I N G OF C R I T I C A L EVENTS IN THE IMPLEMENTATION OF THE TWO STUDY IMPACT FUNDING PROGRAMS NORMAL WELLS PROJECT - - Continued — Event Date Occurred Participant(s) Implementation Expected""^ Actual Project Construction Commences J a n u a r y 1983 Esso I.P.L. 82/83, 83/84 Contribution Agreements Signed March D.I.A.N.D., Dene N a t i o n Metis Association Summer 8 2 Mar 17/83 Submission of 1984-85 P r o p o s a l January Dene N a t i o n Metis Association Apr A u g 84 Additional Component t o C o m m u n i t y and S o c i a l Development P r o g r a m April Contribution Agreements s i g n e d 1 9 8 4 - 85 P r o g r a m s A u g u s t 1984 D.I.A.N.D., Dene N a t i o n Metis Association Apr 1/84 A u g 84 Submission of 1 9 8 5 - 86 P r o p o s a l s Dene-March/85 Metis-Apri1/85 Dene N a t i o n Metis Association Apr 1/85 A u g 85 Contribution Agreements s i g n e d 1985-86 Programs August D.I.A.N.D. Dene N a t i o n Metis Association Apr 1/85 A u g 85 17, 1983 1984 1984 1985 Dene 1/84 Nation Aug 84 communities i n the Mackenzie coordinator and t o consideration." b) A approval reading more of recent differing being this intended. issues A There Dene N a t i o n the relevant to the officials of Norman some Wells press that may h a v e of give the the project are given full conference, said Munro and Dene been the of source of slightly with leaders content and and w h a t was met the discussions that different conference. conference, indications o f w h a t was b e i n g and t h e M e t i s to took than the discuss place at the press later problem process. of the a n d , i n some perceptions reactions cases, from of more and emphases the relevant recent concerning actors, interviews, as helps the approval and initiatives. and t h e M e t i s newspaper assist at a press accounts actors, and c o n c e p t i o n s a discrepancy the varying impact f u n d i n g to and needs in Yellowknife may h a v e h a d a somewhat at the time indicate interests newspaper are indications documentation The with i n t h e i m p a c t management recorded the government Such local was made release, Prior morning meeting conference. to press discussions approval. that be c r e a t e d 1981:4). announcement the was t o Observations interpretations territorial the and Valley ensure (D.I.A.N.D. Perceptions The "help 45 - accounts Project Association documenting suggest t h e announcement that the native of the community approval of leadership concentrated from the mainly upon Native - Press 1981 e d i t i o n 46 - the promise - August illustrate this 14, of 1981 the delay issue in and t h e start up. News Quotations North July 31, point: " I n an i n f o r m a l p o l l o f t h e Dene c h i e f s who c o u l d be c o n t a c t e d by t e l e p h o n e , the N a t i v e Press found a m a j o r i t y o f o p i n i o n i n favour of the federal cabinet d e c i s i o n to delay the c o n s t r u c t i o n of the Norman W e l l s p i p e l i n e f o r two y e a r s . " (Native Press 1981:4). "A ' m a j o r v i c t o r y ' i s how t h e Dene N a t i o n and t h e M e t i s A s s o c i a t i o n of the N.W.T. are d e s c r i b i n g the federal cabinet approval of the Norman Wells pipeline conditional upon a two-year delay in c o n s t r u c t i o n and a package o f b e n e f i t s f o r t h e p e o p l e l i v i n g i n t h e Mackenzie V a l l e y . " ( N a t i v e Press 1981:4) "Georges Erasmus, p r e s i d e n t o f t h e Dene N a t i o n , called Munro's a n n o u n c e m e n t o f a c o n s t r u c t i o n d e l a y on t h e Norman W e l l s p i p e l i n e , "a g i a n t leap forward....This i s a very significant, positive decision f o r the North. The d e l a y a n d c o n d i t i o n s f o r c o n s t r u c t i o n w i l l mean m a j o r b e n e f i t s f o r a l l N o r t h e r n e r s . " (News N o r t h 1 9 8 1 : 5 . ) The native emphasizing Minister's The subject speech of was a s u b j e c t and M r . Munro of this or within a monitoring that b r i e f i n g meeting package that that of the s p e c i a l was a s u b j e c t were t h e Norman W e l l s material i s mentioned brought held project to funding d i d not appear the background agency agency i n meetings with i n favour he h a d p r e v i o u s l y The m o n i t o r i n g involvement also reacted a component the panel. leaders mainly before of anywhere given by Mr. 1981, within the press. Erasmus. t h e Norman W e l l s discuss the native h e l d the morning of t h e approval to d i s c u s s i o n between i n May, package, It E.A.R.P. the Dene associations' and p e r h a p s i n the announcement. " M u n r o ' s announcement a l s o i n c l u d e d t h e development o f a m o n i t o r i n g agency w h i c h w i l l s t u d y s o c i a l , e c o n o m i c and e n v i r o n m e n t a l impacts of the p i p e l i n e c o n s t r u c t i o n . E r a s m u s s a i d t h e two y e a r d e l a y w i l l allow for a monitoring agency "that has teeth" to make recommendations about the c o n s t r u c t i o n . He s a i d he w a n t s the agency to "modify North 1981:5). as much as 47 - p o s s i b l e unnecessary dangers." (News " B o t h Erasmus and B o u r q u e noted t h a t an i m p o r t a n t part of the conditions for approval was t h e establishment of a monitoring a g e n c y " w h i c h w i l l e n s u r e t h e p r o j e c t i s c a r r i e d o u t w i t h o u t undue environmental damage and in a manner that will protect our interests." "We want Erasmus. to make s u r e the monitoring agency has teeth in Both l e a d e r s a l s o h a i l e d t h e p r o v i s i o n of community development programs, c a l l i n g i t a " b r e a k t h r o u g h . " it," and said social "To o u r k n o w l e d g e , t h i s i s t h e f i r s t t i m e a d e c i s i o n had b e e n made to deal with the social consequences of development prior to development a c t u a l l y g e t t i n g underway. It's a s o u n d d e c i s i o n and s h o u l d be i n c o r p o r a t e d as p a r t o f t h e a p p r o a c h t o a n y development." (Native Press 1981:20). In a February, members f o r the the powers". (Irving These points that are 1985-1987 Impact I "immediate "establishment announcement interview t h e Dene N a t i o n , Dene e x p e c t e d and 1985 Kate learned that implementation of a monitoring and Gorman the community reiterated Proposal - with 1981). The advisory in Norman the Irving with of the that would would summary Wells P i p e l i n e Gorman, of the and s o c i a l understood committee executive Marg approval community agency Dene and at have the report of the staff project, programs" regulatory time to of the "Dene Project.": "Federal a p p r o v a l f o r t h e Norman W e l l s P r o j e c t was c o n d i t i o n a l . The c o n d i t i o n s i n c l u d e d a c o m p r e h e n s i v e p a c k a g e o f v a r i o u s p r o g r a m s t o t a l l i n g more t h a n $20 m i l l i o n t o e n s u r e m e a n i n g f u l involvement, j o b s and b e n e f i c i a l e x p e r i e n c e f o r n a t i v e p e o p l e . Other c o n d i t i o n s set by then Indian and Northern Affairs Minister John Munro included: a two y e a r d e l a y s o n e g o t i a t i o n s f o r a s h a r e o f r e v e n u e s be s e t t l e d as p a r t o f t h e Dene l a n d c l a i m s n e g o t i a t i o n s ; could the Dene. Nation c r e a t i o n of business massive t r a i n i n g programs; 48 - enterprises, awarding of contracts and creation of a monitoring agency w i t h broad-based northern p a r t i c i p a t i o n s o t h a t undue e n v i r o n m e n t a l damage was a v o i d e d and n a t i v e i n t e r e s t s w e r e p r o t e c t e d ; and immediate launching of community and social development programs w e l l b e f o r e c o n s t r u c t i o n s t a r t e d . " (Dene N a t i o n 1 9 8 5 : 1 ) . These project with the Also 1981 of the perceptions process and provide are relevant implementation of of relevance to e d i t i o n of the some o b s e r v e r s Norman W e l l s at the the this frame to the time later impact funding section Native Press that the within of the are give which these actors c o n s i d e r a t i o n s of viewed satisfaction package. two quotations another announcement from the i n d i c a t i o n of concerning the August the 14, feelings approval project: " E d i t o r i a l of N a t i v e P r e s s , August "Pipeline victory? Only time w i l l the 14, 1984 tell. The f e d e r a l g o v e r n m e n t d e c i s i o n t o p u t t h e Norman W e l l s p i p e l i n e on ' h o l d ' f o r two y e a r s , w i t h some p r o v i s i o n f o r n a t i v e p a r t i c i p a t i o n i n t h e p l a n n i n g and i m p l e m e n t a t i o n o f t h e p i p e l i n e h a s b e e n v i e w e d as a v i c t o r y by most n a t i v e l e a d e r s . T h i s may o r may n o t be t r u e . The r e a l v e r d i c t w i l l come s o m e t i m e i n t h e n e x t 24 m o n t h s . And t h e r e i s no q u e s t i o n t h a t t h e n a t i v e p e o p l e a r e now l o o k i n g a t a f i r m d e a d l i n e f o r c o m p l e t i o n o f t h e i r a b o r i g i n a l r i g h t s n e g o t i a t i o n b e c a u s e I n d i a n and N o r t h e r n Affairs M i n i s t e r J o h n M u n r o ' s a n n o u n c e m e n t o f two w e e k s ago l e f t no d o u b t t h a t when t h e two y e a r p e r i o d i s up t h e p i p e l i n e g o e s a h e a d . And w h i l e n a t i v e and c o m m u n i t y r e p r e s e n t a t i v e s w i l l h a v e an " a d v i s o r y " r o l e i n M u n r o ' s own w o r d s , t h e d e c i s i o n - m a k i n g a u t h o r i t y remains with the f e d e r a l government." (Native Press 1981:1). " S i n c e F e b r u a r y and M a r c h o f l a s t y e a r , n a t i v e g r o u p s , f e d e r a l and t e r r i t o r i a l g o v e r n m e n t s as w e l l as p r i v a t e e n t e r p r i s e h a v e a r g u e d over and negotiated the controversial Norman Wells pipeline project. Until now, t h e t e r r i t o r i e s h a v e b e e n c r i t i c a l of the of - 49 - p r o p o s a l , e x p r e s s i n g f e a r s o f d e t r i m e n t a l s o c i o - e c o n o m i c impact and insubstantial financial benefits. Now w i t h t h e F e d e r a l Cabinet's d e c i s i o n t o approve t h e p i p e l i n e p r o j e c t w i t h p r o m i s e s o f a two y e a r d e l a y , t h e a n i m o s i t y t o w a r d s t h e p r o j e c t has a b a t e d and n a t i v e and t e r r i t o r i a l g o v e r n m e n t leaders are scrambling t o prepare f o r and b e n e f i t f r o m t h e p r o j e c t . " (Native Press 1981:5). The announcement official project 2. and relevant to the federal actors government period of time from construction in January, meaningful planning" actors during this became and i n p l a n s involved preparing in f o r the 3 1 j 1982 more s p e c i f i c material of actions period project 1981:1) and will should events give will because they an to the documentation. a r e most place. the of first, Relevant what actors for this to These was followed i n i t i a t i v e s that government. A relevant A discussion of relevant c l o s e l y connected review. "effective take indication be d i s c u s s e d a s s o c i a t i o n s and t h e f e d e r a l i n i t i a t i v e s under t h e commencement involving c o n c e r n i n g t h e two i m p a c t f u n d i n g complete a r e t h e two n a t i v e until was events in the analysis of e f f e c t i v e n e s s . perceptions two s t u d y announcement 1983 i s t h e d e l a y p e r i o d d u r i n g w h i c h , (D.I.A.N.D. time General be u s e d the approval documentation accomplished. chosen then start-up. chronological to the T h e D e l a y P e r i o d - J u l y 3 0 , 1981 - December The of responses made, by are actor thesis actors are the implementation of the a) General As will of the Norman that approval Wells that Project Coordination--Office, is Coordination Office Office's of-Selected- Issues hereafter called a project undertaken (D.I.A.N.D. The information, be a p p o i n t i n g associations manner." appointed. Mid-Project-Evaluation release planning and n a t i v e effective was press he w o u l d detailed agencies most coordinator the announced ensure government in Events part D.I.A.N.D. 50 - and t h a t was of coordinator, "who conjunction with are allocated In 1981, created mandate Minister resources 1981:4). Related the in the as August and an described interim in Mid-Project • Evaluation, "(1) Coordination o f government regulation o f t h e Norman Wells Project and o f incremental government programming f o r the project, including administering special project-related f e d e r a l f u n d s o f up t o $ 2 1 . 4 m i l l i o n . (2) Oversee federal performance and company commitments to e n v i r o n m e n t a l and s o c i o - e c o n o m i c o b j e c t i v e s o f t h e p r o j e c t . " ( I n t e r Group C o n s u l t i n g Economists L t d . 1 9 8 4 : 5 4 ) . achievement o f t h i s mandate Secure co-operation departments/agencies and co-ordination efforts. the t o t h e Norman W e l l s - P r o j e c t is follows: The the necessitates the following a c t i v i t i e s : - from relevant government the G.N.W.T to participate in E s t a b l i s h and m a i n t a i n m e c h a n i s m s t o f a c i l i t a t e : e x c h a n g e o f i n f o r m a t i o n among r e l e v a n t g o v e r n m e n t (2) t h e i d e n t i f i c a t i o n o f i m p a c t s a n d r e s o l u t i o n affecting the project that may result from activites. (1) regular g r o u p s , and of problems regulatory as - 51 - Administer and m o n i t o r the special federal funding. This includes preparing Treasury Board submissions, contribution a g r e e m e n t s a n d o b t a i n i n g t h e n e c e s s a r y r e p o r t i n g on t h e u s e o f funds from t h e r e c i p i e n t s . Liaise with, a d v i s e and b r i n g t o g e t h e r as needed government agencies, l o c a l g r o u p s and p r o p o n e n t s t o d i s c u s s a n d , where p o s s i b l e , r e s o l v e c o n c e r n s about p r o j e c t r e l a t e d programs. Prepare and disseminate information about the g o v e r n m e n t ' s i n v o l v e m e n t i n t h e Norman W e l l s p r o j e c t . Group C o n s u l t i n g E c o n o m i s t s 1984; D . I . A . N . D 1 9 8 4 ) . The Office's suasion with and " a n ' o p e n - d o o r ' primary 1981:21). Cabinet until coordination interests No s p e c i a l for the and/or responsible the other commuted the Office's Ottawa. was s t i l l This status Norman W e l l s S u p p o r t that main responsible, continued Group much o f t h e f i r s t s i x months on e s t a b l i s h i n g f u n c t i o n s was no r i g i d concept established 1985). as The established an and g e t t i n g people o f w h a t was t o be d o n e , office impact with to a year other before funding pipeline procedures departments, of From two August people Ottawa and unit 1983. still in impact Yellowknife The interim operated out of M r s . S . Meldrum o f t h e the O f f i c e ' s in place. i n J u l y 1985, work She s t a t e d there construction were 1981, In t h e s p r i n g i n an i n t e r v i e w but that by based the in Yellowknife. January of recalled (D.I.A.N.D D.I.A.N.D. of operation. and a s u p p o r t i n Ottawa, of moral and a g e n c i e s administering between commenced until of for and m e c h a n i s m s operation departments the Minister consisted extensively methods cooperation, responsibilities. was funding, coordinator to Office person by responsibilities." this staff 1982 t h e O f f i c e ' s federal 1982, One of was g i v e n Office's Ottawa. establishing achieved regulatory authority of is approach between the Coordination spring function federal (Inter that there was a p u s h t o be started. initiated, and t h e c o o r d i n a t i o n was f o c u s e d (Meldrum contacts aspects were were set in motion. Norman As Advisory As 1982, has been was to Dene in the interim coordinator which contacts to December 2, 1981 and Indian the to in at Metis the proposal, p l a c e d on t h e i r Wells met for established the for establishing Metis Leadership Affairs. first the the time in Community question A paper a took a of result for Leadership place these a position for Dene Nation's of all the week of later held on meetings, paper their the Meeting was an requests the during meeting of to however, support follow-up prepared summary of and initiated their same t i m e , before meeting As with the the anticipated functions They had At (Appendix position involvement monitoring Project Simpson. Association the the This executive and 1981. Yellowknife. Fort and programs. putting chiefs. 27, to planning Norman and N o r t h e r n According Dene as S e p t e m b e r community 23 the development as e a r l y November funding the Committee initiated their committed involvement of he documented, and s o c i a l funding Nation latter, Coordinating and start community Nation the - Committee. immediate the of Wells Project December, for examples 52 the the Dene Minister C) the Dene contained Norman W e l l s Nation's conditions 1985-1987 that the Project: "The Dene l e a d e r s i n t u r n a t t a c h e d c o n d i t i o n s t o t h e i r agreement t h a t t h e Norman W e l l s P r o j e c t c o u l d go a h e a d , and t h e s e c o n d i t i o n s w e r e c o m m u n i c a t e d t o t h e G o v e r n m e n t o f C a n a d a by t h e Dene N a t i o n and t h e M e t i s A s s o c i a t i o n . The Dene c a l l e d f o r : s a t i s f a c t o r y settlement of the ownership of oil and l a n d s u s e d by t h e P r o j e c t b e f o r e two-year delay; t h e Norman W e l l s t h e end o f the impact Dene - 53 - protection and, where environment, with total Government o f Canada; possible, improvement responsibility assumed of by the the c r e a t i o n o f a m o n i t o r i n g a g e n c y , w i t h Dene p a r t i c i p a t i o n a n d f u n d i n g p r o v i d e d t o t h e Dene b y t h e G o v e r n m e n t o f Canada, w h i c h would have a u t h o r i t y t o f o r c e c o m p l i a n c e w i t h t h e r u l e s , r e g u l a t i o n s a n d a g r e e m e n t s t o m i n i m i z e i m p a c t s and p r o t e c t o r i m p r o v e t h e e n v i r o n m e n t ; and p r o v i s i o n o f f u n d i n g b a s e d on a g r e e m e n t s w i t h t h e of t h e Northwest T e r r i t o r i e s . " (Dene N a t i o n 1 9 8 5 : 2 ) In addition Appendix native the to C) l i s t s the conditions a number associations initiatives and t h e G . N . W . T . is documented to f o r the P r o j e c t ' s that t h e paper The Project with In a t t h e end o f during initiating addition work began Drilling to Venture, commenced of to on t h e J o i n t representatives Needs from that regarding business residents the I and of its structure was s e n t spoke to to the believed t h e Norman with the Norman Wells negotiating Committee. the of associated with participation Nation, with are the subject contract Assessment Dene work associated a n d on t h e l e g a l i t i e s communities, that for a a c c e s s i n g t h e impact t h e programs programs information community Association's concerned with and a d m i n i s t e r i n g t h e two m a j o r Each direction document staff t h e two funding. describes (see acknowledged. and t h e M e t i s 1982 was m a i n l y a paper This paper r e a c h e d between by the position management. position t h e impact accompanied The Dene N a t i o n formally on n e g o t i a t i o n communicated interested 1981. was n e v e r Dene N a t i o n ' s section of the had been regarding and The t h i r d Minister above, of decisions that distribution. be e m p l o y e d outlined Government with This Metis Wells funds these this the funds. thesis, Shehtah Project a i d was g i v e n the G.N.W.T. committee Association and was to was consisted and the - 54 G.N.W.T. Its particularly to natives, recommend its work b) Impact purpose for effective in March, Funding was to identify employment ways to training related deliver to this the needs of Norman W e l l s training. The northerners, project committee and began 1982. Initiatives 1981/82 F u n d i n g Proposals "If we a r e t o make p r o p e r u s e " o f t h e t i m e a v a i l a b l e t o prepare o u r s e l v e s we m u s t s t a r t i m m e d i a t e l y . The M e t i s / D e n e do n o t have adequate r e s o u r c e s . We n e e d i m m e d i a t e f u n d i n g i n t h e amount of f i v e h u n d r e d t h o u s a n d d o l l a r s s o t h a t we c a n b e g i n t o p r e p a r e o u r p l a n s and p r o p o s a l s f o r f u r t h e r f u n d i n g . " (Dene N a t i o n and M e t i s Association 1981b:3). This Metis quotation in i s taken September designated for organizations aboriginal planning felt This support should rights, (monitoring), development 1981. housing, from be a funding proposal and to through prepared access The some areas planning development, community and c r i m i n a l j u s t i c e . is monitoring. addressed economic proposal information, by of the Dene the that funding the processes environmental and native included; protection communication, The p r o p o s a l c o n c l u d e d : " I f we a r e t o p a r t i c i p a t e i n t h i s manner we m u s t b e g i n t o p l a n and o r g a n i z e o u r s e l v e s now. The p r o v i s i o n , immediately of p l a n n i n g f u n d s w i l l make i t p o s s i b l e . " (Dene N a t i o n and M e t i s A s s o c i a t i o n 1981b:13) social The 1981 Dene to March convening of fieldworker initiation Dene and 31, a 1982, specific in the the $500,000 be activities to Dene leadership meeting, program, studies Meeting that - the extension Leadership participate proposed general and of Metis 55 carried to discuss .The the hiring on p r o j e c t - r e l a t e d was project. the be the fieldwork of from out November included establishment specialists issues. issue and used The of whether extension the of and purpose or program's 1, a the of the not to purpose was: "a) b) To l e a r n a b o u t a l l a s p e c t s on Dene p a r t i c i p a t i o n . To work w i t h communities preparing to deal of the in the with identifying contracts potential . d) and e c o n o m i c in decisions the impacts community related related to Dene N a t i o n / M e t i s To b e g i n t h e p r o c e s s o f o r g a n i z i n g c o m m u n i t i e s i n a way t h a t w i l l m a x i m i z e b e n e f i t s to the communities to potential Association to p a r t i c i p a t e people in the To work w i t h o t h e r f i e l d w o r k e r s , C h i e f s and Dene Nation/Metis Association Executives to formulate t h e b a s i s o f an o v e r a l l plan for Dene participation." (Dene Nation and Metis A s s o c i a t i o n 1981b:2) The specialists environmental look including of: contractors e x p l a i n i n g other aspects of i n v o l v e m e n t as t h e s e e v o l v e c) areas social i d e n t i f y i n g s k i l l s present employment opportunities project at studies, economic developments. were to be from accounting, institutions and the major bookkeeping appropriate areas and of finance, law. technology The management, studies related to were to energy The a Community resolution made from April 6 This proposal one full-time coordinators rationale, community in a Leadership 10, calls 1981, the a spring four-member of the proposal that prior had been to the o f 38 c o m m u n i t y headquarters of operation portion Meeting f o r the h i r i n g national and Development coordinator, workshop f o r t h e program in Yellowknife approval announcement. development fieldworkers, five team. held was b a s e d on The full time proposal regional includes a and a j o b d e s c r i p t i o n f o r t h e fieldworkers. that November to methods Elements funds and S o c i a l 56 - of t h i s t h e Dene 1981. proposal Nation The InterGroup Consulting were incorporated and M e t i s Mid-ProjectEconomists, into Association Evaluation states the revised requests submitted prepared to for D.I.A.N.D. D.I.A.N.D. that: "....these requests represented the needs of p r o g r a m s f o r w h i c h t h e i m p a c t f u n d i n g was i n t e n d e d : three separate 1. P l a n n i n g and m o n i t o r i n g s u p p o r t - - t o c o n d u c t r e s e a r c h and c o n s u l t a t i o n a c t i v i t i e s o f r e l e v a n c e t o t h e Dene and M e t i s people in planning f o r t h e Norman Wells Project; these activities i n c l u d e p r e p a r i n g t o take advantage of business o p p o r t u n i t i e s a n d d e v e l o p i n g an i m p a c t m o n i t o r i n g s y s t e m . 2. Community and Social Development — to conduct a community-based p l a n n i n g e x e r c i s e t o determine the d e t a i l s of a community and s o c i a l development program, incorporating a proposed n a t i v e f i e l d w o r k e r component. (The p r o p o s a l a c t u a l l y r e q u e s t e d funds f o r 20-25 f i e l d w o r k e r s p l u s a small group o f h e a d q u a r t e r s s t a f f r e s p o n s i b l e f o r workshop development. The f i e l d w o r k e r s were t o be r e s p o n s i b l e f o r a s s i s t i n g c o m m u n i t i e s i n t h e i d e n t i f i c a t i o n o f p r o b l e m s and i n t h e r e s o l u t i o n o f t h e s e p r o b l e m s where p o s s i b l e ) . 3. T r a i n i n g — t o c o n d u c t r e s e a r c h a n d c o n s u l t a t i o n on n o r t h e r n t r a i n i n g n e e d s r e l a t e d t o t h e Norman W e l l s p r o j e c t w i t h a v i e w to identifying a strategy f o r use of t h e remaining impact funds targeted for training." (Inter Group Consulting Economists 1984:41) for in by The approval Appendix D for contribution process description agreements to be approximately two months Dene and M e t i s other the executed organizations approval, but the Treasury The contracts) by the had for and the p i p e l i n e p r o j e c t , of project, signed that than they expenditure had in (see process). The An of on t h e planned, months. mid-March month. i n i t i a t e d some work later Social and t o make preparation of the four authorization were end granted took 1982, extension the of funds. programs and w i t h The prior to funds from consult with budgets. Outcomes Community communities funds Board sources within t h e i r organization 1981/82 Program the of was - access (formal theoretically receiving to 57 to arrangements to reports Development contract for with funds funding a used to and p r o g r a m s associated with Dene C o u n c i l s and M e t i s o u t l i n i n g community develop were needs fieldworker Locals for and c o n c e r n s a s s o c i a t e d training program, the with health, and communication a c t i v i t i e s . The related Planning to options, the to on prepare small the Metis expenses, Locals, to discuss, futures, to the organize administration Metis business venture fund Monitoring contribution aid seminar and funds agreements, were to used fund in to analyses survey planning, general to of fund i n i t i a t e planning contracts with November Dene L e a d e r s h i p and plan activities. for the project, pay studies of Association conduct to Meeting and to for negotiations alternate planning, existing to economic convene programs, negotiations and Dene C o u n c i l s and and r e g i o n a l fund a to joint Metis meetings communications to and One that major two programs compiled the r e s u l t s of the s t u d i e s done in eighteen Development 1982", and 2) and Planning June 21, These the communities that The people of One would reports to by t h e assess be r e l a t e d t o identified on the following 4. housing i s a s o c i a l 5. there about 6. e d u c a t i o n and t r a i n i n g a r e 7. there uncoordinated." of Association a as (Metis number of i s the major and e c o n o m i c and N a t i o n July Development the Valley N.W.T. to needs in potential major 23, Norman concerns Wells to the part a concern delivery social headquarters the economy problem problem and of and as w e l l requiring regarding funds 1982a:6). communities of communication needed concerns s t i l l Association the Social Mackenzie and i s a s e r i o u s lack of information t h e Norman W e l l s P r o j e c t and and Dene communities: a l c o h o l and d r u g a b u s e timing to reports and/or Office, p o s s i b l e impacts of 3. "The Nation present r e n e w a b l e r e s o u r c e s a r e an i m p o r t a n t with Locals M e t i s A s s o c i a t i o n of 2. concludes two Community Funding problems w i t h business p a r t i c i p a t i o n are s o c i a l of Community/Social 1. report Metis on Dene Funding, Report s t u d i e s were preparation by t h e through Submitted the Mackenzie V a l l e y processes. behalf 1982. the "Reports Impact 1981/1982." April-May was (1) Submitted Wells Project Funds, 1982. Project. communities. Planning. "Norman Communities, of - the Councils output 58 the was This problem short, concern reflected as o f attention. some the f e d e r a l of funding unplanned was expressed criticism of government. and on the 1982/83 Funding The native Proposals organizations above-mentioned reports proposals. needs The community funding and development would communities. application and Evaluation, form issues requests basis for were operations. i n May o f interest encountered authorization information identified initiated up on t h e the the fieldworkers' follow These expected to a l l o c a t i o n s were programs 59 - future to become 1982, w i t h numerous in impact Requests stimulated processes. contained funding the for foci the for 1982-83 the expectation by t h e s u r v e y s difficulties According to the the that in the within Mid the Project these d i f f i c u l t i e s included: "the reorganization of the F i n a n c i a l Administration of D.I.A.N.D. tightening of funding policies within D.I.A.N.D., the lack of experience of the Coordination Officer with the Treasury Board a p p r o v a l p r o c e s s and t h e l a c k o f f a m i l i a r i t y o f T r e a s u r y Board w i t h the impact f u n d i n g program, t h e Dene and M e t i s may a l s o have c o n t r i b u t e d somewhat t o t h e d e l a y b y t r y i n g t o i n c l u d e i t e m s i n t h e i r p r o p o s a l t h a t were c o n t r o v e r s i a l . " ( I n t e r Group C o n s u l t i n g Economists 1984:44) These requests until the difficulties f o r planning created support October 2 8 , 1982. current received, fiscal requests year a situation and m o n i t o r i n g As i t was o b v i o u s , would f o r t h e 83/84 be left fiscal that not being at that by year resulted the were in ready time, time that funds submitted the for submission little were with funding time of actually the 82/83 requests. The activities 1982/83 f i s c a l year proposed to and e x t e n d e d be undertaken during 1983/84 during what included: remained of the - 60 t h e f u n d s f o r t h e M e t i s A s s o c i a t i o n w o u l d be u s e d t o s a l a r y , b e n e f i t s and t r a v e l c o s t s o f o n e s t a f f member to a s s i s t M e t i s L o c a l s with p l a n n i n g the funds pay t h e who was f o r t h e Dene w o u l d be u s e d f o r : j o i n t venture with Esso Resources negotiations of Dene participation in Norman Wells resources community and r e g i o n a l p a r t i c i p a t i o n - r e g i o n a l p l a n n i n g and c o o r d i n a t i o n o f c o m m u n i t y p l a n n i n g r e . b u s i n e s s and employment a d m i n i s t r a t i o n After the Association Metis administration. paid and o u t s i d e out D.I.A.N.D. of agencies. (Metis and communities 1982:4). research social and development activities, workers, development project a cross fieldworkers. its funds. clear that encourage planning 1982b:3). plans Metis for the wished i n a c c o u n t i n g and the staff position follow-up through a n d ; communicate w i t h Association the The M e t i s problems activities: development on the development association locals The same a c t i v i t i e s on O c t o b e r that would pressures funding projects, cultural request were submitted 27, 1982 p r o p o s e d to "build the capacity for and p r o b l e m s was t o a c c o m p l i s h t h i s pilot outlined to avoid it D.I.A.N.D., year. Nation with to and m o n i t o r i n g makes level, social t o cope The p r o j e c t that following 1981-82; b y t h e Dene community support the a t t h e community community submitted request proposal proposed f o r t h e 83/84 f i s c a l The was t o them s e p a r a t e l y carry surveys corporations separate The M e t i s would community a request of the planning the funds requested Nation submitted portion t o have Dene goal through a community conference, we f a c e . " and a establish network a individuals (Dene community development to Nation s t u d y and workshop, of two community The Metis development Association funds development. that This was request to for provide The Officers, 82/83 a and 8 3 / 8 4 community community-based program p r o g r a m was t o be c a r r i e d o u t b y i n d i v i d u a l s w e r e c r e a t e d b a s e d on t h e i n p u t 1982. 61 positions were; 1 received in the surveys Community Services social of social in positions completed Coordinator, 7 f i e l d w o r k e r s and 1 C o m m u n i c a t i o n s O f f i c e r . and 2 i n May Liaison F u n d s w e r e a l s o t o be a v a i l a b l e f o r s h o r t term c o n t r a c t s and p r o j e c t s . c) P e r c e p t i o n s and/or The tone following o f t h e comments the victorious. thin. community after approval By An Observations the initial the approval b y t h e Dene announcement end o f confusion and s o c i a l made the is delay regarding development and M e t i s optimistic, period the programs the immediately enthusiastic optimism designation ($4.25 leaders million) of and almost a little wears the funding is settled for shortly announcement: "Meetings i n Ottawa i n the f a l l o f 1981 r e s u l t e d i n a d e c i s i o n ( c o n f i r m e d by v a r i o u s p a r t i e s a t t h e m e e t i n g s and l a t e r i n w r i t i n g ) t h a t M r . Munro h a d a g r e e d t o p r o v i d e t h e $ 4 . 2 5 m i l l i o n w h i c h h a d b e e n a l l o t t e d f o r c o m m u n i t y and s o c i a l d e v e l o p m e n t , d i r e c t l y t o t h e Dene a n d M e t i s . A c o n d i t i o n o f t h i s f u n d i n g was t h a t t h e Dene a n d M e t i s t a k e p a r t i n a S t e e r i n g Committee w i t h o f f i c i a l s from the G.N.W.T. i n order to avoid d u p l i c a t i o n of G.N.W.T. s e r v i c e s and activities." (G.N.W.T. 1982:1) The M e t i s , regarding Dene are the Nation Dene a n d t h e G . N . W . T . allocation of "Position two m a j o r Paper" proposals that the of were a b l e impact t o a g r e e on a number funds. December are contained 7, This 1981. in this is illustrated (see Appendix paper of that issues in the C) There appear to get lost over the period 'monitoring paper. s e t o u t by It does or i n t h e newspaper not appear appear in funding the would "Position have D.I.A.N.D., Dene's that requests Paper", of the press during 1982. proposed an concepts, delay in discontent the was f e l t as I to of 11 member from a limited construction Councils offices of and t h e toward year of the project. Metis funding Locals the federal would The government. in the position paper. release, does contained committee associations be not that and t h e ignored during become important caused some by 1982. i n the Project. impact funds degree during the when n o t be r e c e i v e d their press structure to in the conditions organizations discuss, leaders The c o n c e p t appears discontent toward outlined management b u t was a s e r i o u s c o n c e r n b y t h e e n d o f t h e y e a r the second their the native also will the in conference. t h e Norman W e l l s receipt i s the t h e announcement t o by t h e n a t i v e however, issues i s one o f T h e management concept and i s n o t r e f e r r e d these structure' and i t documents, This of organizations representation l a t e r concerns about The 1982, accounts first i s d i s c u s s e d by t h e n a t i v e announcement the native government. of these This concept in D.I.A.N.D. had s t r o n g Territorial Both agency The i s t h e 'management reactions to the approval agreement in discussion. the second The m o n i t o r i n g their for agency', under 62 - was head first offices quarter i t became before felt discontent. both of obvious the s t a r t of by the Dene and by the head 3. First-Construction a) General of the a r t i f i c i a l commenced i n J a n u a r y time Year - - J a n u a r y 1983. Coordinator Project. Mr. interim 1 , • 1983 - December-31j Mar of During the t h i s month Norman was e x p e c t e d coordinator i s l a n d s and p i p e l i n e John Wells to build Scullion Oilfield "on and the Expansion fine the a c t i v i t i e s related to the P r o j e c t , of negative impacts coordinating the Immigration and information Coordinator was a field three full time and a s e c r e t a r y . in Fort l o c a t e d i n Norman The Wells Federal Coordinating representatives from f o r coordinating the measures of mitigation for G.N.W.T., the Canada Employment and Regional - Committee Later and therefore, for establishing for became Coordination the time Office, Federal communicating responsible Office, Coordinator, a Coordination Officer in the year which the for then Deputy was l o c a t e d a second f i e l d officer Wells. Project Committee Simpson. coordinating benefits, Project At t h i s Support project Mar, staff for by of Advisory Mr. laid Wells responsible government D.I.A.N.D. Community Norman of Pipeline enhancement the the P r o j e c t . the office the of and t h e the about of for activities with administering at and Commission liaising consisted and i m p l e m e n t a t i o n and foundation Norman government activities M a r became clearing J o h n Mar was a p p o i n t e d a s 1983:1). regulatory Mr. also, right-of-way Group...."(D.I.A.N.D. planning 1983 Events Construction full 63 - Coordinator meetings the continued w h i c h met q u a r t e r l y , proponent companies, the to chair This native the Project committee included associations, the G.N.W.T., the National Administration Commission, (C.E.I.C.). which proponent companies. liaising as Energy Board, (C.O.G.L.A.) committee with was of D.I.A.N.D. was to As affected needs comprised of b y t h e Norman are given full June The s t u d y training i n areas wildlife and l a n d also Employment initiated representatives above, Advisory to Mr. Mar organize members to Wells Project, a of was Committee. f o r the f i r s t to of the responsible for Mr. committee. to the It the be h e l d . communities (D.I.A.N.D. management and 1982, by Lands Immigration G.N.W.T. be be a p p o i n t e d meeting and the During this a n d Gas smaller a n d was " t o e n s u r e consideration." took until Minister The in local 1981:4). Scullion, of Committee the N.W.T. i n t e r e s t s and This committee basis. 1983, the J o i n t report. with stated t h e Canada O i l Canada representatives a l s o m e e t s on a q u a r t e r l y In the of had begun July D.I.A.N.D., Mar the committee and u n t i l be Mr. t h e Community 1983 f o r and composed interim coordinator May 64 - took over Needs Assessment a year s u c h as e d u c a t i o n , management as w e l l to complete, health, as Committee in submitted and t h e social report services, the t e c h n i c a l its final advocates communications, skills associated p i p e l i n e c o n s t r u c t i o n and m a i n t e n a n c e . In September, Dene N a t i o n , At the Kakfwi of Shehtah Drilling, the joint venture project between the t h e M e t i s A s s o c i a t i o n and E s s o R e s o u r c e s was l a u n c h e d . November the community-based 29, Dene 1983 Project Nation put Environmental Coordinating forward Protection a Working Committee proposal Group. to The meeting, Steve establish Dene a proposed - 65 that the monitoring each Group's reports, other's environmental and functions activities Impact The latest funds at Committee as s a y i n g organizations Funding The The the of on was r e c e i v e d f a v o u r a b l y for to start 1982, d i d not a r r i v e for the Metis informed of monitoring by t h e and Committee the Coordinating February, 1983, that "there has been the Committee the o r i g i n a l October funds very at the summer, of 1983. Kate a Project in little the done or at Irving, Coordinating minutes of by t h e two the native 1983). separate The a g r e e m e n t s agreement March in 1983/84 signed and S o c i a l D e v e l o p m e n t and 83/84 until was r e p o r t e d (NWPCC 1982/83, Metis programs Association, in contribution 1982/83 hoped f o r these funds. Community are and the concept. P r o g r a m Outcomes and surveillance agencies information f o r the day f o l l o w i n g since last spring." Dene D.I.A.N.D. were time meeting distributing all Initiatives of that reviewing a l l monitoring The p r o p o s a l discuss that the f a l l working meeting Funding include that and was a r r a n g e d meeting to f u r t h e r b) ensuring effects. a meeting would contribution were s i g n e d on M a r c h 1 7 , P r o g r a m - Dene signed by D . I . A . N . D . describes only 1982 p r o p o s a l . agreements with 1983. Nation a n d t h e Dene t h e community Nation fieldworker The r e q u e s t e d b u d g e t for portion was c u t b y 4 0 % . - The Dene described Nation reallocated in this section. - 66 budget amounts to accomplish The program i n c l u d e d the activities training, coordination s u p e r v i s i o n r e s p o n s i b i l i t i e s f o r a g r o u p o f s t a f f t o be h o u s e d a t t h e and Nation o f f i c e , and t h e c o n t r a c t i n g o f management and s u p e r v i s i o n o f f i e l d w o r k e r s community band c o u n c i l s . Fieldworkers were t o be c h o s e n by t h e i n d i v i d u a l c o m m u n i t i e s and w e r e t o work on i s s u e s r e l e v a n t t o s p e c i f i c c o m m u n i t y In addition to 19 community Regional Coordinator develop workshops, fieldworker p o s i t i o n s were and prepare positions created. fieldworkers community The and environmental abuse, some workshops following were subjects the workshop for social development In of modern initiated Development 1983 addition over these world, a move program c e n t r e f o r community o f f i c e , and f o r p r i o r i z i n g c o m m u n i t y social i n May was t o look 3 to subjects to this workshop, the funding workshops; to period. social alcohol women train issues through and and and drug community establishment G r o u p and i n a Deh control also community responsible d e v e l o p m e n t i n t h e Dene base l i n e data development a c t i v i t i e s included study to These workshops r e s u l t e d i n the which Community u n i t was issue learning, child welfare, in communities, on Health Help L i n e , o f the Youth/Elders establishing a resources Plans held i n f i v e communities Dene c u l t u r e . The was members. the values of the Inuvik Mental development. held packages needs. surveys. Workshop p r o b l e m s , community traditional regional community were topics decision-making, Cho Development for 9 The head o f f i c e information i d e n t i f i e d i n t h e p r e v i o u s y e a r ' s community A 7 d a y Community to for Nation gathering. : the preparation a t a l t e r n a t i v e ways o f u t i l i z i n g of a social - 67 assistance funds at the individual and c o m m u n i t y welfare, drug and alcohol abuse, programs, community problem solving Nation health, management design, of education, the negotiations National with Office funding Dene out Planning communities Norman signed were basis. the signed The land resources workshops, sources and management corrections administration Project, and training child regarding Leadership prepare Dene March (Dene Nation projects two m a j o r Nation 1983 program themselves communities. the in and consultation and explore Development and M o n i t o r i n g to Dene between to justice and M o n i t o r i n g P r o g r a m - Dene Wells P r o j e c t . " by sessions, and Dene programs, assistance in preliminary sessions for Dene staff. Planning Support "The of level, recreation, communication Community implementation - and and i s c o n c e i v e d a s a means o f to respond 1983:1). Funds the funds i n i t i a t e d through were various were this recommendations Dene P l a n n i n g The to to band be the program allocated was according councils. allocated impact to deal with on studies impacts: Agency Dene C e n t r e o f T r a i n i n g and T e c h n o l o g y Dene F i n a n c i a l I n s t i t u t i o n Renewable Resource Development Non-Renewable Resource Development S m a l l - s c a l e B u s i n e s s and I n d u s t r y L e a d e r s h i p Development Women and Y o u t h D e v e l o p m e n t Lifelong Learning Community H e a l t h assisting impacts program i n c l u d e d : r e g i o n a l r e s o u r c e development compilation of Nation Development to of be the carried to contracts The contracts a quarterly ongoing e.g. 68 i n d i v i d u a l community - projects: F o r t Good Hope - c o m p e n s a t i o n f o r h u n t e r s and t r a p p e r s F o r t Simpson - r e s e a r c h p r o j e c t on s o c i a l and e c o n o m i c effects determining of major issues: business p a r t i c i p a t i o n renewable resources s o c i a l and h e a l t h i s s u e s housing communication b a r r i e r s e d u c a t i o n and t r a i n i n g other s o c i a l concerns Community The and S o c i a l D e v e l o p m e n t Community and received in Services Coordinator Yellowknife Fort and McPherson, Simpson, and March and projects some times 1983. for one in Fort were Fort Fort also part receiving the was 1985). to the end of Association which real affected Meldrum 1984 in the the stated Program blow March, i n i t i a t e a new a p p r o a c h The The accomplished e s p e c i a l l y At program. to in program and the second half f i e l d workers 1984-85 changed program. one in River from and Metis presidents three interview of were Development 1983. that the Fort the 1985 meant Inuvik, experienced Social in in contracts and had a bad t i m e program - staff were Community Short-term objectives the all Hay program a July a located Point, Community in 1983-84 officers Yellowknife. Board. and S o c i a l D e v e l o p m e n t deal Pine and funded; liaison the Mrs. a were for Community was the for 1982-83 fieldworkers Norman W e l l s , of continuity. Coordinator two seven officer Program's the positions Norman, Assocation for approval and year - Metis funds new Norman, Good H o p e , Executive during Development Several a Communications difficulty Association Social Program The not year. dismissed that the loss a of great (Meldrum in order Planning Support On June 6, and M o n i t o r i n g 1983, Projects Officer. problems identified i n the economic planning encourage communication development advantage within aspects of approaches their Association for of purpose of 1981-82 at the the the - - Metis in Association Association this reports, local to level Wells the hired position the Metis Norman experience Executive were as Metis and o u t s i d e to economic Priorities priorities The the 69 an was to provide and to Economic follow specific serve up business The world the to a channel of as Metis with assistance A s s o c i a t i o n membership Project. Planning on wished in fostering were defined business to take independent development. work o f and the Projects Board and Officer members of the Metis by t h e Metis Locals. The follows: "give practical planning assistance to local Metis b u s i n e s s e s and i n d i v i d u a l s i n s e c u r i n g o p p o r t u n i t i e s from t h e Norman W e l l s P r o j e c t e n c o u r a g e e c o n o m i c p l a n n i n g by t h e L o c a l s or r e g i o n a l development c o r p o r a t i o n s begin dealing development." The for Project contracts maintained departments. local Officer w i t h the other problems of (Metis Association 1984:3). assisted individuals and e s t a b l i s h i n g b u s i n e s s e s . contact The development with Project the Project Officer corporations. and He groups Funding Metis in and programs and business bidding opportunities relevant assisted and local planning, investigated proponents researched through in and government establishing opportunities were - 70 researched The and Project management Officer the toward Program Corporation. He development Throughout and the were 1983, 1983-84 that construction able start-up. Issues Related-to the be fiscal year, administration smoothly assisted through the native Dene b a n d not need communicated for transferred Locals to Metis management the of to the to the Metis proposals and basis. Officer Planning prepare Norman W e l l s i m p a c t training ongoing Project Locals. began Support to and Development for local Dene Nation funding. Observations Norman W e l l s P r o j e c t . Dene the also the was be d e l i v e r e d on a c o m p r e h e n s i v e , would and gathered identified co-ordinators Perceptions office end o f ensuring Monitoring c) information assistance to Toward work the councils, The to associations, delay set up According the-Norman in became particularly i n c r e a s i n g l y disenchanted r e c e i v i n g the the to planned-for the Wei 1s P r o j e c t the impact funds programs Mid-Project Coordination with the that the advance of meant in Evaluation of Selected Office: " S e v e r a l f i e l d w o r k e r c o o r d i n a t o r s w e r e h i r e d b u t none o f t h o s e who w o u l d be w o r k i n g i n t h e c o m m u n i t i e s c o u l d be h i r e d . They (the Dene) lost out on the opportunity to hire several of their p r e f e r r e d c a n d i d a t e s f o r t h e f i e l d w o r k e r p o s i t i o n s as t h e s e p e o p l e found other work in the interim. By d e l a y i n g m o s t of their activities from before to a f t e r the s t a r t of c o n s t r u c t i o n , the u s e f u l n e s s o f t h e p r o p o s e d a c t i v i t i e s was d i m i n i s h e d , s i n c e t h e y were not i n p l a c e t o d e a l w i t h t h e c o n s t r u c t i o n impacts from t h e beginning." ( I n t e r Group C o n s u l t i n g E c o n o m i s t s L t d . 1984:44) The minutes of show that the very dissatisfied of the Metis on Community and the f i r s t amount the with the Social hope their statements, spoke in of the and the the with (June the 1983 proposal Kakfwi proposal by the benefits for the D.I.A.N.D. 1982). submissions meetings. to The 1983, held stated that p r o c e s s had b e e n s o f a r the Coordination communities Office had he Coordinating that of the Kakfwi There actors Sea appears felt successful. were become that The in at the focus after approximately nine for In to the his that Dene opening they agency must was never 'negotiations about have been meeting some support and t h e r e was fully. the Norman gives that Wells Assessment some time. Mr. of Project Panel idea of performance project participating a there immediately feel as Committee Environmental Project Dene describes these meetings the Committee Committee monitoring t h e c o n c e p t more several about the Coordinating Beaufort delay of the the Irving frustrating. clear issue Kate Steering available The were p a r t i c u l a r l y when it place. t r a n s c r i p t s of be the monitoring. what to discuss the perceptions Coordinator, took of of meeting Coordinator funds. environmental the within t o meet of makes after package', December for because Dene p r o p o s a l a commitment meeting impact delay, would Committee Territorial frustration funding spent Coordinating r e c e i v i n g the Development had b e e n Steve this addressed that delay that November, presented and Project was s e e n as e x c e s s i v e and e x t r e m e l y At In 1983 representatives Association, a strong make February, native had b e e n months the the was on s c h e d u l e , meaningfully all parties public attitudes Mar, the made Federal coordinating and he and concerned that with said the the Project. of He r e c o g n i z e d Coordinator, (B.S.E.A.R.P. northern an commitment on coordination "overperception and preference. the part process. - as c o n c e r n s , h i s own 1983a:47), hiring 72 of the He the of benefits difficulty also that appointment accruing of emphasizes native "Without late from the the importance to doesn't position Norman maintaining associations it to a policy of a participate work." Wells" of strong in the (B.S.E.A.R.P. 1983a:47) The Beaufort regarding f r o m one the meetings delay intervenor in (D. indicated accessing Erickson) the that there impact was funds. expresses t h i s a The general concern following comment concern: " when y o u s a y y o u a r e g o i n g t o l e a r n f r o m t h e e x p e r i e n c e , we h a v e an e x a m p l e o f Norman W e l l s w h e r e t h e r e was a two y e a r d e l a y s o t h a t p e o p l e c o u l d be p r e p a r e d , and y e t we h a v e f r o m t h e G . N . W . T ' s s u b m i s s i o n s t h a t i t i s two y e a r s i n t o t h e p r o j e c t b e f o r e a n y o f t h e impact f u n d i n g i s r e c e i v e d . What b a s i s s h o u l d t h e p a n e l h a v e t o hope t h a t f o l l o w i n g D . I . A . N . D . as t h e c h i e f c o o r d i n a t o r , o r w h a t e v e r , f o r the Beaufort project that there is any reason to hope that things will go any different." (B.S.E.A.R.P. 1983a:99) In and that response Northern to Affairs this in question, the Mr. Northwest Beaubier, Director Territories p r e s e n t s h i s v i e w s on t h e a l l o c a t i o n o f the makes impact General a number of of Indian comments funds: " . . . . t h e r e had t o be a c o n s e n s u s and a w i l l t o d i r e c t t h a t money i n t h e most a p p r o p r i a t e w a y . And i t i s a c o m p l e x w o r l d t h a t we a r e dealing with, and t h e r e i s a v a r i e t y o f c o m p e t i n g i n t e r e s t s o u t t h e r e f o r t h a t money. And t h e d i s c u s s i o n s i n t e r m s o f how i t w o u l d be d i v i d e d , w h e r e i t w o u l d g o , how i t w o u l d be a p p l i e d w e r e v e r y d i f f i c u l t to conclude because of those competing i n t e r e s t s . . . . i t was a l w a y s t h e i n t e n t t o h a v e t h o s e ( f u n d s ) f l o w t h r o u g h normal p r o g r a m s i n any e v e n t . And i t ' s that cloud that division, I ( B . S . E . A . R . P . 1983a:100). It the is in Norman Erasmus's the Dene Wells presentations Project comments is are quoted made 73 - t h e d e s c r i p t i o n s and t h e think that lead to that strong very obvious. decisions delays." dissatisfaction Some of with Georges below: "Many o f y o u may be u n d e r t h e i m p r e s s i o n t h e Dene a r e h a p p y now, s i m p l y b e c a u s e some h a v e a f e w j o b s o r c o n t r a c t s , and t h a t we're i n v o l v e d i n a j o i n t v e n t u r e w i t h E s s o a t Norman W e l l s . I don't want t o p u r p o s e l y d i s i l l u s i o n a n y o f y o u , b u t l e t me a s s u r e y o u t h a t w e ' r e n o t a t a l l h a p p y w i t h t h e way t h e Norman W e l l s d e c i s i o n was made....We're not happy with the promises made by the g o v e r n m e n t a t t h e t i m e I . P . L . and E s s o w e r e g i v e n t h e g r e e n l i g h t and t h e n t w i s t e d b e y o n d r e c o g n i t i o n l a t e r . . . . w e h a v e t o h a v e a r e a l r o l e i n d e c i s i o n s , r a t h e r t h a n j u s t h o p i n g someone w i l l l i s t e n t o our a d v i c e . ....When t h e d e c i s i o n was m a d e , we a c c e p t e d t h e inevitable and t r i e d o u r b e s t t o make t h e p r o j e c t work f o r u s . In r e t u r n f o r our efforts t o make t h e p r o j e c t work f o r u s , we s e c u r e d c o n c e s s i o n s from the government, i n c l u d i n g a broad-based m o n i t o r i n g agency t h a t w o u l d be a t work p r i o r t o t h e b e g i n n i n g o f a n y w o r k , and c o n t i n u e d t i l l a f t e r t h e p i p e l i n e was c o m p l e t e d . . . .We g a v e i t o u r b e s t s h o t , but i t s not w o r k i n g . With few e x c e p t i o n s , a l l o f t h e p r o m i s e s o f b e n e f i t s f o r t h e Dene r e s u l t e d i n b e n e f i t s t o o t h e r s . . . . . O u r r o l e now i s m o n i t o r i n g , w h i c h means s i t t i n g on a p r o j e c t c o o r d i n a t i o n c o m m i t t e e c h a i r e d by t h e D e p a r t m e n t o f I n d i a n Affairs engineer. It is mainly a l i a i s o n body d e s i g n e d t o g r e a s e the wheels of industry. It can plead, but it has no powers." ( B . S . E . A . R . P . 1983b:29) In Erasmus answering a detailed the question problems specifically encountered related in trying to the to impact access the funds, Mr. funds and concluded: " S o t h e w h o l e c o n c e p t o f g i v i n g us p l a n n i n g d o l l a r s t o p l a n f o r p r o j e c t was c o m p l e t e l y d e s t r o y e d by t h a t w h o l e p r o c e s s . And the the - 74 - same t h i n g w i t h h a v i n g d o l l a r s t o c r e a t e p o s s i b l e s o c i a l programs in the communities, c o n t r o l l e d by communities t o a l l e v i a t e any damage. I mean t h e d o l l a r s a r e now s t a r t i n g t o c o m e . I mean we a r e now getting planning d o l l a r s to plan f o r the project. I mean, w e l l a n y b o d y h e r e c a n a s s e s s f o r t h e m s e l v e s what good t h a t w o u l d do when the project i s going full tilt at t h i s time." (B.S.E.A.R.P. 1983b:75) At the federal end of government associated with with then, actors were t h e Norman a s s o c i a t i o n s were frustrated 1983, a) General and task in meeting 1, to terms information monitoring determine monitoring Dene that that coordinating the G.N.W.T. the process and t h e t h e p r o c e s s a n d were J a n u a r y 1> - 1 9 8 4 - native particularly funds. December-31,-1984 planned funds to Project Joint reference were what of existing still needed to to the Project interim be upon Working that activities to Group. and s u r v e i l l a n c e agreed done in the its first and r e s o u r c e s ensure that an in place. Coordinating use t h e unexpended provide agreed The G r o u p to and D . I . A . N . D . Environmental monitoring program w a s , i n f a c t , reported they of the G.N.W.T. was d i s c u s s e d . was t h e i d e n t i f i c a t i o n The while 1984 t h e Dene met w i t h meeting, monitoring order Project o f t h e Norman W e l l s first effective 1984 Wells the o v e r a l l suggests Events On F e b r u a r y this pleased with evidence t h e p r o c e s s e s r e q u i r e d t o access the impact Second C o n s t r u c t i o n - Y e a i In available not at a l l s a t i s f i e d with 4. first the Committee balance financing for of on F e b r u a r y 2 9 , their their planning and community-based monitoring program Joint program. was to In provide Environmental as the initiatives with As p a r t of steps monitoring as a f i r s t regulatory to technical Working t h e y w o u l d be t a k i n g well addition the step in t r a i n i n g and o n g o i n g support At become of - skills Group. to authority 75 to the this time, involved t h i s meeting r e p o r t , the The establishment guaranteed representative the Dene on indicated through Dene of saw their the as monitoring a Dene M o n i t o r i n g aboriginal the that in socio-economic monitoring environment. the Dene research, rights Agency settlement. Dene s t a t e d : "....we are pleased with t h e news t h a t l e s s t h a n two w e e k s . a g o , we r e c e i v e d c o n f i r m a t i o n f r o m J o h n Mar t h a t t h e s t a r t - u p f u n d s w h i c h we had r e q u e s t e d f o r t h i s work l a s t O c t o b e r , w i l l f i n a l l y be f o r t h c o m i n g t o t h e Dene N a t i o n i n the near f u t u r e . While t h i s i n i t i a l f u n d i n g i s o n l y i n t e n d e d t o c a r r y us t o t h e end o f the current fiscal year, we t a k e it as a s i g n o f good faith on D . I . A . N . D . ' s p a r t and t r u s t t h a t t h e o n - g o i n g r e s o u r c e s n e c e s s a r y t o c a r r y o u r work t h r o u g h t h e n e x t two y e a r s w i l l be f o r t h c o m i n g . " (Dene N a t i o n 1 9 8 4 a : 1 ) The May 1984 'Information Coordinating Office Group indicates the which federal release contained that that be d r o p p e d 1984:1). the the At Project Dene r e p r e s e n t a t i v e information if funds for were Coordinating up on funding On plans brought prepared article budget. their would have t o an interim coordinator's stating Pipeline' the May by the for 25, Joint the 1984 monitoring not the Norman Environmental group the the Wells was Dene issued Norman same meeting issue t h e Dene was r e c e i v i n g f r o m t h e f e d e r a l and of the out a Wells referred government Working coming received immediately. Committee Project press Project (News same to of North month, differing agencies. The June receiving for 1, the training is not 1984-85 funding processes for the time article the funding the forced to plans sufficient in of people monitoring be quoted edition community environmental would 1984 as - Native the that also states to train both that put year's dropped. adequately, blaming Press Dene N a t i o n monitor were to 76 delay aside t h e i r construction. It was community the the Dene felt and plans Summer that people. the in there Mr. Mar government delay: "He s a i d t h e Dene N a t i o n was s l o w i n d e l i v e r i n g a c t u a l p r o p o s a l s and b u d g e t s f o r t h e i r p r o g r a m s . . . . "Some o f t h e s e p r o g r a m s h a v e t o be r e w o r k e d t o f i t t h e g u i d e l i n e s t h e ( f e d e r a l ) cabinet outlined f o r s p e n d i n g Norman W e l l s m o n e y . " " . (Native Press 1984:1). Treasury Funds during usual". The season, the Committee which Impact met the Project and the the funding half of and c o n t r a c t o r s Coordinating 1984 geared the s e c o n d week and worked programs are reported during t h i s - received. Funding and S o c i a l D e v e l o p m e n t devoted up f o r Committee organizations been were had Initiatives in of June. 1984. second native requests funding Funding Community the proponents impact funding b) approved were r e c e i v e d i n August Events for Board No the the to major Nation "business as construction Community issues period. Dene final implement Requests Program - to the relating Advisory programs to the - 77 The following and S o c i a l goals Development a r e i d e n t i f i e d f o r t h e Dene N a t i o n 1984-85 Community Program: "1. To p r o v i d e an o n g o i n g f o r m a l and i n f o r m a l f o r u m t h r o u g h w h i c h c o m m u n i t y and s o c i a l c o n c e r n s a r e r a i s e d and t h r o u g h w h i c h t h e c o m m u n i t y c a n work t o d e v e l o p i t s e l f . 2. To p r o v i d e r e s o u r c e s t o t h e c o m m u n i t y and work t o d e v e l o p i t s e l f . 3. To p r o v i d e support and encouragement t o t h e community making resource people available to them to assist a n a l y z i n g and s e e k i n g s o l u t i o n s t o community n e e d s . 4. To p r o v i d e f o r e x c h a n g e o f i n f o r m a t i o n w i t h i n t h e Dene N a t i o n , among t h e c o m m u n i t i e s and w i t h t h e Dene N a t i o n t h r o u g h oral, f a c e - t o - f a c e c o m m u n i c a t i o n s made p o s s i b l e b y w o r k s h o p t e a m and coordinators. 5. To b u i l d a s t r o n g e r Dene." (Dene N a t i o n with which to sense o f community i n t h e custom and M e t i s A s s o c i a t i o n 1 9 8 4 b ) . analyze of by in the The p r o g r a m i n c l u d e s t h r e e c o m p o n e n t s d e s i g n e d t o a c h i e v e t h e s e g o a l s : The a) Community b) Native Community Cultural Revival c) Native Community Interpretation proposal program costs submitted is accompanied required request to by a development budget effect these issues; P r o g r a m ; and Training that Program. identifies activities. the This staffing and proposal was i n January 1984. Planning Support In a c t i o n on s o c i a l January to a n d M o n i t o r i n g P r o g r a m - Dene 1984, re-allocate the Dene Nation a portion of submitted the impact Nation to D.I.A.N.D., funding its originally formal intended for training funds were the to be used to activities. proposed funds In to the Planning in the Norman W e l l s a - Support and development coordination establish 78 with the community-based of Monitoring monitoring Metis These capabilities Association monitoring Program. the program Dene and Nation specifically for Project. "The p u r p o s e o f t h e P r o g r a m w i l l be t o m o n i t o r a l l a s p e c t s o f t h e p r o j e c t d u r i n g t h e c o n s t r u c t i o n and s t a r t - u p p h a s e and t o develop an o n g o i n g m e c h a n i s m w i t h i n e a c h c o m m u n i t y f o r d e a l i n g w i t h any problems which might a f f e c t the community t h a t might a r i s e d u r i n g the life of the . p r o j e c t . The M o n i t o r i n g P r o g r a m w i l l have an environmental component and a s o c i o - e c o n o m i c c o m p o n e n t . " (Dene N a t i o n and M e t i s A s s o c i a t i o n 1 9 8 4 a ) . The and proposal socio-economic training, support state of actually and added t o Michael to need funds that to objectives gives for a contract time. for (N.B. the submission in A p r i l Malcolm, 1984 Executive Activity Program w i t h these Report - of with environmental description funds for a professional the of proposed community planning assessment socio-economic of the component was 1984). Program Director associated limited additional and S o c i a l D e v e l o p m e n t September Development the requests training general monitoring, outlines Community his indicates - Metis of the the Association Metis 1983-84 Association Community concludes and words: " . . . . e v a l u a t i o n o f t h e p r o g r a m was t h a t it basically failed, the o n l y way t o h e l p t h e M e t i s w o u l d be t o s t a r t them i n t h e a r e a o f Community P r o j e c t s and E c o n o m i c Development. B a s e d on o u r past e x p e r i e n c e s , we t h i n k i t w o u l d b e n e f i t t h e r e s p e c t i v e c o m m u n i t i e s Social - 79 - b e t t e r i f t h e l o c a l as a w h o l e was i n v o l v e d i n e c o n o m i c d e v e l o p m e n t o r a community project benefiting the community." (Metis Association 1984). The 1984-85 initiation and control Metis of proposal for Community and funding of community projects Locals. headquarters staff to to respond development unit This and community and/or focus individual needs in was in Social to Development under be Locals. coping with to take through Community the on the sponsorship facilitated Metis preparations the focused small projects impact advantage a and of were resource of beneficial opportunities. Planning Support and M o n i t o r i n g During the Project and 1983-84 Officer with was management continuing this opportunities a mechanisms that Association contracted to The be The 1984-85 be that the Metis for full the the funding providing encouraging after Planning funding Economic Planning development projects proposal could season. of the Support The long-term Project and be was based on taken of the proposal economic ends. planning The Monitoring also Metis program be Corporation. for an E c o n o m i c planning and the advantage development continued of business construction Development requests for that 1984-85 for can proposal and problems. concern responsible business specific so Association service with the propose requested - Metis assistance service of identifies most Program Planning assistance assisting in the to Officer Locals formation who was to and to local of a native (Dene/Metis) toward a Western A r c t i c second work, business association. position liaison - Native 80 This local work is stated Business A s s o c i a t i o n . Secretary/Liaison with - Officer b u s i n e s s e s and to the to The be be an initial proposal requests responsible provision step of for a office organizational back up. This p r o p o s a l was s u b m i t t e d Dene N a t i o n The proposals and M e t i s A s s o c i a t i o n - for funding Contribution agreements the installment initial program descriptions indicate that requests for the both delays, however, started very its for Support and receiving Corporation "Business The meant that The funds the fiscal for Metis Program. This office 1984) from Officer" was n o t Fort and was that report was to not report states move the of to The others initiate for available on the the Metis Yellowknife, filled and in time that, the funding funds. able was made Association the in The agreements cancelled not until in operation u n t i l early spring and 1984. necessary be 1984. i n August August t r a i n i n g program report Smith position to June contribution the example, monitoring a had in identified receive programs sole activity was the activities until were s i g n e d received to Outcomes Board year also would Nation, Program Treasury appendices some (August therefore, reach was as of Dene programs Ltd.'s funds 1984. 1984-85 1984-85 environmental Development program, of The Monitoring the the majority season. 1984-85 for not organizations community-based the did contained late. construction in January, the to me Planning delay in Development meant that February 1985. the 1985. c) Perceptions In his f) In remarks Federal spite the the Coordination of the latter Office and a February Coordinator Dene Nation Dene had Office office never because and b e c a u s e t h e i r ignored. As problems frustration draft press angry tone: with release point, D.I.A.N.D structure Dene of 1984 paper titled 'The Norman states: C o n t i n u i n g Dene N a t i o n and M e t i s A s s o c i a t i o n the coordination process is vital to the project." (Mar 1 9 8 4 : 2 3 ) of that - Northerner's expectations of economic benefits were over p e r c e i v e d at the o u t s e t of the p r o j e c t . These expectations m u s t now be t e m p e r e d . Coordinating One the 81 Observations concluding Wells Project' " e) and/or - relations became staff interviewed had with delays the process concerning the in the not own s u g g e s t e d the increasingly recognized they between p a r t i c i p a t i o n in success of the been in February, involved r e c e i v i n g the 1984-85 strained Federal structure increased. Dene A s s o c i a t i o n , The funding during 1985 Coordinator in Appendix impact funds Dene Nation requests had C) or had continued May a 1984. commented determining (see the 22, the the been the 1984 definitely "The g o v e r n m e n t ' s f a i l u r e t o f o l l o w t h r o u g h on t h e i r p r o m i s e s i s an outrage. The Norman W e l l s F u n d i n g was a p o l i t i c a l p a y o f f t o h e l p our people prepare f o r a p r o j e c t we d i d n o t w a n t i n t h e first place. T h e y h a v e g o t t h e i r p i p e l i n e and we h a v e had n o t h i n g but b u r e a u c r a t i c h a s s l e s and e x c u s e s . . . . . T h e D e p a r t m e n t o f N o r t h e r n A f f a i r s has g i v e n v e r b a l s u p p o r t to t h e Dene m o n i t o r i n g e f f o r t s , b u t i n t e r i m s t a r t - u p f u n d i n g p r o m i s e d l a s t f a l l was n o t c o n f i r m e d u n t i l F e b r u a r y 1984 and h a s s t i l l not - 82 - been received. On-going funding f o r a two y e a r p r o g r a m was r e q u e s t e d l a s t D e c e m b e r , and t h e r e h a v e b e e n o n l y d e l a y s s i n c e t h e n . ....This was p o l i t i c a l money f r o m t h e s t a r t , a n d we c a n o n l y i n t e r p r e t t h e n e e d l e s s b u r e a u c r a t i c h a s s l e s as d i s g u i s e d p o l i t i c a l delay t a c t i c s . They a r e s u c c e s s f u l l y h a m p e r i n g o u r e f f o r t s t o be i n f o r m e d and i n v o l v e d i n t h i s p i p e l i n e , w h i c h we o n l y a c c e p t e d a s a test case. ....This e x p e r i e n c e c o n f i r m s t h a t we w e r e r i g h t i n our o r i g i n a l position on t h i s project that there should be no major development until the question of our aboriginal rights is settled. This i s t h e o n l y way i n w h i c h we c a n g u a r a n t e e some c o n t r o l and b e n e f i t s f o r o u r p e o p l e f r o m p r o j e c t s o f t h i s s i z e . " (Dene N a t i o n 1984b) The editorial f o l l o w i n g comments in the about 'Native Kakfwi's Press' June statements 1, 1984 edition and t h e f u n d i n g made the situation: "The Dene N a t i o n and t h e f e d e r a l government are fighting over Norman W e l l s i m p a c t m o n e y , a n d i t l o o k s l i k e a l o s i n g b a t t l e f o r t h e Dene. They a r e g o i n g t o have t o march t o t h e f e d e r a l f u n d i n g d r u m , and Dene l e a d e r s a r e n o t h a p p y a b o u t it.... Dene l e a d e r s a r e a n g r y , b e c a u s e what t h e y want f o r t h e i r p e o p l e i s some m e a s u r e o f CONTROL o v e r what h a p p e n s on t h e i r l a n d . They s h o u l d be a n g r y , t o o , b e c a u s e i n s t e a d o f h a v i n g c o n t r o l t h e y h a v e t o w r i t e p r o p o s a l s j u s t t o m o n i t o r a p r o j e c t t h e y were f o r c e d t o accept.... The f e d e r a l s t r a t e g y i s t o p u t t h e D e n e , M e t i s and e v e r y o n e e l s e i n t o t h e p o s i t i o n o f h a v i n g t o r e a c t t o p r o j e c t d e v e l o p m e n t s - - and by t h e t i m e y o u c a n r e a c t , t h e p r o j e c t i s f i n i s h e d . . . . O t t a w a h e l d on t o t h e m o n e y , Ottawa, your proposal b e t t e r Press 1984b:4) The that Dene they i n t h e May 1984 P r o j e c t were n o t b e i n g d e a l t Coordinator as stated and O t t a w a i s s l o w , and b y G o d , w i t h f i t the federal g u i d e l i n e s . " (Native with i n good i d e n t i f i e d t h e Dene comments 'political posturing' and a s s u r e d w o u l d be f o r t h c o m i n g a l t h o u g h Coordinating faith and t h e i r the by D . I . A . N . D . time. The discussions with Committee they would take Committee members that meeting Federal t h e media the funds The June 1984 Coordination 1984-85 to Office impact Impact their Study plans pipeline. It by t h e the Dene's as to a of 'Information publication, funding. be r e c e i v e d describes issue refusal Nation that states to that in a article Norman Wells that Association. monitor their environmental the Minister s t a n c e and i t f u r t h e r to of D.I.A.N.D. the f u n d i n g was The in the D.I.A.N.D. response Project discussed 3.2 million additional and t h e M e t i s move" workers Dene t o r e c o n s i d e r t h e i r an to p a r t i c i p a t e "retaliatory The a r t i c l e Pipeline' contains announces D.ene train 83 - article Socio-Economic having effects to of was u r g i n g drop the the states: "The f u n d i n g i s s u e h a s p l a c e d a s t r a i n on r e l a t i o n s b e t w e e n t h e Dene a n d t h e f e d e r a l g o v e r n m e n t a t a t i m e when g o v e r n m e n t a g e n c i e s a r e e x p l o r i n g ways o f i n v o l v i n g c o m m u n i t i e s i n d o i n g t h e i r own m o n i t o r i n g a n d a g r o u p f o r m e d a t Dene i n i t i a t i v e h a s begun t o s e r v e as w a t c h - d o g over environmental s u r v e i l l a n c e a c t i v i t i e s on t h e project." ( I n f o r m a t i o n P i p e l i n e 1984a) In July Regional 1984, the F e d e r a l Council regarding the felt Project Pipeline' Liard. t h e Norman W e l l s many s o u t h e r n e r s , Council in Fort that racist Coordinator had n o t been The C o u n c i l Project. attitudes, the conditions met. attended put f o r t h In a d d i t i o n t o o few j o b s that a meeting t h e Dene of a number to the P r o j e c t ' s t h e Deh Cho of concerns h i r i n g too and t o o f e w c o n t r a c t s , linked M r . Mar was q u o t e d with the approval i n the July the of 'Information as r e s p o n d i n g : "The f e d e r a l c a b i n e t ' s d e c i s i o n s on how t h e p r o j e c t was t o be managed d i d n o t meet a l l o f t h e Dene N a t i o n c o n d i t i o n s . Basically t h e d i f f e r e n c e b e t w e e n what was a s k e d f o r and w h a t was a p p r o v e d i s a t t h e r o o t o f some o f o u r p r o b l e m s . " ( I n f o r m a t i o n P i p e l i n e 1984b) Mr. what Mar p e r c e i v e s was " a p p r o v e d " . between In the difference The n a t i v e t o be b e t w e e n organizations what perceive was " a s k e d f o r " and the difference t o be what was " p r o m i s e d " a n d w h a t was " r e c e i v e d " . October, conducted Project in 1984 a s e m i n a r Banff, Coordinator's response These 84 - paper was documents implementation Alberta. Office prepared illustrate called A Project paper was on t h e s u b j e c t by some the Dene prepared of by t h e Norman Nation differences o f t h e Norman W e l l s P r o j e c t . Assessment; in Project the perception The g o v e r n m e n t Norman Wells Monitoring Audit Wells Project. Program regarding paper was A staff. the concludes: " The h a r d work o f government departments and a g e n c i e s h a s r e s u l t e d i n t h e s u c c e s s f u l c o o r d i n a t i o n o f t h e p r o j e c t based on c o o p e r a t i o n ; h o w e v e r , a more f o r m a l and a u t h o r i t a t i v e coordination r o l e may be r e q u i r e d f o r more c o m p l e x large scale development projects. The e x p e r i e n c e obtained by northerners in project r e l a t e d t r a i n i n g , employment and n o r t h e r n business opportunities should enable them to achieve increased benefits from future developments. Community level participation in the coordination p r o c e s s has been i n s t r u m e n t a l i n t h e s u c c e s s o f t h e p r o j e c t and should continue; however, t h e Dene N a t i o n c o n t i n u e t o use the p r o j e c t as a b a s i s t o p r e s s f o r c o n t r o l o f l a n d and r e s o u r c e s which, along with t h e i r frustration over accessing funding for community programs, could jeopardize continued community level p a r t i c i p a t i o n . . . . P a r t i c i p a n t s a t t h e B e a u f o r t Sea E . A . R . P . h e a r i n g s g e n e r a l l y a g r e e d t h a t t h e e x p e r i e n c e b e i n g g a i n e d by g o v e r n m e n t a n d northerners could be u s e d for dealing with future northern development p r o j e c t s . Industry expressed general support f o r the concept of a Coordination Office as a means to facilitate i n t e r a c t i n g w i t h t h e government. The Dene N a t i o n e x p r e s s e d m a j o r d i s a p p o i n t m e n t w i t h t h e i r l a c k o f power t o c o n t r o l t h e Norman W e l l s P r o j e c t and t h e r a n g e o f b e n e f i t s b e i n g d e r i v e d b y n a t i v e people from the project. All participants recommended t h e need to s t r e a m l i n e p r o j e c t p l a n n i n g and c o n t r o l m e c h a n i s m s . " (D.I.A.N.D. 1984:34) The Dene certain response control over contains a development 85 - strong in the emphasis on the Dene land they consider to desire be t h e i r for own. "The Dene l e a d e r s w a n t e d t o n e g o t i a t e a s e t t l e m e n t w h i c h w o u l d g i v e t h e i r people a r o l e i n d e c i s i o n - m a k i n g about major development, i n c l u d i n g p a r t i c i p a t i o n i n s e t t l i n g t e r m s and c o n d i t i o n s , and i n monitoring. The Dene and Metis desire for participation in regulatory d e c i s i o n - m a k i n g and m o n i t o r i n g is a legitimate one. (Dene N a t i o n M o n i t o r i n g P r o g r a m 1 9 8 4 : 3 ) . The Dene p e r c e p t i o n of the Norman W e l l s P r o j e c t is stated: "Thus, Norman W e l l s i s s e e n by t h e Dene as a t e s t - c a s e . The l e s s o n s l e a r n e d f r o m t h i s p r o j e c t a r e p r o v i d i n g d i r e c t i o n f o r Dene negotiations on involvement in regulatory proceedings and m o n i t o r i n g on f u t u r e p r o j e c t s . In a d d i t i o n , t h e Dene l e a d e r s h i p ' s a s s e s s m e n t o f t h i s p r o j e c t w i l l d e t e r m i n e w h e t h e r we a r e w i l l i n g t o support f u t u r e l a r g e - s c a l e development b e f o r e our r i g h t s are f u l l y entrenched in a negotiated aboriginal rights settlement." (Dene N a t i o n , M o n i t o r i n g Program 1984:3) The paper interveners scrutiny people last of after issue in criticizes the a the was NEB project the hearings, and, lack of c o o r d i n a t i n g m e c h a n i s m and in the Committee. Advisory Committee also Dene was a monitoring Project Coordinating of lack all, native Co-ordinating team the stage. Project was participation above public hearing the limited the Of to Committee for public lack involvement of native of oversee in of concern r e l a t e d the terms of nature A major ommission, the as a d e q u a t e Project. for this The role: to establishment 'advisory' criticized. the mechanisms involvement The to on-going particular establishment available reference of the not of for a the Community according Dene do this to the see the - 86 - " t h e P . C . C . w i t h i t s b r o a d membership and i n f r e q u e n t m e e t i n g s , serves only as a g e n e r a l information session. It i s not the a p p r o p r i a t e f o r u m f o r n a t i v e i n v o l v e m e n t , i n a s p e c i f i c s e n s e , on any o f t h e i s s u e s o u t l i n e d a b o v e . " (Dene N a t i o n M o n i t o r i n g P r o g r a m 1984:4) The Dene highlights present the total t h e Dene v i e w s that that t h e government regarding deals with t h e Dene. dollar funding states only p o s i t i v e aspects of paper concern paper package. a number the impact The f i r s t amounts funding amounts changed over million. Development made the Minister Project Committee approval to quotations M r s . Meldrum gain Cabinet announcement. back are from Assessment; of stated the the $1.5 Dene Project Wells Project. reveals areas. The m a j o r change 31, She stated 1981, were goes of refer was made that at the impact by t h e the The Banff to Social Mr. attempts unsuccessful. given to the discrepancy of day a f t e r later of that from $ 1 0 . 5 m i l l i o n the and on t o issues initiatives within time. this paper It set of quotations on J u l y million problems The s e c t i o n a number i n t r a i n i n g funds that Nation downplays problem the various c o n c e r n t o t h e Dene was t h e r e d u c t i o n $9.0 of two i n t h e next allocated to These t h e Norman paper Munro by the following seminar Audit: " T h e a l l o c a t i o n s p r e s e n t e d i n D . I . A . N . D . ' s c a s e s t u d y a r e somewhat different. T h e s e c h a n g e s w e r e made i n t e r n a l l y , w i t h i n D.I.A.N.D., without consulting the native groups. (Dene N a t i o n M o n i t o r i n g Program 1984:14) " T h e Dene N a t i o n ' s u n d e r s t a n d i n g was t h a t d e c i s i o n s on a l l o c a t i o n o f t h e t r a i n i n g f u n d s w o u l d be made b y n a t i v e o r g a n i z a t i o n s , r a t h e r t h a n by g o v e r n m e n t s a n d t h a t t r a i n i n g m o n i e s w e r e t o be s p e n t f o r p r o g r a m s a l r e a d y o f f e r e d e i t h e r by C . E . I . C . or the G.N.W.T. We a l s o u n d e r s t o o d t h a t t h e C o m m u n i t y A d v i s o r y C o m m i t t e e w o u l d be s e t up and managed by the native organizations as part of an involvement in monitoring." (Dene Nation Monitoring Program 1984:14) on - 87 - " I t i s c e r t a i n l y t r u e t h a t t h e a c c e s s i n g p r o c e s s h a s n o t e v e r been made c l e a r , a t l e a s t t o t h e Dene N a t i o n , and i t i s a l s o t r u e that t h e e l e c t i o n o f a new e x e c u t i v e and s t a f f turnover a t t h e Dene National office did interfere with the continuity of accessing these monies. H o w e v e r , i t i s e q u a l l y t r u e t h a t D . I . A . N . D . had i t s own p r o b l e m s i n d e c i d i n g on an a d m i n i s t r a t i v e p r o c e d u r e , and in adequately conveying t h i s i n f o r m a t i o n to fund r e c i p i e n t s . " (Dene Nation M o n i t o r i n g Program 1984:15) "A f i n a l a s s e s s m e n t o f t h e P r o j e c t s h o u l d i n c l u d e an e v a l u a t i o n o f t h e p o l i t i c a l p r o m i s e s , b u r e a u c r a t i c p r o c e d u r e s and r e a s o n s f o r t h e d i f f e r i n g p e r c e p t i o n s on i s s u e s t o do w i t h i m p a c t f u n d i n g . Because t h e f u n d i n g i t s e l f h a s become an i s s u e . " (Dene N a t i o n Monitoring Program 1984:15) The Dene problems, process paper with a call p r o c e s s e s and m e c h a n i s m s of the before concludes it becomes accepted for a thorough assessment Norman W e l l s P r o j e c t as a model for - June 3 0 , of the implementation future northern developments. 5. Third-Construction-Year a) General The The In March final construction March Project 1985 oil On May 1 6 , 1985, Coordinating Norman W e l l s . The operation will for and the began started assessment procedures f o r Funding 1985 Events pipeline rapidly. --January-!;-1985 again to will its into the meeting Norman W e l l s P r o j e c t focus January 1985. Work Norman Wells focused its progressed pipeline. attention on project. Norman W e l l s P r o j e c t the O f f i c e flow Committee the in energies completion ceremony Coordination Office on of continue through a review the 1985-86 the will was continue overall fiscal held year. in its Project. b) Impact Funding 88 - Initiatives P r o p o s a l f o r 1 9 8 5 / 8 6 / 8 7 F u n d s - Community and S o c i a l and P l a n n i n g S u p p o r t and M o n i t o r i n g - Dene N a t i o n In March of Impact Funds 1985-1986-1987'. be used impact as the 1985, the basis Dene s u b m i t t e d for This the a 'Proposal proposal requests to was Development to Access submitted Treasury Norman to Board Wells D.I.A.N.D. for the to remaining funds. "The o b j e c t i v e s o f o u r p r o p o s e d p r o g r a m and t h e r e l a t e d t r a i n i n g a r e d i r e c t e d t o w a r d s c r e a t i n g an a w a r e n e s s amongst t h e c o m m u n i t i e s a b o u t t h e i m p a c t s and i m p l i c a t i o n s o f d e v e l o p m e n t , assisting in establishing strong and healthy communities, and in turn, assisting them to creatively address future development proposals." (Dene N a t i o n 1 9 8 5 : 2 ) The proposal community funds and office. led The the programs aid in the the be funded overall training. the delays, and the the and major program's The timing identifies Norman and impact communication and function review of for three years the need of sheer for the the management a unit The program of the Nation to manage unit the management the the is objectives with Norman W e l l s with size for funds. relations of monitoring, request difficulties the Wells flow management, previous organizational information Another the monitoring components; The coordination office. and therefore, for major of through responsible with four experiences planning proposal, coordinator's assist from to on development administration. programs will social resulted funding focuses to and federal unit Project. is to - 89 The monitoring comprehensive from the will be documentation perspective carried social/economic the Project. The community fieldworkers are to be (e.g. with or which used have for time concentrate communities. of its on t h e will identify adequately indicated conduct evaluation combination of suited to be integrated regional and go t o be to cope communities These funds studies, or may to be hire fieldworkers abilities evaluation the staff will communities to of communities and and major are within community into review office the regional the issues; the social assessment final report project. focus and that activities and education) and a community-based will to issues. skills Project Nation their The Wells over-all The feasibility plans. produce community is designated specific leadership program's needs work an and and to program's interest training conduct Norman and of is environmental staff. areas funding to the are f o r fieldworkers these proposal This a workers, funds goal The development justice, addressing developing training is for of headings: coordinating Increased on Norman W e l l s done and achieve program major priority to The work. The be plans staff development office over-riding communities. development community problems. part four economic specific aiding term evaluation Dene under correction work temporary to Nation for solve out long and the and s o c i a l and alcohol, of issues; assigned responsible program's promote native i s on human research, the needs. resources liaison and planning. survey development of In a training addition, training The work activities programs package is to to more to be developed that personnel. can This Development be a c c e s s e d by training Training, - the package 2) 90 Community includes four Cultural Survival Development major 3) program programs Community training - tl) Community Awareness and 4) Translations. As o f J u n e 1985 t h i s p r o p o s a l was w i t h Community and S o c i a l D e v e l o p m e n t Metis Association The program Metis major of objective the Locals Metis to funding assistance to the reports as Government, sponsor and the of their Program P r o p o s a l 1985/86 is to and t h e required the that the issues. Locals to open The full development proposal set Development of the requests the coordination the of Metis objectives Social provide lines - and The to monitor Locals. meet for staff and m a i n t a i n and projects allow Board. 1985-86 Community community headquarters Executive Industry community the Association address continued prepare of the Treasury community projects, communication Locals will and between continue in e a r l i e r years to (1982/83 84/85) i.e. The Community to assist community residents a) t o d e v e l o p means by resource development; b) to prepare themselves opportunities. staff required Services to carry Coordinator, which and to to take out a the Liaison cope with advantage Metis Officer the of program and . a impact of beneficial objectives Clerk/Steno. are a The proposal the identifies program, criteria specific for objectives proposal for identical to initially established throughout These still c) that proposals Perceptions and following Pipeline". 1983 is the to a rationale for budget. Program P r o p o s a l Planning for proposals, Support 1984-85 continue 1985-86 and Monitoring fiscal the - year. same focus funds The is program and staffing 1985-86. with Treasury The in Local and a d e t a i l e d 1985-86 submitted - acceptable P l a n n i n g S u p p o r t and M o n i t o r i n g Metis Association The 91 They were submitted From D a v i d Crombie, 1985 and by June 30, 1985 were Observations illustrate at April Board. quotations and o t h e r s in the time of the are the taken varying from perceptions completion of M i n i s t e r of Indian the the Affairs May of 1985 the Norman W e l l s and N o r t h e r n "Information relevant Project. Development: "Norman W e l l s " i s an e x a m p l e o f how we c a n e n c o u r a g e regional e c o n o m i c d e v e l o p m e n t t h r o u g h o u t t h i s c o u n t r y b a s e d on t h e s t r e n g t h s o f e a c h r e g i o n , " he s a i d . The p r o j e c t " h a s g e n e r a t e d and will c o n t i n u e t o g e n e r a t e s u b s t a n t i v e e c o n o m i c b e n e f i t s , " he a d d e d . Norman Wells, he said, "has been a challenge for Esso, Interprovincial Pipe Line, for native people, for local c o m m u n i t i e s , and f o r t h e g o v e r n m e n t . " The c h a l l e n g e was t o prove that " s i g n i f i c a n t economic b e n e f i t s c o u l d be r e a l i z e d w i t h the actors - 92 - c o o p e r a t i o n and p l a n n i n g o f m a j o r N o r t h e r n resource development, with hands-on participation by both native and non-native northerners in t r a i n i n g , jobs and b u s i n e s s o p p o r t u n i t i e s , with c a r e f u l a t t e n t i o n t o t h e s o c i a l n e e d s o f c o m m u n i t i e s c o n c e r n e d , and with s e n s i t i v i t y to the environment," s a i d Mr. Crombie. The key Crombie. goals and conditions have been largely met, said Mr. "The q u e s t i o n s we m u s t a s k o u r s e l v e s now a r e ' D i d we do b e t t e r t h a n w e ' v e done b e f o r e ? ' , ' D i d we l e a r n t h i n g s t h a t w i l l h e l p us do b e t t e r t h e n e x t t i m e ? ' , ' C a n we i m p r o v e o u r p a r t i c i p a t i o n i n f u t u r e ventures?' " On t h e Norman W e l l s p r o j e c t , s a i d M r . C r o m b i e , t h r e e q u e s t i o n s a r e y e s , b u t n o t an " u n q u a l i f i e d the answers yes". to all The M i n i s t e r a d m i t t e d t h a t t h e r e i s room f o r i m p r o v e m e n t i n such a r e a s as t r a i n i n g and u p g r a d i n g f o r n a t i v e p e o p l e and a s s i s t i n g n a t i v e b u s i n e s s people i n t a k i n g advantage of development. • " W e ' v e a l l l e a r n e d f r o m Norman W e l l s , " M r . C r o m b i e s a i d . He u r g e d people to c e l e b r a t e t h e i r success i n b u i l d i n g the p i p e l i n e , and "dedicate ourselves to doing it even b e t t e r the next time."" ( I n f o r m a t i o n P i p e l i n e 1985) From R i c h a r d N e r y s o o , Northwest Territories government leader: "The Norman W e l l s o i l f i e l d e x p a n s i o n and p i p e l i n e p r o j e c t h a s " s e t a s t a n d a r d o r b e n c h m a r k w h i c h we must b u i l d upon and go forward f r o m , " says R i c h a r d Nerysoo, the Northwest Territories government leader. " T h i s ceremony marks t h e c o m p l e t i o n o f t h e c o n s t r u c t i o n phase of t h e p r o j e c t , " M r . N e r y s o o t o l d g u e s t s a t t h e o f f i c i a l o p e n i n g May 16 i n Norman W e l l s . " I t i s also a beginning — the s t a r t of the p r o d u c t i o n p h a s e a n d , I s u s p e c t , o f a new p h a s e o f i n n o v a t i v e and i m a g i n a t i v e i d e a s and p r o p o s a l s f o r f u r t h e r d e v e l o p m e n t throughout the Mackenzie V a l l e y . " B e f o r e any f u r t h e r p r o j e c t s go a h e a d , h o w e v e r , a l a r g e r r o l e must be d e v e l o p e d f o r t h e t e r r i t o r i a l g o v e r n m e n t , M r . N e r y s o o s a i d . The G o v e r n m e n t o f t h e NWT w a n t s a s h a r e o f r e s o u r c e r e v e n u e s , funding f o r a d v a n c e p l a n n i n g and d e v e l o p m e n t o f c o m m u n i t y s e r v i c e s , and a g r e a t e r r o l e and r e s p o n s i b i l i t y i n f u t u r e d e v e l o p m e n t . He a l s o p r a i s e d t h e c o m p a n i e s ' d i l i g e n c e in employing Northern r e s i d e n t s , b u t s a i d e m p l o y m e n t had b e e n an a r e a o f disappointment f o r community r e s i d e n t s . " A l t h o u g h many s h o r t - t e r m j o b s w e r e h e l d by n o t h e r n e r s d u r i n g t h e c o n s t r u c t i o n p e r i o d , g e n e r a l l y , t h e h i g h expectations for employment which were held by the valley c o m m u n i t i e s have not been met. - 93 - M r . N e r y s o o s a i d he was p l e a s e d w i t h t h e r e s u l t s o f t h e Norman Wells Project. "It was delivered in a sociallyand environmentallyr e s p o n s i b l e manner with an e f f o r t to maximize e c o n o m i c b e n e f i t s f o r n o r t h e r n e r s " and " i n a s p i r i t o f c o o p e r a t i o n b e t w e e n g o v e r n m e n t , i n d u s t r y , and t h e c o m m u n i t i e s . " "I am s a t i s f i e d w i t h t h e r e s u l t s a c h i e v e d and o p t i m i s t i c a b o u t how such future developments will be managed in the Northwest T e r r i t o r i e s by a l l o f u s , " M r . N e r y s o o c o n c l u d e d . " (Information P i p e l i n e 1985) F r o m t h e Dene Nation: "The Dene N a t i o n boycotted the Norman Wells Project ceremonies, saying that c o n d i t i o n s s e t by t h e Dene a g r e e i n g t o l e t t h e p r o j e c t go a h e a d had n o t b e e n m e t . completion leaders in "We do n o t h a v e a n y t h i n g t o c e l e b r a t e , " Dene N a t i o n p r e s i d e n t S t e v e K a k f w i s a i d f r o m F o r t S i m p s o n , w h e r e t h e Dene l e a d e r s had g a t h e r e d t o t a l k a b o u t t h e c o m p l e t i o n o f t h e Norman W e l l s o i l f i e l d e x p a n s i o n and p i p e l i n e p r o j e c t . "We a r e n o t a n e g a t i v e p e o p l e , " M r . K a k f w i s a i d , " b u t we f e e l i t i s i m p o r t a n t t h a t C a n a d i a n s be made aware t h a t a l l h a s n o t gone w e l l on t h e f i r s t n o r t h e r n p i p e l i n e , i n s p i t e o f what industry and government may be s a y i n g . If it c a n be s a i d that they have s u c c e e d e d i n r e a c h i n g t h e i r o b j e c t i v e s , t h e n i t c a n a l s o be s a i d t h a t t h e y have s u c c e e d e d a t t h e expense o f t h e D e n e . " M r . K a k f w i s a i d t h a t i n 1 9 8 1 , Dene l e a d e r s a g r e e d t h a t t h e p r o j e c t c o u l d go a h e a d i f i m p a c t f u n d i n g was p r o v i d e d , o w n e r s h i p o f the Norman Wells o i l was s e t t l e d w i t h the federal government, the e n v i r o n m e n t was p r o t e c t e d , and a m o n i t o r i n g a g e n c y and management structure with Dene representation was established. These c o n d i t i o n s w e r e i n t e n d e d t o h e l p t h e Dene g a i n b e n e f i t s and c u s h i o n negative e f f e c t s . " B u t n o w , on t h e e v e o f t h e o f f i c i a l not been m e t , " M r . K a k f w i s a i d . opening, these conditions have "The federal government has n o t dealt with us i n good faith. Negotiations about the ownership of t h e o i l have b a r e l y begun. P r o t e c t i o n of the environment has n o t b e e n a p r i o r i t y and Dene c o n c e r n s a b o u t t h e e f f e c t s o f p o l l u t i o n on f i s h d o w n s t r e a m f r o m t h e oil f i e l d have not been taken seriously. The monitoring and management r o l e s f o r t h e Dene w e r e n e v e r r e a l i z e d . " Indian and N o r t h e r n Affairs Minister David Crombie, saying he r e s p e c t e d t h e p o s i t i o n t a k e n by t h e D e n e , f l e w f r o m Norman W e l l s t o F o r t S i m p s o n a f t e r t h e c o m p l e t i o n c e r e m o n i e s t o meet w i t h t h e Dene leaders. He met w i t h M e t i s l e a d e r s w h i l e he was i n Norman W e l l s f o r the ceremony. Mr. far Crombie s a i d unresolved." that the Dene 94 - were raising issues which "are so "Whatever good t h i s p r o j e c t d i d , and i t d i d c o n s i d e r a b l e good, t h e r e a r e many t h i n g s t h a t n e e d t o be i m p r o v e d b e c a u s e t h e r e were i s s u e s r a i s e d , some o f t h e m d e a l t w i t h b u t a l o t o f them n o t , " s a i d Mr. Crombie. As w e l l as b u s i n e s s o p p o r t u n i t i e s , t r a i n i n g and e d u c a t i o n , and t h e p r o g r e s s o f l a n d c l a i m s , he s a i d , " i t r a i s e s q u e s t i o n s c o n c e r n i n g ownership; it raises questions concerning revenue-sharing; it r a i s e s q u e s t i o n s w i t h r e s p e c t to the p o l i t i c a l development of the N o r t h w e s t T e r r i t o r i e s , and t h e r e l a t i o n s h i p o f t h e Dene p e o p l e t o that." " ( I n f o r m a t i o n P i p e l i n e 1985) D. SUMMARY This chapter contains funding initiatives. analysis provide of program contains The results documentation documentation information effectiveness the initiatives the the of that developed the as p r o g r a m s o f and will and analysis of of be the the review measured presented the "story" in the Chapter management. two process against effectiveness socio-economic impact of the II. of the study content criteria Chapter two IV study - 95 CHAPTER IV A N A L Y S I S OF EFFECTIVENESS The purpose against IV criteria effectiveness A of Chapter the Criterion OF-PROGRAMS OF SOCIO-ECONOMIC IMPACT MANAGEMENT i s to of assess t h e two s t u d y socio-economic t h a t were o u t l i n e d i n Chapter impact initiative programs management program II. I socio-economic socio-economic impact impact management concerns expressed strategy by should participants reflect during the the review processes. The findings of meetings reveal that expected socio-economic development, planning there for monitoring One the analysis the while intervenor at monitoring regarding potential communities. established social This to allow issues. The of and t o and the there need of only E.A.R.P. are expressed for concerning is the one community native community relative and to social involvement expression in related to sense of the concept. agency for latter local concerns expressions the Yellowknife northern-based the no project, i n any s p e c i f i c the contents a number impacts are of meetings and another suggests expresses adverse socio-economic intervenor recommends communities intervention decision-making specifically the necessity strong impacts that over the a concern native mechanisms power recommends on of health allocation be and of - 96 impact funds, a collaborative system planning for distribution dialogue between of funds the and the governments, necessity for local communities with biophysical and t h e o i l c o m p a n i e s . The E.A.R.P. impacts expected impacts. mainly There were concern with fall during the consultation equal to from consultation government communities communities Project development and a d v i c e , of for the with the N.E.B. planning, review impacts, monitoring impacts, to state that impact for were statement. but the planning, not are expressed adverse the communities The these interventions concerns with impacts will s h o u l d be c o n s u l t e d intervenor n o t on i n v o l v e m e n t people. communities but a g a i n , of project process the these socio-economic focus is on in decision-making or in groups. native planning or implementation in process. native are p r o j e c t - r e l a t e d , with proponents' Where the- Environmental actions than and c a p a b i l i t i e s or that however, Report role planning is either on t h e s e consult project it project the in the processes. to the to concerned socio-economic preparedness advised Of discuss related involvement E.A.R.P. more the p i p e l i n e did participation of native The were the d e f i c i e n c i e s within expressions to native heavily meetings intervenors was w i t h native regard to result When related technical Proponents on a number involvement activities interventions Canadian and t h e n e e d -Assessment -Panel Arctic of the governments actions. in decisions are These related to i s not d i s c u s s e d . that expressed Resources f o r managing and emphasizes impacts. concern Committee about refers The r e f e r e n c e to does not, however, these concerns Norman W e l l s impact expressed Project native involvement funding initiatives. i s reason reflected native the review of native associations D.I.A.N.D. aspects staff Project contents called the 1985). Also The p o t e n t i a l of believe initiatives, these the meetings that study forms while communities of impact these in in initiatives "political supporting .this the review funding meetings concept that i n the content of the the problems, o f t h e need t o concerns took were likely did very A consult bargaining i s the f o l l o w i n g between member of more review of the processes. in the the in the Norman material sessions." item generally influential events produced the are place programs. pre-approval than meetings, with during the reviews. D.I.A.N.D. the associated for increased social the meetings and t h e M i n i s t e r of sense and a r e c o g n i t i o n that who was i n v o l v e d agreed "Discussion "29. to processes in a general and m o n i t o r i n g i n t h e two determining Wells during people are expressed i n various There 1981 the are reflected t h e need f o r p l a n n i n g the advocate - processes. The two explicitly 97 for She (Meldrum June Paper": The Dene a n d M e t i s h a v e met w i t h t h e M i n i s t e r t o d i s c u s s t h e s e c o n d i t i o n s and t h e p r o j e c t . I t would appear t h a t t h e r e is p o t e n t i a l f o r Dene a n d M e t i s c o o p e r a t i o n i n p r o j e c t planning providing the Federal Government supports northern native people i n t h e i r e f f o r t s t o r e a l i z e economic o p p o r t u n i t i e s from the p r o j e c t , m i t i g a t e p o t e n t i a l adverse s o c i a l impacts, p l a y a m e a n i n g f u l r o l e i n t h e management o f t h e p r o j e c t and p r o v i d e f o r l o n g e r term economic o p p o r t u n i t i e s once t h e c o n s t r u c t i o n of the p r o j e c t i s complete. The Dene a n d M e t i s do n o t h a v e the r e s o u r c e s t o pursue such measures p r i o r t o s e t t l e m e n t o f t h e i r land c l a i m s . " ( M . I . A . N . D . 1981:13) 26, - 98 This the d i s c u s s i o n suggests two expressed meetings impact funding during the review involving the that there programs under processes Minister was a c o m b i n a t i o n of study- a n d , b) a) the issues D.I.A.N.D. of determinants and general discussed the concerns in native of informal association leaders. Therefore: The review impact funding processes Criterion of initiatives the Norman do r e f l e c t Wells the concerns Project. The expressed programs thus i n the satisfy I. Griterion-II the A socio-economic i m p a c t management commencement project impacts of as t h e y occur. Norman Wells The because this leaders. Minister was They that stated this projects. In D.I.A.N.D., the i m p a c t management the construction Project the time delay period during would program be the a in order period was identified E.A.R. sufficient comments activities: are as period made to set Process Mid-Project - Evaluation following s h o u l d be o p e r a t i o n a l be a b l e as to deal two y e a r s necessary and to in by prepared regarding by with the native with the programs and consultants time to primarily meetings initiate prior required for for - 99 - "(The impact funding) objectives are best achieved if impact management a c t i v i t i e s . . . . a r e f u l l y o p e r a t i o n a l by t h e t i m e p r o j e c t c o n s t r u c t i o n gets underway. I f t h e y a r e n o t , o p p o r t u n i t i e s w i l l be l o s t and some a d v e r s e i m p a c t s w i l l n o t be a t t e n d e d t o ; i n most c a s e s , i t c a n s a f e l y be a s s e r t e d t h a t t h e f u n d s w i l l n o t be u s e d a s e f f e c t i v e l y as p o s s i b l e . F u r t h e r m o r e , a l e a d t i m e o f s i x months t o one y e a r i s often required p r i o r to c o n s t r u c t i o n to enable the n e c e s s a r y p l a n n i n g and o r g a n i z a t i o n d e v e l o p m e n t s o t h a t t h e i m p a c t management activities are in full operation by the start of construction." (InterGroup C o n s u l t i n g Economists L t d . 1984:35) In meant the to case provide operation prior funds the in achievement requests only was months the case this enabled Wells start of two the received by the the up. As months to of end native the the in initiatives, documented the organizations year earlier, year, until delay the work as and the March was programs accessing however, survey fiscal two socio-economic delays preliminary of then, have The study objective. a few project, necessary project before after Norman time days the impact prevented 1981-82 it the funding was received 1982-83 of in funding 1983, three c o n s t r u c t i o n had c o m m e n c e d . Therefore: project the to of a few not of The two study construction start funding up. programs They f a i l to were not operational satisfy Criterion prior to #11. Criterion-Ill The socio-economic sufficient d e t a i l so impact management program should be planned that: measurable goals or t a r g e t s are d e f i n e d against p r o g r e s s o f t h e p r o g r a m o u t c o m e s c a n be a s s e s s e d ; which the in - 100 - r e g u l a r r e v i e w s of program outcomes, a c c o r d i n g t o t h e d e f i n e d goals or t a r g e t s , are conducted throughout the implementation period; r e v i s i o n s to the defined b a s e d on t h e r e v i e w s . T h e r e have impact funding Coordination prepared the programs Office. The for D.I.A.N.D. only stated Framework mandate been no m e a s u r a b l e goals objectives for goals objectives associated are the entire or the or defined in Consulting funding impact funding the Norman the package. package Wells EvaluationLtd., programs. Project be made f o r the individual Economists the funding with may e a s i l y the defined with concerned goals or targets D.I.A.N.D. by I n t e r G r o u p administering associated with by targets Framework i n 1983 a r e The Coordination The "ultimate is stated Project Evaluation Office's objective" as f o l l o w s : "Ensure significant northern participation in opportunities r e s u l t i n g f r o m t h e Norman W e l l s p r o j e c t a n d l e s s e n p o s s i b l e a d v e r s e s o c i o - e c o n o m i c e f f e c t s o f t h e p r o j e c t on n o r t h e r n r e s i d e n t s and communities." (InterGroup C o n s u l t i n g Economists L t d . 1983:5) This "ultimate objectives" Support "3. 4. objective" f o r t h e Norman Wells encompasses Project two Component of the five "operational ( i . e . the N.W.P.C.O. Group): Provide support for and facilitate incremental management a c t i v i t i e s b y g o v e r n m e n t a n d l o c a l g r o u p s . To p r o v i d e support f o r and f a c i l i t a t e native economic development needs." (InterGroup Economists L t d . 1983:30) impact social and Consulting and These two o b j e c t i v e s proposed to be in the are to is Board it as for expenditure the are not The impact funding activities activities for into the initiative evaluations proposed in the were Economists to Ltd. of the Evaluation be an program to targets for measured lack of actual purpose, be process. program planned can authorization been according be targets, description, reports targets or the a d m i n i s t r a t i o n targets will evaluation program not Treasury Such measurable have Project the be a c c o m p l i s h e d t h a t study the results the of achieved. Board of is or planned any goals in any, a way Program predetermined targets if are agents. outcomes. to and for program held by the programs. administration Framework conducted 1983). stated the that general no focus as p a r t that format initiative The submitted were a each actual assumed so to This question be 'work' under be to only or are Treasury implementation cannot The agents, the contain performance. calls government reviews of of goals funds. targets therefore, measurable therefore, expectations these programs manner. that an e v a l u a t i o n of same organizations) these d e s c r i p t i o n of are, assessment reports appears by not by e i t h e r t h e produced The or the native It agreements There identified (i.e. a requirement this The the of program programs whether measured. from agents to is against be a s s e s s e d a c c o r d i n g t o essentially procedure. contribution that in the accounting however, The on by t h e determined made out be d e t e r m i n e d Coordinator - E v a l u a t i o n - Framework. carried assessment are to 101 on Instead, an were of the not annual program approved basis. a mid-project by package D.I.A.N.D. (InterGroup evaluation that was were These Consulting conducted to address a number performed. These according to of selected has concerned already with used more outcomes. federal Initiative integrity Program; the financial receipts review regular is reference not, are amending the specific criteria, revising the with The native Metis irrelevant. goals to or the agreement government and a project of targets of not particular of the are used Youth; rely the Local on the and of project performance. agreement, the in comments officers it future. process however, process even The has It no does phase. to allow felt that lengthier. stated that with no was n o t difficult but criterion impact only program those implementation agreements This about must agreement lengthy is description. for program representative 1985). are p e r i o d and to reports, spokesperson, contribution (Malcolm identical, Opportunities contribution Association the concern the e n t i r e P r o j e c t made they program for agreements association be outcomes process agreement project to and the not The each will program Board general an e v a l u a t i o n regard within amending defined the if review implementation. than etc. goals Treasury e.g. periodic agreements contribution 1985). somewhat Works approximate provisions (Gorman was programs, continue throughout One or p e r i o d i c s u p e r v i s i o n of only amendments. individual way t h r o u g h is similar, applicants, previous therefore, There for to funding to the accountability review the targets addressing required part Canada recipients, end-of-project measure that reports form of creation of stated financial This job service are only for not an r e g u l a r l y throughout been progress These r e p o r t s will - and previously-defined d e s i g n e d t o be c a r r i e d o u t It issues evaluations any 102 is funding concerned programs. with As there were no d e f i n e d goals, 103 - amending contribution agreements h a s no effect on t h i s k i n d o f r e v i s i o n . The Norman measurable Wells goals or c o u l d be m e a s u r e d . rational revision Therefore, Project targets Without of against defined goals t h e programs impact or funding which programs the progress goals, progress program did of program advance outcomes c o u l d n o t be m e a s u r e d a n d implementation do n o t s a t i s f y C r i t e r i o n not was not possible. III. Criterion TV The socio-economic identify all administration, to the impact major and/or management programs parties-at-interest, implementation should and unambiguously their specific responsibilities in relation the programs. The Norman D.I.A.N.D. with Wells and t h e Project Treasury t h e two f u n d i n g approval Board programs. This press as m a j o r document associations are p a r t i e s - a t - i n t e r e s t to initiative. It months however, that was n o t u n t i l agreement native a s s o c i a t i o n s were social development three was r e a c h e d w i t h also initiative. release clearly identifies parties-at-interest, associated also indicates the planning after support that the and the approval monitoring announcement the M i n i s t e r of D . I . A . N . D . , t o be p a r t i e s - a t - i n t e r e s t native that the t o t h e community and The final approval approval administering not specify There press states o f program f u n d s . and m o n i t o r i n g that the entire any i m p l e m e n t a t i o n Board "approval" responsibility. procedures The Lines parties-at-interest funding D.I.A.N.D. and became staff announcement. of the s p e c i f i c s are Evaluation clear as states which concept o f what D.I.A.N.D. does associations. the "administration" out applications nor are Treasury addition to Ltd. the associations of identification implementation. for of a any strong was with all the year after funding not indication The familiar that the even with at programs Mid-Project the this c l e a r l y understood. o f one approval t h e impact initiated. major impact level, (InterGroup 1984:44). lack of clarity t h e community roles Experience funds. associated with is Board of t o d o , " i s t h e comment were r e s p o n s i b i l i t i e s were n o t i n i t i a l l y Economists experience r e s p o n s i b i l i t i e s associated with specific account release associated with spelled the programs no The responsibilities through describing funding that only funding native the not implementation member, Specific developed In package. r e s p o n s i b i l i t i e s f o r the native authority " T h e r e was no r i g i d Consulting i s responsible for i s i d e n t i f i e d as r e s p o n s i b l e f o r r e s p o n s i b i l i t y or of Board outlined. administration programs. Treasury D.I.A.N.D. i s no d i s c u s s i o n i n t h e r e l e a s e Treasury were release 104 - or and s o c i a l Contribution the with the procedures agreements outcomes. identify These designation development responsibilities identified program a c t i v i t y regarding funds, regard required to to there the is program t o a c c e s s and the r e s p o n s i b i l i t i e s responsibilities relate (a) to the the of program d e s c r i p t i o n s which f i n a n c i a l accounting for implementation concern and are the - taken funding. r e s p o n s i b i l i t i e s of discussed in complexity the 105 from The the proposal initial native Mid-Project-Evaluation. confusion surrounding the wording lack of report Treasury (b) to identification associations, The and is a comments Board major on the authorization process:- " R e p r e s e n t a t i v e s o f t h e D e n e , M e t i s and G . N . W . T . , a l l found the a u t h o r i z a t i o n p r o c e s s v e r y c o n f u s i n g and w e r e o n l y a b l e t o d e s c r i b e a small p o r t i o n of i t . To t h e m , t h e a u t h o r i z a t i o n p r o c e s s was a big black box that existed in the distant city of Ottawa." (InterGroup C o n s u l t i n g Economists L t d . , 1984:39). The report preparation used also for in future applicants projects for Experience with parties-at-interest There does not implementation emphasizes and appear, if the the Treasury impact funding the date, to be advance authorization has and a Board of procedure process is programs. initiatives administration to importance identified implementation clear documented the major responsibilities. statement of the responsibi1ities. Therefore:- In initial summary the impact administration major funding and parties-at-interest program implementation were not descriptions. responsibilities clearly Nor identified in were specific unambiguously identified for these satisfy major actors. Criterion The 106 two - Norman Wells funding programs fail to IV. Criterion-V A s o c i o - e c o n o m i c i m p a c t management majority of The Coordination Association Sheila of (D.I.A.N.D.), asked Malcolm, each impact of the I impact Director two study These Project staff of to Dene John tell of Metis me and were all the Metis Mrs. Support Group Nation and of NWT. their programs Wells N.W.P.C.O., Dene were Norman and Association as interviews the the the what initiatives telephone of Coordination member the are Nation Mar a process. programs the Mr. Wells individuals the to Gorman, Executive these spoke Norman Margie of study by of the views Mr. on I the socio-economic conducted in August 1985. "most Mar using accused of the stated effective this involved." to i n the Office/D.I.A.N.D., NWT. management. Mr. of of Ms. effectiveness of the Meldrum Michael p r o g r a m s h o u l d be j u d g e d t h e p a r t i e s - a t - i n t e r e s t t o be an e f f e c t i v e parties-at-interest Project strategy tool." tool (Mar and and he (Mar was the considered 1985b). that it, He stated 1985b). deciding for Metis programs that citizens. Dene aspirations, allowed to the He felt "allowed that Mr. impact if that the is that organizations counterbalance the programs a strong people this Mar f e l t these funding a in favour themselves to become done, government p r o v i s i o n of "to impact be point not the to of reinforce the wage is funding cultural economy and could 1985b). address Mr. Mar government and spent. used and He said young is for and the the accounted take projects, it indicated that organizations Mrs. a light. way that concerns not the were best community value with probable the wished another settlement will of for to would a comment regime this be land in the funding to assess such for to a future involved. claims "infrastructure point use see that be train themselves He the should providing the people concluded with funding designated that (Mar between illustrate management. necessary did not view She s t a t e d is not that the that such a delivering v e h i c l e and t h a t Mrs. the this Meldrum been on their own" because because communities Meldrum f e e l s that to many o f now the know was felt have out funds that fears is through not the that going the He native participate the have "they most did in to quite have (Meldrum political impact in Norman W e l l s P r o j e c t the programs football." benefits they funding funding political there "thrown impact "impact that that impact quite the for the people stated up." agreement to as native shoring in 1985b). activity. and rest, the funds funds Mar allows Mar that the Mr. toward Mr. have (Mar land. always c o n c e r n i n g how these while needing not training saw funding likely Meldrum positive the action will management." the economy, used a g a i n . is of areas was organizations impact mitigative being there "bureaucrats" live off - communities that example wage for, strategy in native the i n how t o the recognized the that training within 107 funding "figured it." has s e r v e d be way to itself is how (Meldrum lay to Her lot was achieve of some being cope" 1985). a a done 1985). organizations out to to organizations effective native such of and u n c e r t a i n t i e s e x p r e s s e d d u r i n g t h e and Mrs. fears Berger Inquiry people and t h e Norman today. Mrs. Wells E.A.R.P. Meldrum also indicated different socio-economic impact s t r a t e g i e s . (Gorman 1 9 8 5 ) . staff. It raised by 1985). has and it was is not She native stressing impact also to an to has that be plan and that she would future one of the to slow felt as an the that improve the impact of f u n d s have t h e p o t e n t i a l to the Metis A s s o c i a t i o n of three major problems with the the impact funding the Northwest (Gorman time that, The f u n d s w e r e a l w a y s r e c e i v e d w e l l ( f o u r months a f t e r t h e s t a r t o f t h e case) b) t h e r e w e r e no s p e c i f i c c r i t e r i a , "the very g e n e r a l , wide open" ( M a l c o l m 1985) government concluded with difficulties by the caused Nation." Territories, a f t e r t h e y were e x p e c t e d f i s c a l year in the l e a s t funding and "the (Meldrum programs: a) the s o much associated Dene be have between Gorman financial "break as to delays impacts." processes the The to Ms. Nation accessing stated coordination the and s p e c u l a t e d t h a t in Gorman responding process. Dene funds." programs Ms. better the involved deliver the itself." "expectations organization. funds. of on necessitate impacts of native development might major allowed processes properly means has the northern that dependencies Nation chasing negative f u n d i n g programs Malcolm of same c o n c e r n s o f context funding created the Dene in the effective the that different out that the spent groups by c a r r y i n g o v e r Mr. and stated said again turned feeling difficult process and her a the comment was s t r e s s e d by M a r g i e Gorman jeopardised energy 1985). This communities She funds made is has in are not would funding place - projects "Impact take 108 programs were stated - c) t h e f u n d s c o u l d n o t be u s e d as e q u i t y and w e r e , t h e r e f o r e , not useful to the Metis in their ambitions for economic participation in the opportunities p r e s e n t e d by t h e Norman Wells Project. Mr. Malcolm program delays for to be have the stated that successful, lead to Metis development a locals program implementation. of with The did not primarily lack was he program their Mr. Malcolm concluded our funding was felt that if have been given for use as programs For judged three funds to to of be the repercussions have as the delays and have did the to not fieldworker funding. serious Development in These difficulties planning delays that allowed open in a support and Corporation for receiving lump "from to pay believe of Wells be impact Delays considerations these statements actors' are actors. and pay the sum and that the a off, socio-economic interviewed. other in the socio-economic impact Norman political and p e r c e p t i o n s o f an association actors positive never been of to The Metis with community funding well. just programs contributed Coordinator's comments then, relevant criteria, to Malcolm ineffective four was as p r o g r a m s reasons, the d i s c u s s i o n by s t a t i n g native Mr. the banks. associated that were the equity. varying inadequate the the were e f f e c t i v e to Project a payoff of continuity community contracted problems consider because w e r e e x p e r i e n c e d w i t h t h i s p r o g r a m as the - 109 beginning, off." money been should available impact funding management. funding programs impact management in receipt of serious perspectives. considerably He at are by funds, financial The Federal variance with - no Therefore:- Of the four stated that the socio-economic Criterion The study interviewed, were not The p r o g r a m s s o c i o - e c o n o m i c i m p a c t management that a majority effective fail as of three programs of t o s a t i s f y C r i t e r i o n #V. facilitate rapid p r o g r a m s h o u l d be a d m i n i s t e r e d and p u r p o s i v e action toward using achievement of goals. initiated i m p a c t management and o f b e i n g program g o a l s . access The programs i m p a c t management. An e f f e c t i v e to impact actors VI processes program Norman W e l l s P r o j e c t This of an able to e f f e c t d i r e c t a c t i o n toward c a n h a p p e n when a l l forms design p r o g r a m s h o u l d be c a p a b l e o f b e i n g of required impact t h e achievement administration processes enable resources management quickly program and w i t h o u t should rapidly of agencies obstruction. designate appropriate administrative processes to f a c i l i t a t e these r e s u l t s . The through creation Canada granting (see two Norman use o f a programs, Works and, programs Appendix D.I.A.N.D., D) Wells Project granting e.g. more process recently, The n a t i v e Ottawa to funding similar Opportunities are subject D.I.A.N.D. impact the for programs to those Youth, the Treasury reworded Board the in administered federal Incentive Recovery a s s o c i a t i o n s submitted staff used Local Community were proposals proposals Programs, Program. authorization job These process, f o r funding to fit to Treasury Ill - Board requirements. authorization formed process. the basis associations native These for choice of a accountability fact, does often targets, takes is purposive The two significant before In Board the any, were "wait a clear system goals. native by the process for the time difficult in goals or spent in and a c c o u n t i n g to A grant an Board a system, specific reporting than on t h e to Treasury regarding outcomes rather purpose Such regarding applying, see" the submitted program subject requirements program and approved Board. away f r o m d i r e c t p r o g r a m a c t i v i t i e s . essentially Board i l l u s t r a t e s a strong concern f o r requirements makes between administrative toward associated with combination time an action make a s s e s s and application encouragement to action. Norman W e l l s years rapid does This as A granting if procedures to Treasury regarding few, valuable system government. the Treasury signed accounts programs makes administrative and system funding not f a c i l i t a t e but funds. impact through agreements D.I.A.N.D. granting went and p r o g r a m d e s c r i p t i o n s w e r e Reports a n d an u n c e r t a i n t y of the federal approval funds the contribution and D . I . A . N . D . . Norman W e l l s P r o j e c t for Whatever a s s o c i a t i o n s through The part submissions then as a funding result of programs under difficulties study with problems encountered w i t h i n t h e Treasury the case of authorization programs' t h e Norman process Wells was s t a t e d implementation. impact to the were delayed application first process, even Board a u t h o r i z a t i o n funding programs, b e cumbersome (InterGroup i n the Consulting process. the Treasury a n d an o b s t a c l e Economists to Ltd., 1984). Dene The d e l a y s Nation Valley Plans head for program individual specific In activities and ambiguity Another serious late) - funds the had t o of conform either o u t i n months obstruction throughout of programming past. and - programs, to to action The c o n s t a n t for D.I.A.N.D. terms goals there and i s considerable the is an have ".catch-up1 and t h e authorization the the system that results bank room obstruction meant game of authorization i s the installment with for for t o pay o f f a d e f i c i t from problems place. a s s o c i a t i o n statements process serious the in the take Board throughout delay the funding was t o Treasury native interpretation contributes to problems and a s s o c i a t i o n s activity specified D.I.A.N.D. funding serious councils program i n s t a l l m e n t s go i m m e d i a t e l y carried caused t h e band of individual The d e l a y s (already no absence This payment. much f o r the relevant question action. where the the and f o r i n i t i a t i v e s or j o i n t goals process. receiving office communities, acceptance. for in 112 for to of initial programs in the months native associations. The granting obstacles system in the administration f u n d i n g programs under process, and i m p l e m e n t a t i o n therefore, o f t h e Norman W e l l s created impact study. Therefore:- The processes of two that study impact funding f a c i l i t a t e d rapid program g o a l s . programs and p u r p o s i v e The p r o g r a m s f a i l were action not administered toward to s a t i s f y C r i t e r i o n VI. the using achievement Criterion The socio-economic impact or critically important at industry, that regarding and c o n t r o l least a partnership The following d i s c u s s i o n of agent over in the program implementation programs (e.g. associated with established management involve management government authority impact to meaningfully When be - VII processes processes 113 are this agents the impact the degree resources. should be the by native meaningfully management of planning agents. implemented case define agents organizations) involved program. designated Meaningful designated in it involvement is planning Guidelines agency by should decision-making would require i n t h e p l a n n i n g and i m p l e m e n t a t i o n p r o c e s s e s . views of public participation are relevant to involvement: "....although it i s not possible to delineate a single best approach to p u b l i c p a r t i c i p a t i o n , i t i s a v i t a l p a r t of the impact management p r o c e s s and i t s c o n s i d e r a t i o n i s e s s e n t i a l f o r a n y work d e s c r i b i n g impact management." (Halstead e t a l . 1984:51) "In g e n e r a l , A r n s t e i n maintains that unless the p u b l i c i s i n v o l v e d at a level that a l l o w s them t o i n f l u e n c e d e c i s i o n s , t h e y are u n l i k e l y t o a c c e p t and r e m a i n i n v o l v e d i n a p u b l i c p a r t i c i p a t i o n process." (Halstead et a l . 1984:56). "Deli Priscoli ( 1 9 7 9 ) h a s i d e n t i f i e d f o u r p o i n t s w h i c h an a g e n c y should consider i n d e v i s i n g a p u b l i c involvement s t r a t e g y . First, r e a l i z e t h a t i n i t i a l d i s s o n a n c e may a r i s e . S e c o n d make d e c i s i o n s a b o u t how much s h a r i n g o f d e c i s i o n - m a k i n g c a n o r s h o u l d be d o n e . Third, link the participation programs to the actual decision-making. Finally, take steps to insure that citizen i n v o l v e m e n t t e c h n i q u e s a r e a p p r o p r i a t e i n t i m e and m o n e y , t o t h e t y p e and l e v e l o f d e c i s i o n s b e i n g m a d e . " (Halstead et a l . 1984:59). this - 114 - " I n o r d e r t o g a i n h i g h e r l e v e l s o f p a r t i c i p a t i o n and f o r c i t i z e n s t o a f f e c t p r o j e c t d e c i s i o n s , H o w e l l e t a l . (1983) have identified t h r e e k e y a t t r i b u t e s w h i c h a p r o g r a m must h a v e t o s t i m u l a t e a n d s u s t a i n p u b l i c p a r t i c i p a t i o n (1) a s i t u a t i o n i n which t h e c o s t s o f involvement are minimized; (2) maximization of the rewards a s s o c i a t e d w i t h i n v o l v e m e n t ; and ( 3 ) t h e e s t a b l i s h m e n t o f a c l i m a t e of trust among the c i t i z e n s that perceived rewards will be delivered." (Halstead et a l . 1984:56). In the case formal the planning Minister bargaining press is sessions were funding established decided funding held to c l a r i f y evidence, One initiatives groups program the impact organizations. native association with in the the of in the the programs guidelines f o r involvement management program. of the planning are serious the were, and t h e the the lack omissions the of goals native approval the approval, associated with no There between of Project. the t h e two the was t o native of these involve The carefully in the design of guidelines inclusion package with The implementation involvement funding no sessions therefore, for between procedures. planning processes given associated processes to regarding meaningful special Subsequent formal There reasons in no apparently were responded and a p p l i c a t i o n no p l a n n i n g programs. of package. however, l e a d e r s were There were place implementation. Minister designation were therefore, the for there d i d take contents. upon organizations regarding programs and t h e n a t i v e and funding funding sessions that methods There impact The i n f o r m a l establish and t h e n a t i v e impact Wells conditions programs. particular to no documented D.I.A.N.D. study and release no processes. identified meetings t h e Norman of D.I.A.N.D. established leaders of of absence thought the the out impact - 115 - Therefore: In two summary, Norman guidelines associations satisfy there Wells were in Criterion were impact no funding established planning VII. formal for for planning programs the program processes under meaningful associated with study, consequently involvement implementation. The of the programs the no native fail to - 116 - CHAPTER-V CONCLUSION;-DISCUSSION-AND-RECOMMENDATIONS A. CONCLUSION There thesis. questions posed i n the f i r s t t o be a n s w e r e d t h r o u g h chapter the research of this were: Does t h e i n t e n t o f e a c h p r o g r a m i n i t i a t i v e ( a s d e s c r i b e d i n the approval announcement press release) reflect socio-economic concerns expressed during t h e Norman Wells Project review processes? 2. What w e r e t h e a d m i n i s t r a t i v e a n d i m p l e m e n t a t i o n a s s o c i a t e d w i t h t h e i n i t i a t i v e programs? 3. How e f f e c t i v e w e r e t h e i n i t i a t i v e p r o g r a m s a s s t r a t e g i e s o f s o c i o - e c o n o m i c i m p a c t management i n t h e c a s e o f t h e Norman Wells Project? answer within meetings leaders were two s t u d y The to findings reflected the f i r s t •question documented initiatives, second q u e s t i o n information contained used in if of D.I.A.N.D. (see Chapter in so, IV, the analysis III. of process the content concerns i s reason and t h e n a t i v e in determining to are believe organization the contents of I discussion). the documentation This events through the review there Criterion through Chapter While programs, n o t more was a n s w e r e d determined III. funding the M i n i s t e r as i n f l u e n t i a l , was i n Chapter t h e two i m p a c t between implementation the major The q u e s t i o n s analysis the three 1. An that were documentation effectiveness of the also conducted in program provided Chapter - IV. The analysis indicates Norman W e l l s P r o j e c t all but one start-up subject to to impact The be deal able to measurable clear in others; programs the administration were there are reflected in processes research findings, programs of this in impacts as they targets; the parties-at-interest for of therefore, study, have the two lead to with do of the project they cases not were in not and and; general as p r o g r a m s the of there agencies review a that management; goals, native of never consider impact conclusion that been e f f e c t i v e to implementation because initiatives the prior some program involvement satisfied satisfy responsibilities socio-economic associated not in a c t i o n toward the is clear two to occurred; initially the failed operation implementation of criteria, study not criterion contents under not programs established first the as proposed were processes hindered planning The of effective guidelines programs. were a majority the no with or the initiatives programs goals parties-at-interest according to funding criterion. major were that - 117 nor of the concerns are sense. The impact funding socio-economic management. B. DISCUSSION There are two factors implementation and administration presence of initiatives factor is these as the factors programs lack of of that has have of had the contributed socio-economic a c l e a r l y stated a significant two to study the impact purpose influence impact management. to the the programs. ineffectiveness related on The The of the first management of socio-economic that of the impacts f o r perceptual addressed throughout a) package two the Munro purpose actors and/or managing were never second f a c t o r is acknowledged or formally process. Management-of have the as well been 'impact money'. as the referred funding There initiatives in writing programs', is i n i t i a t i v e s that to other not, in and verbally 'impact funding however, a statement of i n d i c a t e s any r e s p o n s i b i l i t y for impacts. The contents Criterion I conditions of the discussion presented leaders in the and t h e Project to informal approval gain the cooperation of contents of also have This purpose impact study as 'impact associated with that The : a n n o u n c e d by M r . initiatives' i n i t i a t i v e programs. Purpose-Related-to-the under relevant - implementation initiatives all two differences Lack-of-Clearly-Stated Socio-Economic-Impacts The by the 118 the the two funding study initiatives, in Chapter IV, the Minister of meetings that native of gaining reflected package Mi d - P r o j e e t - E v a l u a t i o n : in as documented in the strongly influenced by the D.I.A.N.D. took announcement. the were by the p l a c e between The purpose of the the outlined the native cooperation statement in the of of native the leaders' Evaluation was to approval. The conditions and native objectives processes meetings Project the association review these a s s o c i a t i o n s in the i n i t i a t i v e s respond to purpose is two for associations. the Framework overall and the a) 119 - "Component Logic Diagram: Norman Wells Project Component," (part of the E v a l u a t i o n - Framework), sets f o r t h the f o l l o w i n g as an u l t i m a t e o b j e c t i v e a s s o c i a t e d w i t h t h e o v e r a l l impact funding package: "To ensure continuing support by northern native g r o u p s f o r t h e Norman Wells P r o j e c t . " (InterGroup Consulting Economists L t d . : 5 ) b) Component Logic Diagram: Norman Wells Project Component, ( p a r t of t h e M i d - P r o jec-t - E v a l u a t i o n ) , i d e n t i f i e s a change i n the ultimate objective and adds an o p e r a t i o n a l objective a s s o c i a t e d w i t h the impact f u n d i n g programs: "To resolve northern concerns that p r o g r e s s i n t h e Norman W e l l s P r o j e c t . " might impede " E n s u r e t h a t p l a n n i n g , c o n s t r u c t i o n and s t a r t up o f t h e Norman W e l l s p r o j e c t a r e n o t u n d u l y h e l d up o r disrupted." (InterGroup Consulting Economists Ltd. 1984:54) The the smooth programs might are programs two of of impacts Wells completion to aid in initiative of the that Coordination Norman purpose programs socio-economic was of an based for e f f e c t i v e methods on for the the Wells by failure been assessed management failure for of r e l a t i n g to to implementing purpose Project, responding the socio-economic purpose Office the is two to native as being to ensure initiative concerns that completion. have impact effective a c l e a r l y stated allows Project progress toward t h a t assessment requirements lack Norman impede t h e The This major Norman programs impact a to management t h e management establish programs. the planning of ineffective Wells meet as Project. the program. basic The socio-economic process to define This for study i s concerned with socio-economic impact programs. package, they impact If impact should be e s t a b l i s h e d t o of the Norman confusion only Wells of frustration the draft Mr. Erasmus Panel native to and May in in the Perceptual his study impact implementation. to as they of impact evidenced to feelings toward that management the will participation in an in the purpose. there two to the like those of Chapter III and Sea on are the case has initiatives feelings Mr. like the planning of benefit considerable Environmental effect as processes confusion study to they In is This but Beaufort have a and the comments within c l e a r l y stated clarification. in referred If initiatives, of strategies programs. achieve r e l e a s e quoted presentation be are components impact should funding lack initiatives as as of Kakfwi in those of Assessment attitudes future not of development north. Differences were and, that effectiveness simply ineffectiveness press These a parties-at-interest addressed this the 1984 northerners There of are purpose ensure mistrust 22, The referred their socio-economic hearings. projects be Project as a r e s u l t contributed programs b) programs, initiatives' initiatives not indeed the - management. the should 120 number in the therefore, funding of perceptual Norman never programs Wells Project resolved. and differences other These that were differences aspects of held by never formally affected the key the Project's The the major parties-at-interest Mackenzie industry Valley consider the development. Many home and t h e l a n d as a short-term, Norman also of view s e e as t h e should the potential Valley be the land as economic b e n e f i t s these people own and are d e r i v e d they would regardless of Norman W e l l s Project not it is Valley. but with The more change traditional is society. control it. The on felt years to ten much concerned view them, being the the lifestyle as the imposed it with first by people they of the much is view used Project and was through for project and what They as how seen this kind concept of by project of the details project more development on of Berger's specific development broader on development Their impacts economic resource that prepare the industry major native North. project. socio-economic also The of and concentrate how They view have project-specific the Norman W e l l s so people and the of native to for size in as long-term industry Government non-renewable the symbolism culture from have its importantly to some for location their short-term such development. "development". development, as want a consequently development a construction-limited as c o n c e r n e d t h a t economic as recommendation of and G o v e r n m e n t and development and, as of Government site, Valley development. resource benefits major based, of North the survival. perceptions Project. construction encourages impacts the are not their view Wells consider means o f This for a project investment potential option Norman residents a major - held s i g n i f i c a n t l y different the as non-renewable development Mackenzie native Project. the of Valley financial Wells concept and 121 in the specific comprehensive on their more The funds Dene to prepare be a and t h e M e t i s government themselves change. Some Treasury that by made development were to the recommendations directly enable Norman the The related J.N.A.C. to C.E.I.C. wage was earning within to An is the identifiable example Project of the the lack recommendations. long-term human interested employment to cultural/lifestyle as t i e d report impact people particularly the broad, the native this Project. h a d on covering needs. in funds Wells considered northern involved t h e impact difference of leaders representatives, i n viewing C.E.I.C. training to difficulties perceptual the Association government related this acceptance report the - commitment the persisted directly effect for of Board, impacts that Nation 122 in The resource training associated of needs with the Project. This impact perceptual funds. submitted affect also first Ottawa Mackenzie persist approval native to The in difference Dene in Valley the announcement is s t i l l Nation the request belief residents belief that that the funding was d e l a y e d . beyond 1986 stating that 1985). The long-term the implications subjected to the short-term a r e funds project cover will remaining, Board the needs o f t h e p r o j e c t continue approved complete. communities construction. in amount. particularly has not is The identified total of 1985-87 completion. in their construction for to allocations be s p e n t Treasury administration impacts construction dollar to the funds project after there years' for that are available associations feel affecting continue the was to Dene the The as t h e funding (Gorman to be The second major parties-at-interest of the approval, outcomes and of the participated native that in the the priority. The designated reserve or native native "pot" not the impact responsibilities. smooth Group For been more package but o p e r a t e s of the Treasury conceive many of that impact the it meant individual information government to source the be used and native for d e s c r i p t i o n of Chapter the a c t u a l of has any They s t i l l all 1985). of the bureaucracy did their of was The Support the funding and Board guidelines appears to program in the issue of the resolved Within impact overall priority The which documentation, source of of top believe a period in been be no the one to use w i t h terms year. never funds, specific as himself programs Treasury package the encouraged schedule. l i m i t e d by t h e in government administration The hope time a high the is (Gorman III Office, the contents, priority the associations. the a high key program government construction course of over in structure initiatives. as funding of clear federal process. impact reserve became be impact their At Minister funding would the release the the Coordination Project's the the funding the O t t a w a and over a specific program of involved Wells administers of It authorization Norman funding satisfaction was Board of that by deal press allocated for programs Project the fact considered funds areas a great Minister's the 1985). heavily out initiatives. funding established that funding f a c i l i t a t i o n of has of that the two The that (Gorman funds displayed The associations the the programs. perception implementing perceive the difference associations placed meetings attached. to enthusiasm. encouraged strings related funding supported - perceptual is the 123 that could the be the there funds. to is the package used for sources of no clear - It is argued implementation agency" here that and the December, these acknowleged or resolved. cooperation between C. major p r o c e s s has been associations, study a - 124 failing that, 1981 perceptual This as w i t h of of have the two been to a Project "monitoring the never has c o n t r i b u t e d Wells formally lack in the implementation native of full of t h e two Wells Project programs. RECOMMENDATIONS The impact ways analysis funding to of the effectiveness initiatives improve strategies. the The design following of contained of in two this are development of the thesis, socio-economic impact recommendations p l a n n i n g f o r s o c i o - e c o n o m i c i m p a c t management 1. Norman Paper" differences situation the the concept "Position key p a r t i e s - a t - i n t e r e s t impact funding of Norman suggests management that programs should and strengthening would of the project through integrate from of process. and t h e accomplished draws considerations implementation process of programs or useful in large-scale projects. recommendation from number be for future I n t e g r a t e - t h e - -P-Tanni-ng - f o r -the- - S o c i o - E c o n o m i c - I m p a c t with-the-Overal1-Development-Project-Planning Process This a the The link events Chapter between development the development the design the Chapter the of II process the discussion This Process discussion Wells Project prescribed impact planning of the o v e r a l l the management strengthening a comprehensive f o r the implementation model Norman socio-economic process. of II Management should process project be that and all sub-processes. socio-economic This relevant to the involvement toward development phase of the project of equitable participation for case sufficient to socio-economic integral of to impact r e c e i v e the a t t e n t i o n 2. Emphasise-al1 The second stronger socio-economic should be relevant commitment seen as impact of all have to This impact the suggested be the information. actors to the of the potentially this point. non-token placed under the study, of the design that of as impacts and, the on of process programs was not of seen therefore, the thesis findings all three components Assessment process an e f f e c t i v e ensured did as not implementation. identification The of lack Project initiatives process by process. The partnership o f - t h e - S o c i o - E c o n o m i c - I m p a c t Management management for is members. management fora at priviledges the effective part actors voting stages development a as require management. project All be programs The begin involved of should thesis would or early necessary for impact be conditions recommendation emphasis would would two Components this should ineffectiveness overall in process. a l l p l a n n i n g group during the the veto the planning contributed process decision-making. with concern development actors procedures the planning implementation operating In of process. project relevant collective - sub-process i m p a c t management project initiation The 125 and review is that of should of the a the processes discussion/assessment focus evaluation and Process encourage potential of the impacts of a given Boothroyd project. and R e e s commitment. In that informal members produced to through provide like the those suggested development a review of t h i s kind of the o v e r a l l or that ensures the Minister a significant role Integrating and t h a t an the elements equitable h a s t h e management programs study, of it third socio-economic recommendation of impact implementation a need that impact impacts "meeting" purpose has of impact changes approach of c r i t e r i a such been This be p l a n n e d impacts to to have established, impacts been the for would, I all argue, and would Effective ensure of that starts identified from clearly a l l of of the II a r e met the promise determined and a s s e s s e d . process the programs programs i n Chapter h a s been planning Achieve- the design developed recommendation socio-economic within in the E.A.R.P. management. in the l i s t native participation as i t s f o c u s specifically must f o r managing a number relates management design. the in the design of the i n i t i a t i v e and m e a n i n g f u l of an suggested o f s o c i o - e c o n o m i c i m p a c t management socio-economic requirements o u t l i n e d that a w o u l d be has been D.I.A.N.D. of t h i s an i n c e n t i v e f o r t h e a b o v e - m e n t i o n e d strategies the such socio-economic D e s i g n - - P r o g r a m s - - o f - S o c i o - E c o n o m i c - Impact - M a n a g e m e n t - - t o R e q u i r e m e n t s - o f - a n - E f f e c t i v e - I m p a c t - M a n a g e m e n t - Program The of by t o t h e p l a n n i n g f o r t h e i m p a c t m o n i t o r i n g and between leaders played p r o d u c e more e f f e c t i v e this contribute program components meetings contents. process and E.A.R.P. t h e c a s e o f t h e two i n i t i a t i v e s o f t h i s program in would the process. association 3. to in i t s contribution i m p a c t management management a (1984) The i n f o r m a t i o n more u s e f u l the Changes 126 - mentioned Once in recommendations purpose. The of would and design requirements This #1 an #2 must process the methods to socio-economic impact information involved level of goals the partners the in program that planning of sufficient the of the establishment of Commitment participation funding the of programs front-end to such all of A relevant the under to and to program; operating funds and the requirements no c l e a r the purpose to are equal the the implement met in the recommendations #1 and is an the Norman relating Wells to equitable essential s o c i o - e c o n o m i c i m p a c t management of are the ensuring facilitating process the designating ongoing in actors toward actors and; to specific monitor action programs these to implementation; relevant the order major program purposive all referred in the methods in the the process actors of defining identifying program defining the and that of implementation study, with implement process effective the the construction; evaluation, identifying rapid number a revise that performance; responsibilities implement planning design of case to final ensures project unambiguously ensuring processes programs. the to of assess and and facilitate agencies to ongoing satisfaction goals; provision In an implementation; actor program appropriate ensuring the for targets implementation processes of #2. and schedule that commencement impacts; relevant goals the emerging achievement most to these in designing prior a planning impacts and basic of emerging administration the isolation monitor accommodate of management. place processes all this impact is review consideration achieve socio-economic program regular will of processes; defining measurable into that program review determining strategies take from the in - design must effective necessitate 127 the step in programs. Project impact management of socio-economic i m p a c t s was i d e n t i f i e d a n d no p l a n n i n g to design f o r the implementation design of e f f e c t i v e D. 128 - of the programs. p r o c e s s was e s t a b l i s h e d This programs o f s o c i o - e c o n o m i c impact d i d not allow f o r the management. F I N A t COMMENT " B o t h t h e g e n e r a l and t h e s p e c i f i c r e s e a r c h n e e d s o f i m p a c t management a r e t h u s e x t e n s i v e , t h e f i e l d ' s growth as a p r a g m a t i c s e t o f a c t i v i t i e s has p r o c e e d e d u s i n g t h e a v a i l a b l e knowledge b a s e . Unfortunately, that base is often incomplete and requires extensive supplementation. A l t h o u g h a d d i t i o n a l r e s e a r c h i s r e q u i r e d on n e a r l y e v e r y d i m e n s i o n o f impact analysis these needs are p a r t i c u l a r l y critical for impact management b e c a u s e d e c i s i o n s a r e b e i n g made and p r o g r a m s i n i t i a t e d i n an ongoing basis. Immediate and c o n t i n u i n g research is necessary to e s t a b l i s h s o u n d e r b a s e s f o r t h e s e d e c i s i o n s and p r o g r a m s . " (Halstead et a l . 1984:215) The Norman northerners Wells as a t e s t of t h e management to the design future management and is seen by government, case o f r e s o u r c e development of a l l aspects of the Project and i m p l e m e n t a t i o n projects. assessment Project I will programs. hope aid this in of thesis the management will planning in the north. s h o u l d be o f m a j o r policies contribute of industry future to and native Evaluations importance and a p p r o a c h e s the overall socio-economic for Project impact L I S T OF 129 REFERENCES Barnthouse, L.W.; Boseman, J; Christensen, S.W.; Goodyear, C P . ; W i n k l e , W. a n d V a u g h a n , D . S . "Population Biology i n the Courtroom: The Hudson River Controversy," Bioscience Washington: 34 (January 1984): 1:14-19. Beanlands, G. and D u i n k e r , P. An E c o l o g i c a l Framework Impact- Assessment- i n Canada. Halifax: Institute for Environmental S t u d i e s , Dalhousie U n i v e r s i t y , 1983. 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"Environmental Assessment R e v i e w P r o c e s s : O b s e r v a t i o n s and R e c o m m e n d a t i o n s " , A R e p o r t t o t h e M i n i s t e r of Environment. Ottawa: Canadian Environmental Advisory C o u n c i l , 1979. Davidson, J.E. " M o n i t o r i n g a n d Management The E x p e r i e n c e i n B . C . on H y d r o e l e c t r i c (January-March 1984): 22-27. to and o f S o c i a l and E c o n o m i c Impacts: Dams", SIA N e w s l e t t e r 8 7 - 8 9 Dene N a t i o n a n d M e t i s A s s o c i a t i o n o f t h e N . W . T . " P o s i t i o n o f t h e Dene N a t i o n on t h e Norman W e l l s P r o j e c t . " Prepared f o r the M i n i s t e r of Indian A f f a i r s and N o r t h e r n D e v e l o p m e n t . Y e l l o w k n i f e : December 7 , 1 9 8 1 ( a ) . Dene Nation and M e t i s A s s o c i a t i o n o f t h e N . W . T . impact funds - u n t i t l e d . Y e l l o w k n i f e : September A joint submission 3 0 , 1981(b). for - 130 - Dene Nation. "A Social Action Proposal Designed A d d r e s s The H e a l t h and S o c i a l D e t e r i o r a t i o n Yellowknife: October 2 7 , 1982. for of Dene N a t i o n . "Dene N a t i o n P l a n n i n g and M o n i t o r i n g Interim Report," Y e l l o w k n i f e : J u l y 15, 1983. Dene N a t i o n . " P r o g r e s s R e p o r t on Dene N a t i o n to the P r o j e c t Coordinating Commission. 1984(a) Dene Nation. Yellowknife: Dene Nation. Project." Dene N a t i o n Program Draft of a press May 2 2 , 1 9 8 4 ( b ) . t h e Dene Report. Development to Nation." Program 1982/83 - Monitoring Program," Presented Yellowknife: February, release "Dene N a t i o n 1 9 8 5 - 8 7 I m p a c t Y e l l o w k n i f e : M a r c h , 1985 Community concerning delays. - Norman Wells a n d M e t i s A s s o c i a t i o n o f t h e NWT " P l a n n i n g Norman W e l l s P r o j e c t . " 1984(a) Support and M o n i t o r i n g Association 1984(b) . of Proposal funding the NWT "Community Pipeline Dene Nation and M e t i s Development P r o g r a m . " and Social Dene Nation Monitoring Program. "Dene N a t i o n Response t o : Norman W e l l s P r o j e c t Case S t u d y , Norman W e l l s P r o j e c t C o o r d i n a t o r ' s Office D.I.A.N.D." Paper presented at Banff Seminar on Project Assessment; P r o j e c t A u d i t . B a n f f : O c t o b e r , 1984. Department o f I n d i a n A f f a i r s and N o r t h e r n Development. "Norman W e l l s P i p e l i n e A p p r o v e d w i t h F u r t h e r One Y e a r D e l a y , " Press Release i n Y e l l o w k n i f e , J u l y 3 0 , 1981 "Norman W e l l s P r o j e c t Coordinator Y e l l o w k n i f e , January 2 0 , 1983. Appointed." " T h e Norman W e l l s P r o j e c t C a s e S t u d y . " on P r o j e c t A s s e s s m e n t ; Project Audit. Banff: Press Release Presented at Banff October, 1984. in Seminar - 131 - F e d e r a l E n v i r o n m e n t a l A s s e s s m e n t and R e v i e w O f f i c e . R e v i s e d -Guide to E n v i r o n m e n t a l A s s e s s m e n t and R e v i e w - P r o c e s s . Ottawa: M i n i s t e r of S u p p l y and S e r v i c e s C a n a d a , 1 9 7 9 . the Norman We M s O i l f i e l d D e v e l o p m e n t a n d - P i p e ! i n e P r o j e c t : Report t h e - - E n v i r o n m e n t a l A s s e s s m e n t PaneTT Ottawa: M i n i s t e r of Supply and S e r v i c e s C a n a d a , 1 9 8 1 . Federal Environmental Assessment H e a r i n g s ) Volume I . Hearings 1980a. held Panel. h e l d at Norman Wells P r o j e c t -(Community F o r t N o r m a n , NWT A u g u s t 11, Norman - W e l l s P r o j e c t - ( C o m m u n i t y - H e a r i n g s ) a t Norman W e l l s , NW1 A u g u s t 12, 1980b. Norman - W e i I s - P r o j e c t ( C o m m u n i t y - H e a r i n g s ) a t F o r t Good H o p e , NWT August 13, 1980c. held of Volume Volume Norman - W e l l s - P r o j e c t ( C o m m u n i t y - H e a r i n g s ) a t F o r t P r o v i d e n c e , NWT August 19, 1980d. II. III. Volume Hearings Hearings VIII. held Hearings Norman - W e l l s - P r o j e c t - ( C o m m u n i t y H e a r i n g s ) a t F o r t S i m p s o n , NWT A u g u s t 2 0 , 1980e Volume IX. Hearings held Norman W e l l s - P r o j e c t ( C o m m u n i t y - H e a r i n g s ) a t F o r t S i m p s o n , NWT August 21, 1985f. Volume X. Hearings held Volume X I . Hearings held at F o r t N o r m a n - W e l l s P r o j e c t (Community R a e , NWT A u g u s t 2 2 , 1 9 8 0 g . h e l d at Norman - We-1 I s P r o j e c t Y e l l o w k n i f e , NWT A u g u s t Gorman M. August Dene N a t i o n 1 9 , 1985 staff Hearings) (Community- - H e a r i n g s ) 2 5 , 1980h. member. Yellowknife, Volume XII. Telephone Hearings interview. Government of the Northwest T e r r i t o r i e s . "Executive Summary 8 1 / 8 2 Norman W e l l s D e n e / M e t i s C o m m u n i t y and S o c i a l D e v e l o p m e n t P r o j e c t . " Report to John Scullion, Coordinator of Norman Wells Project. Y e l l o w k n i f e , September 14, 1982. - 132 - G r e e n e , M . R . and C u r r y , M . G . The- Management- o f - Socia-1 and - E c o n o m i c - I m p a c t s Associated - - with the- -Construction ofLarge Scale Projects: Experiences from - the Western Coal Development Communities. Rick land: Battelle Human Affairs Research Centers, Pacific Northwest L a b o r a t o r i e s . Halstead, J.M.; Chase, R.A.; Murdock, S . H . ; Leistritz, F.L. I m p a c t - Management-,- - D e s i g n - -and I m p l e m e n t a t i o n . Boulder: P r e s s I n c . 1984. Socioeconomic Westview Hawthorn, H.B. " R e v i e w o f t h e S o c i o - e c o n o m i c I m p a c t S t a t e m e n t o f t h e Norman Wells P r o j e c t . " Norman W e l l s O i l f i e l d - D e v e l o p m e n t -and • P i p e l i n e Project. Presentationsto the Environmental Assessment Panel. Ottawa: Federal Environmental Assessment and Review Office, O c t o b e r , 1980. Hoi 1 i n g , C . S . (Ed.) Environmental - Assessment John W i l e y & S o n s , 1978. I.I.A.S.A. "Expect the Unexpected: An Management." Laxenbury, Austria: A p p l i e d Systems A n a l y s i s , 1979. and Management. Chichester: Adaptive Approach to Environmental International Institute for Information Pipeline. (Norman Wells Project Review) Yellowknife: Department of Indian Affairs and Northern Development, February, 1983. Yellowknife: Development. June, Dept. 1984.a of Indian Yellowknife: 1984.b Dept. of Indian A f f a i r s Yellowknife: Dept. of Indian A f f a i r s Affairs and N o r t h e r n and N o r t h e r n and Northern Development, Development, July, May, 1985. InterGroup C o n s u l t i n g Economists L t d . E v a l u a t i o n Framework f o r t h e Norman We 11 s - P r o j e c t - - C o m p o n e n t . Winnipeg: D e p t . 67 I n d i a n A f f a i r s ana" N o r t h e r n Development, 1983. - 133 - M i d - P r o j e c t - E v a l ira-tion- o f - S e l e c t e d I s s u e s We Iris - P-ro-jec-t- - C o o r d i n at-i on- O f f i c e . Winnipeg: A f f a i r s and N o r t h e r n D e v e l o p m e n t , 1 9 8 4 . Irving, K. and G o r m a n , M. Dene Interview. February 7, 1985. Leistritz, F.L.; Halstead, Impact Management:Considerations. North O c t o b e r , 1982. Nation J. "The Coordinator, Mar, J. Norman Wells F e b r u a r y , 1985 a . Mar, J. 1985 Norman b. Members. Yellowknife. J . M . ; Chase R . A . ; Murdock, S.H. Socioeconomic Program Design and Implementation Dakota: North Dakota State University. M a l c o l m , M. " M e t i s A s s o c i a t i o n o f t h e NWT. T e l e p h o n e I n t e r v i e w - A u g u s t 2 6 , 1985 Mar, Staff R e l a t e d - - t o - t h e - Norman Dept. 57 Indian Executive Director Yellowknife Norman Wells Project." Report of the Federal Project Norman W e l l s P r o j e c t . Yellowknife, February 8 , 1984. Wells Project Project Coordinator. Coordinator. Yellowknife Telephone Interview. Interview. August 7 12, Metis Association of t h e NWT "Norman Wells Project Impact Funding Community/Social Development and P l a n n i n g Funds 1981-1982. Report on F u n d i n g to Mackenzie Valley Communities. April-May 1982." Y e l l o w k n i f e June 2 1 , 1982.a M e t i s A s s o c i a t i o n of t h e N.W.T. "1982/83 & 1983/84 P l a n n i n g Funds W e l l s Impacts" Letter to Mr. J . Hucker, D.I.A.D.N. November 1982 b Report "Norman Wells P l a n n i n g Support and M o n i t o r i n g Program. June 6 , 1983-June 5 , 1984." Y e l l o w k n i f e , June 1984. "Norman W e l l s Impact Funding Planning Program 1985-1986" Y e l l o w k n i f e , A p r i l , 1985. Metz, W.C. "The M i t i g a t i o n o f S o c i o e c o n o m i c Impacts P u b l i c - U t i l i t i e s - F o r t n i g h t l y 106 ( 1 9 8 0 ) : 6 : 3 4 - 4 2 ) Support and by E l e c t r i c - Norman 2, Summary Monitoring Utilities." - 134 - M i n i s t e r o f I n d i a n A f f a i r s and N o r t h e r n D e v e l o p m e n t ( M . I . A . N . D . ) a n d M i n i s t e r o f E n e r g y , M i n e s and R e s o u r c e s . "Discussion Paper, Norman W e l l s O i l F i e l d E x p a n s i o n and P i p e l i n e P r o j e c t . " June 2 6 , 1 9 8 1 . National Energy Board. Reasons - - f o i — D e c i s i o n . In the Matter of A p p l i c a t i o n under t h e N a t i o n a l Energy Board A c t o f I n t e r p r o v i n c i a l P i p e L i n e (NW) L t d . O t t a w a : M i n i s t e r o f S u p p l y and S e r v i c e s C a n a d a , 1981. Native-Press Native " P i p e l i n e Support Press " E d i t o r i a l : Nature Press August 14, News-North J u l y 1981 News-North 31, Jeds May Be W i t h d r a w n ! June 1 , C o u l d Have Done M o r e l 1984(a):! June 1, 1984(b):4 1981 " C l a i m O t t a w a R e n e g e d On M o n i t o r i n g a n d F u n d i n g . " Norman Wells Project quarterly meetings. an Coordinating Yellowknife, May 2 5 , 1 9 8 4 : 1 Committee (N.W.P.C.C.). December, 1982. Minutes of q u a r t e r l y meetings. Yellowknife. February Minutes of 1983. Northern Affairs Program (D.I.A.N.D.) "Review Comments on The Regional Socio-economic Impact Assessment f o r t h e Norman Wells Oilfield Expansion and Pipeline Project." Presentations to the Environmental -Assessment- P a n e l . Ottawa: Federal Environmental A s s e s s m e n t and R e v i e w O f f i c e , 1 9 8 0 . Page, R.J.D. "Norman Wells: c a n a d i e n n e s 16 ( 1 9 8 1 ) : 2 P a i n e , T. "Truth in Ecology." (1981):4:256-258. The Past and Future Ecological - Society Boom." of- -America Revue d'etutes- Builetin. 62 R e e s , W. E. R e f l e c t i o n s - o n -the E n v i r o n m e n t a l - A s s e s s m e n t and- R e v i e w P r o c e s s (-E-AR-P):-- A - - D - i s c u s s - i o n P a p e r . Ottawa: Canadian Arctic Resources Committee, 1979. - 135 - R e e s , W. E. "EARP a t t h e C r o s s r o a d s : E . I . A . Review 1 ( 1 9 8 0 a ) : 4 : 3 5 5 - 3 7 7 Rees, W. Bay." Environmental Assessment E. "Environmental A s s e s s m e n t and R e v i e w : Northern-Perspectives 8(1980b):2:2-10 R e e s , W. E. " G o v e r n m e n t Management Environmental Assessment P a n e l : t h e Case Capability: A Brief December 1 5 , 1 9 8 3 . Rees, W. E. "Impact Assessment Monitoring & Opportunities?" SIA-Newsletter 87-89 (January-March i n Canada." of McKinley t o t h e Beaufort Sea Management: 1984):15-17. Missed S i n g e r , C. " E d i t o r i a l Comment" S I A - N e w s l e t t e r 87-89 (January-March 1984):3-5 Stanley, W. E. and Farrow, J.E.L. "Environmental Control Management of Socio-economic Impact Analysis/or Resource Development." C a n a d i a n - M i n i n g and - M e t a l l u r g i c a l - B u l l e t i n December 1979:1-5. Templeton, C H . " S u b m i s s i o n on t h e A p p l i c a t i o n o f I n t e r p r o v i n c i a l P i p e (NW) L t d o f an O i l P i p e l i n e f r o m Norman W e l l s , NWT t o Z a m a , Alberta." P r e s e n t a t i o n s - -to t h e - E n v i r o n m e n t a l -Assessment--Panel. Ottawa: Federal Environmental Assessment and R e v i e w Office, October, 1980. Walkey, A. "Implementation of Conditions Newsletter 87-89 (January-March 1984):5-7 for an Energy Project." Line SIA - 136 - APPENDIX A REVIEW PROCESS CONTENT A N A L Y S I S QUOTATIONS - 137 - APPENDIX A REVIEW PROCESS CONTENT A N A L Y S I S QUOTATIONS 1. Quotations from E . A . R . P . Concerns About Development. In the Fort potential Questions services and (F.E.A.P.-NWP of development Fort regarding Communities/Need --for- meeting, impacts H e a r i n g - Norman Father of Denis a Wells Project C o m m u n i t y - -and - S o c i a l expressed concern regarding the construction camp close to town. 1980a:46-57) regarding Mr. t h e adequacy o f Wayne Irvin, were of present asked the supplies of by Alan Norman housing, Sexsmith Wells medical and M r . Settlement Bob Council. 1980b:168-193) Proctor potential In Norman on and r e c r e a t i o n f a c i l i t i e s Barradell Dave Impacts negative (F.E.A.P.-NWP Community of Fort inflation projects. Providence, compensation Good and the Hope boom-bust (F.E.A.P.-NWP Chief for expressed effect concern on local regarding economies the of 1980c:249-251) Joachim Bonnetrouge impacts a on t h e n a t i v e e x p e c t e d as a r e s u l t o f t h e Norman W e l l s made t h e f o l l o w i n g way o f life that comments could Project:- "In a r e a s o f c o m p e n s a t i o n , d i s r u p t i n g a s m a l l community l i k e that, how w o u l d we be c o m p e n s a t e d ? What t h i n g s w o u l d be p u t i n p l a c e t o p r o t e c t t h e way o f l i f e o f t h e p e o p l e , o r t o m i n i m i z e t h e g r e a t degree of d i s r u p t i o n t h a t i s bound t o h a p p e n ; t h e s p i n - o f f from actual construction w i l l d i r e c t l y a f f e c t us - I d o n ' t know f o r sure." ( F . E . A . P . - N W P 1980d:541) be - 138 - " B u t w h a t we h a v e b e e n a r g u i n g w i t h t h e G o v e r n m e n t o v e r i s , we t r y t o r e t a i n as much o f o u r way o f l i f e as we c a n and i n a l o t o f communities along the Mackenzie River the leaders are faced with t r y i n g to salvage whatever k i n d of t r a d i t i o n a l l i f e s t y l e we h a v e got l e f t . We a r e d a i l y b o m b a r d e d w i t h t h e s o c i a l p r o b l e m s t h a t t h e b i g g e r s o c i e t y w e i g h s upon us and a t t h e same t i m e trying to e s t a b l i s h a n d work o u r d i f f e r e n t ways t h a t we c a n t r y t o f i t i n t o some of the development that is happening in the North." ( F . E . A . P . - N W P 1980d:582) In Fort development Simpson, Jerry Antoine i m p a c t s and s o c i a l expressed the following concerns regarding development: " T h e r e have been a l o t o f t h i n g s t h a t have been o v e r l o o k e d d u r i n g these developments, l i k e personal development of a p e r s o n , social development, l i k e how do t h e y see themselves, how do t h e y s e e t h e m s e l v e s d e v e l o p i n g as an i n d i v i d u a l f o r t h e m s e l v e s , t h e i r k i d s , t h e i r g r a n d c h i l d r e n , the people next door, t h e i r c o u s i n s , aunts et cetera, and b e c a u s e of these new d e v e l o p m e n t s , since these developments, t h e i r i n t e n t i o n was n o t t o f u l f i l l these different s o c i a l n e e d s and t h i n g s l i k e t h a t . They o n l y look f o r a s o r t o f mass d e v e l o p m e n t , m a j o r d e v e l o p m e n t s , i n d u s t r i a l d e v e l o p m e n t and I t h i n k i n t h a t way, I t h i n k s o r t o f they themselves might look at t h e m s e l v e s as a human b e i n g b e c a u s e t h e y a r e n o t h a n d l i n g those p e o p l e a s human b e i n g s . Now, t h e r e a r e a f e w t h i n g s t h a t I w o u l d l i k e t o s h a r e w i t h y o u a n d one o f them i s t h a t as a human b e i n g we have t h e r i g h t t o l i v e . The s e c o n d t h i n g i s t h a t we h a v e a r i g h t t o make a d e c i s i o n a n d how we a r e g o i n g to l i v e , n o t o n l y by o u r s e l v e s , but with other people." (F.E.A.P.-NWP 1980e:633) Mr. often Sibbeston accompany of the Fort Simpson changes refers brought by to problems with development. Mr. alcohol abuse Menicouche that: "....don't w a n t no p i p e l i n e u n t i l we h a v e d e v e l o p e d p e r s o n , as a p e o p l e . " (F.E.A.P.-NWP 1980e:855) ourselves as a that states Agnes L a f f e r t y expresses further 139 c o n c e r n s about a l c o h o l : " I d o n ' t b e l i e v e we n e e d a p i p e l i n e r i g h t a t t h i s t i m e . We h a v e got t o have a few y e a r s because it i s going to bring more disasters, i t i s g o i n g t o r u i n more o f o u r y o u n g p e o p l e , a n d I d o n ' t want t o h a v e t o be h e l p i n g o u t my c h i l d r e n and my c h i l d r e n s f r i e n d s to sober up. We want t o t e a c h them a b o u t l i v i n g and t h e i r s p i r i t u a l w e l l - b e i n g f i r s t b e f o r e t h e y go c r a z y o v e r m o n e y . Money i s n ' t e v e r y t h i n g . To me t h a t i s n o t s o . money w i l l n e v e r d i e b u t we s u r e as h e l l w i l l i f t o d r i n k o u r s e l v e s t o d e a t h w i t h a l l t h i s money t h a t now and what will come i n from the p i p e l i n e . " 1980f:856) Ms. Lafferty adds alcohol related deaths money. She s t a t e s native Betty result that that she expects as a r e s u l t there of to see a r i s e development i s an i n a b i l i t y t o we a r e g o i n g i s coming i n (F.E.A.P.-NWP in the crime and t h e e a s i e r handle money rate and access to on t h e p a r t of people. Menicouche refers to alcohol abuse and t o the problems expected of the r a p i d i t y of the l i f e s t y l e t r a n s i t i o n : - " I t i s n ' t o n l y a l c o h o l , i t i s t h e w h o l e way o f l i f e , a n d i f y o u g e t development or a n y t h i n g t o o q u i c k l y b e f o r e you are g i v e n a chance o f even l e a r n i n g t o s u r v i v e , l e a r n i n g t o use t h e t o o l s through e d u c a t i o n and t h a t , i f we d o n ' t do t h a t , a t t h e r a t e t h e p e o p l e a r e d y i n g , w e l l , y o u c a n go a h e a d a n d b u i l d y o u r p i p e l i n e b e c a u s e t h e r e w o u l d be no one t o s t o p y o u . . . . . W e a r e s a y i n g t h a t we w a n t t h e r i g h t t o l i v e , t h e r i g h t t o s a y how we want t o l i v e . We a r e j u s t s a y i n g g i v e us a f e w more chances, give us s e v e n more years that Berger recommended." (F.E.A.P.-NWP 1980f:868) as a In Fort Rae, Georges alcoholism, family colonization and d e v e l o p m e n t . Erasmus breakdown, 140 identified divorces and social suicide problems as the such as impacts of " A n d t h i s i s b e c a u s e t h e r e i s no a s s u r a n c e o f a Dene f u t u r e o f a n y k i n d . We h a v e no g u a r a n t e e s ; we h a v e no c o n t r o l . " (F.E.A.P.-NWP 1980g:894) "We e l a b o r a t e d v e r y c l e a r l y t o B e r g e r what was n e e d e d d e f i n i t e l y was a l o t o f t i m e t o d e v e l o p a s o c i e t y i n t h e N o r t h t h a t e n c o u r a g e d human g r o w t h , e n c o u r a g e t h e c o m p l e t e d e v e l o p m e n t o f t h e i n d i v i d u a l potential and t h e c o l l e c t i v e p o t e n t i a l o f t h e Dene and e v e r y o n e else l i v i n g in the North." ( F . E . A . P . - N W P 1980g:907) 2. Q u o t a t i o n s f r o m t h e P a n e l R e p o r t o f t h e Norman Project Environmental Assessment. "7.1 Conclusions Government 3. Wells Preparedness A p u b l i c i n f o r m a t i o n p r o g r a m n e e d s t o be p l a n n e d a n d c a r r i e d o u t e x p e d i t i o u s l y i n o r d e r t o i n f o r m r e s i d e n t s and w o r k e r s about t h e p r o j e c t and i t s p o t e n t i a l i m p a c t s and m i t i g a t i o n m e a s u r e s , and a l s o t o o b t a i n t h e a d v i c e o f M a c k e n z i e Valley residents f-oi—the purposes of planning and decision" fi making (FEARO 1 9 8 1 : 7 3 ) " E c o n o m y and S o c i e t y Effects 41. Services It i s recommended that realistic government f i n a n c i n g be a s s u r e d and i n p l a c e so t h a t adequate programs exist for planning and s e r v i c i n g t h e p r o j e c t and n e e d s of northern residents." (FEARO 1 9 8 1 : 7 8 ) "Social 47. Upon G o v e r n m e n t Concerns I t i s recommended t h a t d e t a i l e d p l a n n i n g and l o c a t i o n o f m a i n work camps a n d w o r k - s i t e s f o r t h e p i p e l i n e be d e t e r m i n e d i n c o n s u l t a t i o n w i t h n e a r b y - c o m m u n i t y l e a d e r s . " (FEARO 1 9 8 1 : 7 9 ) - - "50. It i s recommended t h a t a l l aspects of project development w h i c h a f f e c t F o r t S i m p s o n and Hay R i v e r be p l a n n e d a n d c a r r i e d out i n close cooperation with local authorities in those communities. 51. It i s recommended that the Proponents provide orientation p r o g r a m s f o r new l o c a l w o r k e r s . . . . It i s further recommended that community advisors, government departments and t h e Proponents collaborate in planning and m o n i t o r i n g these o r i e n t a t i o n programs." (FEARO 1 9 8 1 : 7 9 ) "The R o l e o f Community 59. I t i s recommended t h a t l i a i s o n b e t w e e n t h e c o m m u n i t i e s i n t h e p r o j e c t a r e a and t h e P r o p o n e n t s s h o u l d be f o r m a l l y organized and s h o u l d b e g i n i m m e d i a t e l y . T h i s community c o n s u l t a t i o n i s necessary, not only in preconstruction planning and t h e construction phases, but also in the f i r s t few y e a r s of operation of the project. The G . N . W . T . s h o u l d p a r t i c i p a t e i n t h i s c o n s u l t a t i o n as w e l l . " (FEARO 1 9 8 1 : 8 0 ) In its 141 addition chapter study to actual Advice recommendations, on t h e ' E c o n o m y a n d S o c i e t y ' the Panel that relate, makes a f e w comments t o some degree, to initiatives. "Once a p p r o v e d , the project w i l l link the welfare of the region more c l o s e l y t o r e s o u r c e d e v e l o p m e n t , and w i l l i m p o s e on g o v e r n m e n t a special responsibility to protect Valley residents from p o s t - p r o j e c t d e p r e s s i o n and i t s e c o n o m i c and s o c i a l c o n s e q u e n c e s . " (FEARO 1 9 8 1 : 4 9 ) "The Norman W e l l s p i p e l i n e p r o j e c t i s an a d d i t i o n t o t h e i n t r u s i o n o f t h e i n d u s t r i a l and urban system t h a t b r i n g s f u r t h e r change and r a i s e s s o c i a l concerns i n the native s o c i e t y . P l a n n i n g and c o n t r o l of t h e Norman W e l l s p r o j e c t must work t o a s s i g n more of the economic b e n e f i t s and f e w e r o f t h e s o c i a l c o s t s t o t h e s e p e o p l e . " (FEARO 1 9 8 1 : 5 8 ) "The Panel urges that this project be p l a n n e d i n a way t h a t economic o p p o r t u n i t y i s u s e d f o r t h e b e t t e r m e n t o f a l l p e o p l e who choose to p a r t i c i p a t e i n i t . New t a x r e v e n u e s t o g o v e r n m e n t will a f f o r d t h e o p p o r t u n i t y t o s t r e n g t h e n s o c i a l programs t o d e a l w i t h p r o b l e m s o f t h e i n d i v i d u a l s and t h e c o m m u n i t i e s i n t h e a r e a . This i s t h e o n l y way t h a t b e n e f i t s c a n be made t o f l o w t o r e s i d e n t s i n the p r o j e c t a r e a . " (FEARO 1 9 8 1 : 5 9 ) - 142 - " R e c o g n i z i n g t h a t some i m p a c t s w i l l n o t be i m m e d i a t e l y apparent, t h e P a n e l has c o n c l u d e d t h a t c e r t a i n programs o f m o n i t o r i n g and research should continue throughout the life of the project." (FEARO 1 9 8 1 : 6 6 ) 143 - APPENDIX B D.I.A.N.D. APPROVAL PRESS RELEASE EXCERPT - 144 - APPENDIX B From: D.I.A.N.D. "Norman Wells Pipeline approved with Further One Year Delay," Press Release in Yellowknife, July 30, 1981. SPECIAL INITIATIVES BY TILE FEDERAL GCVET^MKNT, JJ?L, AND ESSO S p e c i a l I n i t i a t i v e s to be taken by' the F e d e r a l Government r e l a t i n g t o P i p e l i n e C o n s t r u c t i o n and O i l f i e l d Expansion . T r a i n i n g programs through expanded government and g o ^ r n r r e n t i n d u s t r y northern t r a i n i n g i n i t i a t i v e s under e x i s t i n g programs, w i t h emphasis on t h e a c q u i s i t i o n o f s k i l l s by n a t i v e people which w i l l be o f use i n the North f o l l o w i n g the ccrnpleticn o f t h e c o n s t r u c t i o n phase. T r a i n i n g o p p o r t u n i t i e s f o r up t o 250 n a t i v e and o t h e r northerners f o r each o f t h e f o u r years o f c o n s t r u c t i o n w i l l b e p r o v i d e d . P r o j e c t e d government incremental funding f o r t r a i n i n g over f i v e y e a r s : $10.5 m i l l i o n . » O f f e r o f a source o f s t a r t - u p c a p i t a l f o r a l o c a l northern b u s i n e s s s o t h a t the Dene and M e t i s can e n t e r i n t o j o i n t b u s i n e s s ventures w i t h E s s o Resources i n o r d e r t o p r o v i d e a d r i l l i n g r i g , a s e r v i c e r i g and support f a c i l i t i e s . The funds would be made a v a i l a b l e through e x i s t i n g government programs. • Enhanced e x i s t i n g government programs t o address the ocntrunity and s o c i a l development needs o f cxxrrrruraties along t h e p i p e l i n e route so .that they can respond t o t h e p r o j e c t as the needs a r e i d e n t i f i e d . N a t i v e people w i l l be d i r e c t l y i n v o l v e d i n t h e d e s i g n o f these programs and i n aspects o f program d e l i v e r y a s they r e l a t e s p e c i f i c a l l y t o n a t i v e corrtuunities. P r o j e c t e d gcvemment funding over f i v e y e a r s : ?4.25 m i l l i o n . . P l a n n i n g support t o northern n a t i v e s t o enable them t o take an a c t i v e r o l e i n the planning and m o n i t o r i n g o f the p r o j e c t and i n t h e d e s i g n and implerrentation o f programs i n i t i a t e d i n response t o the p r o j e c t . P r o j e c t e d funding over f i v e y e a r s : $1.25 m i l l i o n . » A s s i s t a n c e t o the Government o f t h e Northwest T e r r i t o r i e s t o aixrrent p u b l i c s e r v i c e s i n o r d e r t o m a i n t a i n c u r r e n t l e v e l s and standards o f s e r v i c e i n areas such as h e a l t h , housing, education and m a n i c i p a l services. P r o j e c t e d government funding over f o u r y e a r s : $3 m i l l i o n . - 145 - APPENDIX C DECEMBER 7 POSITION PAPER - 146 - •••• •-'fiK^hMm* 1 POSITION OF THE DENE NATION " '' ON THE NORMAN WELLS PROJECT PREPARED FOR THE MINISTER OF INDIAN AFFAIRS AND NORTHERN DEVELOPMENT '•I BY THE DENE NATION METIS ASSOCIATION OF THE DECEMBER 7, 1981 NVfriT^MiSi • .'. - N f l ^ f c ^ : ' BACKGROUND . When the Minister of Indian Affairs and Northern Development announced Cabinet's decision on the Norman Wells project leaders of the Dene Nation .J,^' and Metis association accepted the decision and publicly supported the two-..:^i year delay and the funding provided to alleviate impacts. fBsSHStSSSSSSt '^yl&ty sjtateii^^ V; '% i^eSDsneStraditXon^b^ . )Ca^€dJ^i^^^v\^i>os&^±h^NoverabeE"»2§jfr V The Leadership Meeting, representing a l l Dene Communities and o f f i c i a l ^ ! 1 representatives of the Metis Association of the N.W.T./ was held i n Yellow-^] knife during the week of November 23rd to 27th. held i n Fort Simpson on December 2nd. A follow-up meeting was J l j : A l l aspects of the project were ex-j|^| amined i n d e t a i l . ;>'i^?K^^I SUMMARY OF THE LEADERSHIP DECISION — • 1. — 'Vg^HH •'. The Dene never have, and never w i l l , willingly consent to the use' of^pi>^| H any of our resources prior to the settlement of our Aboriginal Rights .i^Hf This position has been consistently and emphatically stated •• by-'theiJ^jSj Dene over a long period of time and i t most certainly applies to t h e f ^ m Norman Wells o i l f i e l d expansion and pipeline. 2. s '1':^^r* While the Dene accept the Cabinet's decision to grant the required certificate of Public Convenience and Necessity to Esso and IPL the.''i|f:$|p$ Government of Canada must recognize that fr>*i^Tirw*Afi:Ti^ a) That ownership of the o i l at Norman Wells as well as a l l lands used for extraction and transportation of the o i l w i l l be nego- ."' 'i^SjjjiJ tiated the and settled on a b a s i s end o f t h etwo year lands and resources delay satisfactory period. i s n o tconcluded t o t h eDene I fa n agreement prior toJ;..; on these t o t h es a t i s f a c t i o n • o f t h e' l ; - ; ' ^ v ' * Dene prior right t o use every t i l l In to respect o f Indian negotiate o i l f i e l d our b) Affairs and pipeline responsibility That and funding project as a with w i l l Agency provided rules, notonly concluded separate this with "^V&fpi the Minis-^:$|| 11, 198l$$|» f o rt h e Norman and immediate W e l l s ^ ^ s item/in- ^f|||^ assumes t o t a l ; - ^ | ^ | | ; occurs. Dene b y the' Government Agency, be g i v e n impacts and protect o r improve That funding be provided based p a r t i c i p a t i o n & v ^ l c i ^ and,^i^K^ o f Canada t h e authority t o enforce r e g u l a t i o n s and agreements o f t h eN o r t h w e s t p o s - %&Ml but, wherever o f Canada be e s t a b l i s h e d w i t h t o t h e Dene • / t h e f f i # c o n c l u d e d . •" o n November be protected * c o n s t r u c t i o n u n - ..v ";jf>! h a s been required t h e Government mize Government we r e s e r v e negotiations. f o re n s u r i n g t h e Monitoring pliance period Development and resources and that a monitoring that d) and Northern t h el a n d s improved t o t h e Dene we w e l c o m e t h e a g r e e m e n t t h eenvironment sible, c) satisfactory Aboriginal Rgiths That delay n.cans a t o u r d i s p o s a l t o h a l t an agreement this ter t o t h eend o f t h etwo year i required t o t h eenvironment. on t h e agreement xom-jP mini^^^p||| •"'»';• v;-;Y':.i?^~ concluded Territories. with. th^*"" ; ' "•5.-; • • . . . . . . . uTENE^ATlON7GTNTW7t"^T)ECISIONS» RESPECTING U S E OF FUNDS /; • ' The west 1. joint position Territories o f t h eDene N a t i o n o n t h eu s e o f t h efunds a n d t h e Government i sa s JZ^W vv*^ '•• o f the North-i; follows: V- Education and Training: a) amount Total available . i s $T0T5£million , - b) $750,000 The d) will Committee ing by the be carried out by Dene Nation/C.N.W.T. will determine from the Dene Nation will representation office prepare plans for using for train and as well the office of as the the balance of funds. Venture: a) U p t o i$lT"5> m i l l i o n i s b) Studies have available been carried out regarding and disadvantages of joint venture with If the leadership decide E s s o t h e $1.5 to enter into the potential'advantages Esso. the joint venture T h e D e p a r t m e n to f I n d i a n A f f a i r s s t a t e d , o n N o v e m b e r with-Esso, decides not to participate the funds will be available these fall within (such as, types of economic and training, development, the joint other uses community t h a t ' venture provided development, funds other etc.) Development: amount available to the Dene for in 19th, established categories for Norman Wells education Community and Social Total with m i l l i o n i s a v a i l a b l e a l m o s t i m m e d i a t e l y . if the leadership a) identified Association. The Committee Joint d ) of funds The Dene Committee will have regional Metis c) the use Committee. proponents. representation e) - t o b e u s e d d u r i n g 1981/82 f o r n e e d s a s s e s s m e n t a n d p l a n - ning which c) 149 Nation. i n $4V2'5* m i l l i o n , all of which is payable - 150 b) $250,000 to be paid immediately f o r use during 1981/82. c) The balance w i l l be spent during the period ending i n 1986. • •'•'h" . A:- d) The above i s conditional on no d u p l i c a t i o n with government programs . e) M~C<>iruiut'tee*composed7.^ . ,i» ^^^,:be3es$:ablished^ P '•• .:fh A' Planning: a) A t o t a l of $1725 m i l l i o n i s a v a i l a b l e . b) $500,000 i s to be paid out immediately f o r use during 198l/82. ••. |: c) The balance w i l l be paid out i n equal installments of $250,000 per year during the years 1982/83, 1983/84 and 1984/85. 3 • 5. G.N.W.T. Programs: • . •• v a) A t o t a l of $3 m i l l i o n i s a v a i l a b l e . b) This i s to be e n t i r e l y c o n t r o l l e d by the G.N.W.T. c) They need a t o t a l of close to $9 m i l l i o n f o r community ture and health and s o c i a l development. 1 • ^•,.'-'^«" •• •• ul< infrastrac-,V.$| I t would be to the ad- "'''** vantage of the Dene to support the G.N.W.T.'s request f o r addition-,.;; a l funds since most of these funds w i l l be earmarked f o r spending i n Dene communities. ; • 6. . • m Community Advisory Group: a) ivJ _ '.; A t o t a l of'$17,0007000' i s a v a i l a b l e . .../5 b) Thi's^wili^be controil*ed by^the*Dene*Na^iTorr for purposes of pro x viding advice interests on what needs during to be done to protect pipeline construction and the expansion communities of the oil- field: c ) $200,000 i s a v a i l a b l e d u r i n g 1981/82. d) Funds will be used to iOSiHgtfa'Si^^ well as J||| l as ^ecui&ngjitje.cta^ participation in the Monitoring require for Dene •;|l*7||l Agency. -'K^\fj|i MANAGEMENT STRUCTURE ^ r $ $ 8 • •V..' viii ; • ;•• ••::**!« ; The project management committee is a joint committee composed of '.' senior representatives from the federal and territorial N a t i o n a n d M e t i sA s s o c i a t i o n , a n d community governments, T h e 1 1•m e in impacted m u n i t i e s h e l d a s r e q u i r e d . functions Dene;- $$|$ r e p r e s e n t a t i v e s . ber committee would be based in Yellowknife with meetings " com-^!p& C ^ l i l s I The specific 1. T o p r o v i d e c o - o r d i n a t e d d i r e c t i o n o n p r o j e c t management i s s u e s . t 2 . T o r e s o l v e i n t e r - j u r i s d i c t i o n c o n f l i c t s . The Chairperson ject Co-ordinator The office of the committee < -^ ; of the project management committee appointed by the Minister of the Project Co-ordinator will to the Committee. include: Membership of Indian provide and representation F e d e r a l Government: T e r r i t o r i a l Government: on would and be the Northern administrative the committee 2 members 3 members Pro- A ff a i r s . ^ ; | j > support : would be: .|? v - Economic Development and -.1 Tourism "!•''•$] - Inuvik Region - Energy & Resource Development;."^ Secretariat :' : Native A s s o c i a t i o n s / Community Representatives: 5 members The working l e v e l project management co-ordination would be through ,>><•&. the o f f i c e of the project co-ordinator. the p r o j e c t co-ordinator w i l l a c t as a senior l i a i s o n o f f i c e r between the various a u t h o r i t i e s and a c t as chairperson of the Project Management Committee. Based i n Yellowknife, the project co-ordinator's o f f i c e would have a small s t a f f of three to f i v e and may f i n d i t necessary to open a s i t e o f f i c e i n Norman Wells i t '•#A self. • 41 The functions of the project c o - o r d i n a t o r s o f f i c e i n c l u d e : 1 1. Ensuring the co-ordination of various p a r t i e s by r e c e i v i n g a n d # ; ^ disseminating information. 1 2. F a c i l i t a t e input i n t o day-to-day p r o j e c t management issues, In- put to major management issues would be obtained a t the P r o j e c t Kites Management Committee l e v e l . 3- Act as a c e n t r a l information base. The p r o j e c t co-ordinator s o f f i c e would a l s o be involved i n admini1 • & • • ' : ) s t r a t i v e duties f o r the Project Management Committee, conducting research as required and providing information on s p e c i f i c t o p i c s . The project co-ordinator would have no regulatory or enforcement powers; these powers would be l e f t with the e x i s t i n g governmental a u t h o r i ties^. The o f f i c e would be__open to a l l i n t e r e s t e d p a r t i e s to receive t h e i r input on project management issues f o r furtherance ment Committee. to the Project Manage- m - 153 - APPENDIX D TREASURY BOARD AUTHORIZATION - 154 APPENDIX D From: InterGroup Consulting Economist Ltd. Mid-Project Evaluation of S e l e c t e d I s s u e s R e l a t e d t o t h e Norman W e l l s P r o j e c t C o o r d i n a t i o n Office. Winnipeg: D e p t . o t I n d i a n A f f a i r s and N o r t h e r n D e v e l o p m e n t , iytf4. p.JO-J7 3.1 DESCRIPTION OF AUTHORIZATION Authorization and a p p r o v a l group the o f Norman by t h e T r e a s u r y Wells Board, PROCESS impact and where funding requires a non-federal 1s t o be t h e r e c i p i e n t , a c o n t r i b u t i o n a g r e e m e n t recipient. Such requirements i n c l u d i n g most s p e c i a l federal government izations circumstance funding to other and i n d i v i d u a l s . agreements are intended of government federal a r e mandatory to provide feoard government b e t w e e n DIAND and f o r much o f t h e f u n d i n g that i s made a v a i l a b l e by t h e l e v e l s o f governments, Treasury review public interest approvals organ- and c o n t r i b u t i o n a c e n t r a l i z e d approach to the c o n t r o l expenditures and t o ensure that the funds w i l l be used as i n t e n d e d . There i s a standard actors These that must be f o l l o w e d are largely s i m i l a r s e t o f 12 s t e p s i n v o l v i n g more t h a n 25 i n o b t a i n i n g Norman to those and N o r t h e r n f o r other Department o f Indian Affairs approval. The p r o c e s s i s c o - o r d i n a t e d Wells impact funding that requests funding. i n the require Treasury Board by a S e n i o r C o - o r d i n a t i o n Officer i for t h e Norman W e l l s p r o j e c t who i s b a s e d i n D I A N D ' s h e a d q u a r t e r s Ottawa. Ottawa i s t h e a p p r o p r i a t e involved i n the authorization person receives requests the a u t h o r i z a t i o n The ing the funds. Officer feels programs val. 1. 1f p r o c e s s a r e a l s o based i n Ottawa. and t h e n e x p e d i t e s these Officer process is Initiated with o f an a c c e p t a b l e p r o p o s a l An a c c e p t a b l e p r o p o s a l i s consistent with through i s one t h a t the parameters the submission to by t h e g r o u p is received, o f the impact reasonably w e l l , i t goes t h r o u g h would normally request- the Co-ordination and has a r e a s o n a b l y good c h a n c e o f g e t t i n g T r e a s u r y a l l goes This process. Once a p r o p o s a l which, l o c a t i o n b e c a u s e most o f t h e groups f o r funding authorization the C o - o r d i n a t i o n in funding Board the f o l l o w i n g take about appro- steps, three months. Co-ordination O f f i c e r r e f i n e s the proposal Into a form t h a t i s a p p r o p r i a t e f o r r e v i e w by t h e F i n a n c i a l A d m i n i s t r a t i o n o f DIAND f o r u s e i n a T r e a s u r y B o a r d s u b m i s s i o n (1 t o 2 w e e k s ) . - 155 - 2. The main proposal, excluding annexes and appendices lated into French (2 weeks). is trans- 3. Proposal is reviewed and approved by Financial Administration of DIAND (2 weeks — concurrent with step 2). 4. Co-ordination O f f i c e r transcribes proposal approved by Financ i a l Administration into the format suitable for Treasury Board submission (2 to 3 days). 5. Obtain departmental signatures for forwarding to Treasury Board -- about 20 signatures needed (1 week). 6. Provide Minister with overview of Treasury Board submission and obtain his signature (1 to 2 weeks). 7. Review of submission by Treasury Board analyst (3 weeks mandatory) . 8. Schedule submission f o r Treasury Board agenda and hold Treasury Board meeting for approval (3 weeks). 9. Treasury Board minutes prepared and department making submission n o t i f i e d of Treasury Board decision (1 to 2 weeks). 10. Transfer of funds into DIAND Base (1 week). 11. Prepare and sign contribution agreement (1 week -- concurrent with step 10). 12. Request and obtain f i r s t payment (1 week). This system can be shortened considerably by agreement at the political l e v e l ; however, this can only be done in exceptional cases. The steps and time period noted i n the preceding description assume that everything goes reasonably w e l l . For t h i s to occur, many conditions must be s a t i s f i e d , including the following: 1. The person co-ordinating the process must have experience in working through the process and a good working relationship with the Financial Administration s t a f f and Treasury Board analysts. 2. The Financial Administration s t a f f and the Treasury Board analyst must be very f a m i l i a r with the program for which funding is being requested.
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Programs of socio-economic impact management : the Norman Wells project Kerr, Muriel Ann 1985
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