A Two-Roads Approach to Co-Reclamation: Centring Indigenous voices and leadership in Canada’s energy transition

Published as part of our Indigenous Perspectives series of Indigenous-led climate research, produced in co-operation with the Centre for Indigenous Environmental Resources.

By Jean L’Hommecourt,1 Marie Boucher,1 Gabe Desjarlais,1 Joe Grandjambe,1 Martha Grandjambe,1 Dora L’Hommecourt,1 James Ladouceur,1 Clara Mercer,1 Douglas Mercer,1 Edith Orr,1 Audrey Redcrow,1 and James “Scotty” Stewart1

with Alexandra Davies Post,2 Christine A Daly,3 Bori Arrobo,1 Gillian Donald,4 Dan McCarthy,3 David A Lertzman,3 and S Craig Gerlach3

Affiliations: Fort McKay First Nation,1 University of Waterloo,University of Calgary,3 and Donald Functional & Applied Ecology Inc.4

Overview

This is a chapter in a story that is still unfolding. It is a story about a First Nation and academic co-researchers who learned from one another and, in doing so, co-created intercultural planning tools to prioritize Indigenous voices and leadership in Canada’s energy transition.

A gap exists in Canada’s oil sands mine closure and reclamation policies and practices that results in the exclusion of Indigenous treaty and Indigenous rights holders from meaningfully stewarding the repair of their degraded traditional territories. While government policy and regulations require that the impacts of mine projects on Indigenous rights holders and the land be mitigated, current approaches to mine closure and reclamation have fallen short, especially regarding mine closure’s social and cultural aspects. It is important that both people and natural elements be included in the plans for repair of degraded landscapes in order to sustain landscapes as well as the societies and cultures that depend on them. To adequately prepare for the energy transition, the oil and gas sector—Canada’s largest emitter and contributor to climate change (Government of Canada 2021)—must reckon with the historic and ongoing impacts on the land and on the Indigenous rights holders who continue to feel the effects of this industry’s footprint. This is of particular concern to the Fort McKay First Nation, whose traditional territory within Treaty 8 contains the Athabasca oil sands and which has been degraded by oil sands industrial activities.

For decades, Fort McKay community members have raised concerns about the cumulative impacts of the oil sands industry on their traditional territory. Figure 1 shows a bird’s-eye view of the industrial disturbance within the Fort McKay Traditional Territory (outlined in white), both in 1967 (left) when the first oil sand activity began commercial-scale operations and today (right). The pink areas represent Fort McKay First Nation reserve lands, the green are active oil sands projects, the red are approved but not yet operating projects, and the orange are primarily oil and gas exploration areas.

In 1967, when operations began, community members in Fort McKay First Nation had no recourse for consultation and engagement with oil sand operators. Decisions about mine closure and reclamation planning were made without input or consideration of the Cree and Dënesuliné (hereafter Dene) people who have lived on that land since time immemorial. By the 1980s, Fort McKay First Nation community members were being told that the land would be returned to what it was pre-disturbance, and the effects of the operations would be minimal. Today, companies acknowledge the landscapes will be markedly different than the original conditions, yet returned to the regulatory target of a self-sustaining boreal forest ecosystem.

Figure 1 –An eagle-eye view (left) of the oil sands industrial footprint within the Fort McKay Traditional Territory (white line) in 1967, the year oil sands activities commenced, and (right) present day.
Figure 1 –An eagle-eye view (left) of the oil sands industrial footprint within the Fort McKay Traditional Territory (white line) in 1967, the year oil sands activities commenced, and (right) present day. Map: Fort McKay First Nation. Click to enlarge.

There’s 55 years of that project on Fort McKay First Nation Traditional Territory but not 55 years of involving Fort McKay First Nation in decision-making or planning.

Bori Arrobo, Director of Sustainability at Fort McKay First Nation

The effects of these early mines include not only the cumulative effects on the land but decades of planning and decision-making that set a precedent in the region with newer projects and operators. These maps don’t just tell us about the past but also what is to come in Fort McKay First Nation Traditional Territory. Figure 1 (right) shows the approved but not yet operating projects (in red) that will extend the more-than-50-year legacy of the oil sands industry well into the future. There is a legal requirement for Indigenous engagement and consultation on oil sands projects (Government of Alberta, 2013), but inclusion of Indigenous voices and needs in mine closure and reclamation planning decisions specifically remains a gap in government and oil sands industry policy and practice. 

Using traditional shield art and oral storytelling, (from left) Gillian Donald, Gabe Desjarlais, and Elders Clara Mercer, Doug Mercer, and Scotty Stewart share their visions for mine reclamation and closure of the Fort McKay Traditional Territory. For complete details see Daly et al. 2022. Photo credit: Christine Daly
Using traditional shield art and oral storytelling, (from left) Gillian Donald, Gabe Desjarlais, and Elders Clara Mercer, Doug Mercer, and Scotty Stewart share their visions for mine reclamation and closure of the Fort McKay Traditional Territory. For complete details see Daly et al. 2022. Photo: Christine Daly

In 2018, Fort McKay First Nation partnered with the universities of Calgary and Waterloo to continue the journey to have their unique Cree and Dene perspectives and knowledges represented in the repair or reclamation of their lands and waters. Together, we created the Co-Reclamation Research Project in service of a movement towards a participatory and inclusive planning approach that empowers Fort McKay First Nation with an equitable role in mine closure and reclamation decision-making. The project co-created reclamation and closure planning tools and processes to support communication of Fort McKay’s socioeconomic, environmental, and cultural priorities and perspectives during repair of oil sands-degraded landscapes. An oil sands company participated in early aspects of the project.

In the next chapter of this story, we describe the research activities and some key lessons the co-researchers learned from one another through the Co-Reclamation Project.

These lessons contain truths, tools, and pathways that may prove useful to Fort McKay First Nation, other Indigenous Nations that adopt them, the energy industry, and the federal, provincial, and territorial governments in Canada navigating the transition to a low-carbon economy.

Including:

  • A description of what the traditional lands and waters, and their intimate relationship to culture, mean to Fort McKay First Nation community members;
  • The Two-Roads Approach—an intercultural governance model for inclusive energy project partnerships that supports multiple cultural paradigms in project decisions;
  • The Cycle of Respect—an indigenized code of conduct developed for effective intercultural communication and collaborative action; and

An Intercultural Reclamation and Closure Framework—inspired by the Two-Roads Approach and knowledge holders from Fort McKay, this framework details how Indigenous and non-Indigenous people can work together to reclaim lands degraded by energy projects using parallel paths that support distinct ways of knowing and being, while enabling inclusive decision-making at key planning bridges.

Land from the perspective of Fort McKay First Nation

Moose Lake, Fort McKay First Nation reserve land.
Moose Lake, Fort McKay First Nation reserve land. Photo: Fort McKay First Nation

Fort McKay First Nation has nearly 900 Cree and Dene band and community members. About 500 of them reside in the Hamlet of Fort McKay, which is located on the shores of the Athabasca River in what is now known as Northeast Alberta. Both historically and today, Cree and Dene community members depend on their ability to hunt, gather, fish, nurture, and work in nature within their traditional territory to sustain their cultural heritage, languages, access to land, and practice of rights.

Sun through trees
Photo: Fort McKay First Nation

However, the extensive oil sands industrial activities impact their traditional land use activities and, hence, the sustainability of their culture and way of life. For decades, Fort McKay community members have talked about the impacts the industry has on the land. During our gatherings, Fort McKay co-researchers often describe the pristine beauty of the land before the effects of the industry were felt. Elders Edith Orr and Marie Boucher spoke of a time when birds were heard more frequently in the spring, berries were easier to harvest and tasted better, and the air smelled fresher and cleaner than today.

It is important to remember what the land was like before widespread oil sands industrial disturbance, says Bori Arrobo, Director of Sustainability at Fort McKay First Nation. “Before we can start talking about reclaiming the land, we need to recognize the land before disturbance happened. We need to recognize who were the original people on the land. How the original people live on the land. And we need to recognize and acknowledge the impacts, the losses from a degradation of that land.”

Jean L’Hommecourt is Dene and a Fort McKay First Nation community member on Treaty 8 territory. She is a descendant of Treaty 8 signatory Chief Adam Boucher. Jean is currently employed with the Fort McKay First Nation Sustainability Department as a Traditional Land Use Specialist, serves as a board member of the Keepers of the Water Group, and is the community liaison on the Co-Reclamation Project. In 1967, when the first oil sands company began operations, Jean was just four years old (see the left image in Figure 1). She reflects on how she remembers her childhood in the boreal forest of the Fort McKay Traditional Territory, and the effects the oil sands industry has on her and her community: 

“My dad used to take us out on the land on the river and across to the Birch Mountain area where I used to walk with him. And now looking at the other side, the other picture, it’s like, you can’t even make sense of where you are or where things are. The land was once pristine. So, it kind of makes you, makes me feel lost looking at the second map [referring to the right map in Figure 1]. It affects me emotionally because just looking at it makes me realize how much was taken from me. [The land] keeps our values as First Nations. But slowly we are seeing everything being taken from us. We need you to fix all the stuff industry did. We’re missing a big piece here.” 

Next, we highlight Fort McKay’s work in developing an intercultural governance model for inclusion of their deep knowledge and voices in reclamation of their homelands, and discuss how we applied this model in our Co-Reclamation Project.

Applying a Two-Roads Approach to co-reclamation and the energy transition

Energy resource projects perpetuate environmental and climate injustices when they focus solely on the priorities, perspectives, and processes of companies and federal, provincial, and territorial governments to the exclusion of the traditional territory Indigenous rights holders’ voices and approaches.

The Two-Roads Approach was developed from 2009 to 2013 by Fort McKay community members, other members of Indigenous nations, oil sands operators, and the Alberta government through the Cumulative Environmental Management Association (CEMA) Biodiversity Traditional Knowledge Study (Two Roads Research Team 2011, 2012). CEMA generated recommendations to implement a Two-Roads Approach to include Indigenous community members and incorporate their Indigenous Knowledge into reclamation and closure planning. The team applied a Two-Roads Approach to the Co-Reclamation Project in order to create an ethical space (Ermine, 2008) for multiple cultures to share the best of both worlds (Lertzman, 2010) while reclaiming the degraded Fort McKay Traditional Territory. The Co-Reclamation Project was the first attempt to apply this intercultural reclamation and closure planning approach.

We are all treaty people

While a Two-Roads Approach was created over a decade ago through the multistakeholder group CEMA, it was similarly used by our ancestors to understand each other and make treaty agreements to share the land and its natural resources. This intercultural government model co-created by Fort McKay First Nation and members of the oil sands industry can be used today to support inclusive renewable and non-renewable energy project partnerships that support multiple cultural paradigms in project decisions—from exploration through to operations, project reclamation, and closure.

L’Hommecourt shares her experiences as a Two-Roads research team member who helped create the Two-Roads Approach and, later, applied it as a co-researcher of the Co-Reclamation Project:

“We were sitting together as a group in CEMA that included representatives from five First Nations in the region. The Two-Roads Approach is something we came up with while talking about how to bring forward our concerns and issues and how to deal with them in a manner that was respectful of our Indigenous views and inputs. We have a different set of values than the mainstream or settler society as far as land connections and a connection to Mother Earth. We walk different paths. A lot of times we get pushed into a separate way of thinking that’s not ours. In order to keep our values, we want to walk a separate road. We walk together and bring our values and ideas together at certain points along our separate routes. We try to coordinate those points by building bridges and coming to some kind of understanding while working alongside each other. A Two-Roads Approach goes all the way back to the Treaty signing. Our ancestors had to communicate in a way that was understood by the newcomers and come to an agreement ‘for as long as the rivers flow, grass grows, and sun shines.’ Those terms are a perfect example of universal understanding by everybody on Mother Earth that our identity as Indigenous Peoples is as peoples of the land.”

Figure 2: Climate change risk, relationships, and options to reduce climate risks from a scientific perspective (adapted from IPCC 2022). Click to enlarge.
Photos of the Fort McKay Traditional Territory to help illustrate the purposes and relationships between plants, soils, wetlands, or muskeg shared through oral storytelling by Jean L’Hommecourt. Photo credit: Fort McKay First Nation.
Photos of the Fort McKay Traditional Territory to help illustrate the purposes and relationships between plants, soils, wetlands, or muskeg shared through oral storytelling by Jean L’Hommecourt. Photo: Fort McKay First Nation.

Climate change impacts, as well as the methods to mitigate them and build resilience, can be understood from both a scientific road and an Indigenous road (Figure 3). Here we present both western and Fort McKay ways of knowing and understanding climate change in a two-row visual code as described by Goodchild (2021):

A scientific perspective, according to the United Nations Intergovernmental Panel on Climate Change (IPCC 2021, 2022), holds that an atmospheric increase in greenhouse gases like carbon dioxide and methane since 1750 is unequivocally caused by the burning of fossil fuels. Increased greenhouse gas levels have resulted in global surface temperatures warming by 1.09oC in the last decade relative to 1850-1900, with 2.7oC of warming expected this century unless significant further commitments are made to reduce greenhouse gas emissions in the coming decades (Climate Action Tracker 2021).

Climate change is already resulting in more dangerous and extreme weather, creating widespread suffering in every region on Earth, and the effects will only intensify with each additional warming increment (IPCC 2021, 2022).

From a Fort McKay member perspective as described by L’Hommecourt:

“It is our belief that everything on Mother Earth was given to us for a reason. Everything has a purpose. Everything has a spirit. So, with regards to climate change, the trees are the most important.

The trees are all there to give us life and to be protective of us. They stand strong and take in all the toxins. They cleanse the air for us and give us life’s breath. As Indigenous Peoples, we recognize all the many uses and different kinds or species of trees. We want to continue to protect those trees, so our future generations have those to depend on too.

The soils, the muskeg [also known as peatlands] are especially important because they act as a filter. Muskeg is a big sponge that soaks up all the toxins and the carbons. Muskeg protects us from climate change. But the land and that map has all been ripped out, dried up and stored away. Even though it was stored away in stockpiles for many years, there’s no way they can bring back muskeg that serves the purpose it was first put on Earth by the Creator.

All the land transformations have changed our climate, the directions of the winds, the velocity of the winds, the water systems, and species are disappearing. Now we’re beginning to suffer the consequences. Our ancestors warned us that we were going to come to a time where we’re going to see hardship like we have never seen before. And it’s all due to the planet’s biggest predator, mankind, destroying Mother Earth.”

Berry picking in muskeg, which are organic, carbon-storing wetlands. Photo: Fort McKay First Nation

Adoption of the Two-Roads Approach enables multiple worldviews, knowledges, and governance systems to exist together in balance. This approach was chosen for its ability to create spaces or bridges for Indigenous and non-Indigenous participants to sit in between and learn from different cultural paradigms and knowledge systems (Goodchild 2021). Moore (2017) describes this space as Trickster consciousness, an in-between place that disrupts the opposites and liberates people from conventional thinking. These bridges may be the optimal areas from which to examine complex challenges, like climate change, and to create an ethical energy transition roadmap for Canada that privileges multiple voices and knowledges, including Indigenous Nations like Fort McKay. 

The Cycle of Respect: Towards an intercultural governance model

Before the co-researchers could begin to co-reclaim the land that supported Fort McKay’s collective voice and vision, we recognized a need for new rules of engagement that would not reinforce harmful patterns. First, co-researchers spent time on the land together to understand Fort McKay expectations for the environmental quality needed to support their traditional land uses, explore an oil sands company’s scientific knowledge and approach to reclamation, and support relationship (re)building in a grounding setting. Later, the Cycle of Respect was co-created to guide the ethical behaviour and actions of co-researchers when their different roads came together to plan for mine closure and reclamation. This new tool was designed to support a shared ethical space where both Indigenous and non-Indigenous co-researchers could meaningfully and ethically engage with one another (Ermine, 2008).

The Cycle of Respect is an intercultural tool that contains a set of principles to assist oil sands operators and government agencies with ethical intercultural dialogue and meaningful engagement with Fort McKay First Nation. It was developed using traditional Indigenous decision-making processes for dialogue and knowledge exchange: talking circles and storytelling. Other Nations and industries may choose to adopt, modify, and apply the Cycle of Respect to their respective contexts.

The Cycle of Respect was co-created by Fort McKay, an oil sands company, and academic co-researchers at the Youth Centre in the Hamlet of Fort McKay. Sitting in a talking circle, each co-researcher shared a story from past government, industry, and Indigenous engagements that contained a teachable moment. One by one, each co-researcher passed an eagle feather around the circle and shared their memorable experiences, good and bad. Once the circle was closed, co-researchers came together in two smaller circles to identify key principles that could support a respectful, safe, and collaborative intercultural space for reclamation dialogue and action. Through intercultural discourse, theme identification, and validation over the course of several meetings, the teachable moments transformed from a simple list of experiences to a dynamic and interrelated set of guiding principles. These principles were transposed onto a medicine wheel using Cree, Dene, and English languages and named the “Cycle of Respect” by Elder Scotty Stewart (Figure 3).

Figure 3: Top, the Cycle of Respect, an indigenized Co-Reclamation Project code of conduct. Left Elder Clara Mercer teaching co-researchers about Cree language and a Cree perspective of the Cycle of Respect. Right, co-researchers co-creating this tool within a talking circle and Jean L’Hommecourt recording everyone’s ideas.
Figure 3: Top, the Cycle of Respect, an indigenized Co-Reclamation Project code of conduct. Left Elder Clara Mercer teaching co-researchers about Cree language and a Cree perspective of the Cycle of Respect. Click to enlarge. Below, co-researchers co-creating this tool within a talking circle and Jean L’Hommecourt recording everyone’s ideas.

Within its centre, the Cycle of Respect contains the motto for the Co-Reclamation Project, which was coined by Elder Clara Mercer. In Cree the project motto is Te Mamano Aski Ki Kaklo Asiniwak and in Dene it is ɂeła ɂeghdalaı́da NihaTuha, which both roughly translate as “working together for the betterment of our people and our land.”

Following guidance from Fort McKay Elders, principles derived from the stories were woven together within a medicine wheel containing Cree, Dene, and English languages; Cree colours; and quadrants representative of the four seasons and four directions. Adoption of the principles starts with foundational elements in spring (yellow, east) followed by continued growth through the addition of more principles during summer (red, south), fall (blue, west), and winter (white, north). Each principle feeds into another: for example, several Fort McKay co-researchers stressed that to participate in a good way, one must be honest and transparent with one another in order to be open to receiving new understandings. Each principle is relationally bound to the next and all must be embodied for a chance to participate meaningfully in intercultural collaboration. The work to communicate the Cycle of Respect principles in Cree, Dene, and English languages remains an ongoing but integral piece of this story. As the dearly missed Elder Clara Mercer said, “our [Cree and Dene] languages are very, very important. It is our identity. It is who we are and what we are. And our whole connection to Mother Earth.” The Cycle of Respect and the methods used to create it offer a pathway for Indigenous Nations to take when (re)building relationships and engaging with settler institutions, including government, industry, and academia. As Canada transitions to a low-carbon economy, tools like the Cycle of Respect are key to ensuring that there is a foundation of respectful communication that enables energy planners, policy makers, industry and government representatives, and other decision-makers to understand Indigenous people’s vision for the future of traditional Indigenous territory.

Cultural Reclamation and Climate Mitigation: The Intercultural Reclamation and Closure Framework

In this chapter of the story, we describe a new process that was created by co-researchers for the oil sands industry, government, and Fort McKay First Nation to use when planning for the future of Fort McKay’s traditional homelands after closure of an oil sands project. It is called the Intercultural Reclamation and Closure Framework. Lands reclaimed using this new process are proposed to have shared socio-economic, cultural, and environmental post-closure benefits (Figure 4).

The illustration of the framework was inspired by the Two-Roads Approach (Two Roads Research Team 2011, 2012) and lessons shared by the late Elder Clara Mercer, L’Hommecourt and the late Dr. David Lertzman. The framework depicts an oil sands company and Fort McKay walking parallel paths and meaningfully working together on reclamation and closure at key bridges to connect past, present, and future generations with the repaired landscape. Elder Clara Mercer shared that the “first seven strands of sweetgrass represent the seven generation behind us … [those who] made the trails [Fort McKay First Nation] have been walking up until now … the old trails have been destroyed … by dams, industries. So now our ancestors are having a hard time to find us to help us heal.” Dr. David Lertzman shared his reflections about breaking trail in deep snow: “breaking trail under these conditions is pretty tough going. It’s harder. Takes longer. And going up hills is more like swift hopping, really … so it’s a tough journey, but it’s a good journey because I know that the harder it is for me to break trail the more someone else after me is going to appreciate it.” The Intercultural Reclamation and Closure Framework illuminates six key bridges or phases for distinct cultures walking their own paths to meet at to share knowledges and co-create reclamation and closure plans that enable future generations of Fort McKay to stay connected to their ancestors through reclaimed ancestral trails. The Intercultural Reclamation and Closure Framework is meant to be used in combination with the Cycle of Respect, whereby the Cycle of Respect principles guide participants’ actions when they meet together at each of these Framework’s recommended bridges.

Figure 4 - The Intercultural Reclamation and Closure Framework illustrates how multiple cultures can approach project closure and reclamation of energy resource projects on parallel paths that support distinct ways know and being and enable inclusive decision-making at key bridges or phases during planning. (Right) Fort McKay community members on the land.
Figure 4 – The DRAFT Intercultural Reclamation and Closure Framework illustrates how multiple cultures can approach project closure and reclamation of energy resource projects on parallel paths that support distinct ways know and being and enable inclusive decision-making at key bridges or phases during planning. Click to enlarge.

The re-establishment of vegetation, forests, peatlands, and traditional land uses on land disturbed by energy projects are important cultural and life-sustaining climate mitigation actions to Fort McKay. The six bridges of the Intercultural Reclamation and Closure Framework that support these actions are:

  1. Growth of relationships and establishment of reclamation collaboration principles: This foundation should precede energy project approval and continue throughout project operations and closure (e.g., by using an intercultural code of conduct to support dialogue and mutual learning).
  2. An Aligned Intercultural Closure Vision: A shared idea about the future reclaimed landscape that acts as a guiding light for mine closure and reclamation planning and design decisions.
  3. Design of a Traditional Land Use Planning Tool: A Fort McKay-created geospatial planning tool communicates where and how to incorporate key traditional land use features into reclamation and closure plans from their unique worldview.
  4. The Making of a CoReclamation and Closure Plan: This plan is made with (not for) Fort McKay First Nation with support from the shared Intercultural Closure Vision, Traditional Land Use Planning Tool, and the best of reclamation science.
  5. Implementation of a Co-Reclamation and Closure Plan: The degraded landscape is co-reclaimed (i.e., land recontoured and the re-establishment of soils, plants, wildlife habitat, and Fort McKay access) using the Co-Reclamation and Closure Plan.
  6. Co-Monitoring and maintenance: Monitoring data is gathered from reclaimed parcels of land using a Two-Roads Approach to determine whether a reclaimed landform has achieved the aligned closure vision or not. Maintenance and/or adaptive management is applied when the landform is not meeting the target (Davies Post forthcoming). 

The framework is a work in progress at this point in our story, as it continues to be refined and validated by Co-Reclamation co-researchers (Daly et al. forthcoming).

Fort McKay and University co-researchers in two talking circles that created the Fort McKay Mine Closure Vision. Photo Credit: Christine Daly.
Fort McKay and University co-researchers in two talking circles that created the Fort McKay Mine Closure Vision. Photo: Christine Daly.

Here we will explore an example of how the second bridge, an aligned intercultural closure vision, was co-created between Fort McKay and an oil sands company. For context, it is considered a good practice for mining companies to engage affected stakeholders and Indigenous Peoples to enable a shared vision and shared responsibilities in mine reclamation, closure planning, and post-mining results (ICMM 2019; LDI 2021; MAC 2008; MAC 2021; Morgenstern 2012). After all, Fort McKay First Nation will live with the socioeconomic, environmental, and cultural results of mine reclamation and closure decisions for generations. So, it was significant when Fort McKay and an oil sands company made gestures towards a shared idea about the future reclaimed landscape (Table 1). This milestone—creating parallel visions—occurred using Fort McKay protocols and practices in the community of Fort McKay during February 2020. For complete details, see Daly et al. 2022. Briefly, Fort McKay shared big picture aspirations and values that described successful implementation of mine reclamation and closure of their traditional territory from their individual perspectives. This included describing what they want to see, hear, and experience on reclaimed lands in the future. The sharing of ideas within a talking circle supported a collective understanding of individual ideas, a refinement of ideas into themes, and ultimately a realization of the Fort McKay vision. Later that month, the Fort McKay closure vision and an oil sands company’s vision of success were communicated within a talking circle composed of Fort McKay band members, oil sands company representatives, and university co-researchers. This collective talking circle resulted in the shared decision to work together using parallel visions. This decision demonstrated shared research project control and authority and alignment between the visions in the following ways: working together on reclamation; reciprocal learning; and improving relationships. Fort McKay’s vision emphasizes that inclusive reclamation practices, such as using a Two-Roads Approach and creating a mutually beneficial closure reclamation practices, are acts of reconciliation.

Oil sand company visionFort McKay First Nation Vision
Collaboratively reclaim impacted land with Fort McKay First Nation to enhance reciprocal learning in land stewardship, relationships, and trust in reclamation and closure outcomes.Reclaiming the land is a form of reconciliation, and Fort McKay First Nation must define those targets. Part of reconciliation is to recognize the land in its original state, who are the original peoples of the land, the impacts which have been done, and to acknowledge loss.
 
We will achieve this through long-term commitment with proper ceremony, First Nation (Cree and Dene) languages and knowledge, and the best of reclamation science to foster mutual respect, understanding, and respect, and bring back respect to the land.

Table 1: Project and/or mine closure visions described from parallel roads (Daly et al. 2022) using a two-row visual code format from Goodchild (2021).

A second research method or activity was used to explore Fort McKay and company closure visions. During November 2019, a Fort McKay co-researcher designed and led a reflective activity on land stewardship perspectives in the context of mine reclamation and closure. First Nation, company, and university co-researchers were asked to paint an individual or small group mine closure vision on modern versions of Fort McKay traditional shields (Figure 5). Later, they held their art up for fellow co-researchers to view while telling the story of the meaning behind the artistic interpretation of a mine reclamation and closure vision. For instance, the vision that Gillian Donald, long-time technical advisor to Fort McKay First Nation, has for mine closure and reclamation of the Fort McKay Traditional Territory is as follows (Figure 5): “Water is a critical element of the environment, and so I tried to paint in the bluey-green area of this idea that reclamation will ultimately create a landscape that has water flowing through it and supports ecological processes…. When we drive to [Fort McKay] … the landforms being constructed at the mines … stay there for a really, really long time. Why do things take so long to be reclaimed? When you drive by [east mine] for years and years and years, there’s a big sandy area with a huge sign that says “Reclamation in Progress.” So, you think, “what reclamation is happening there?” I understand the process because I read the closure plans and I know it takes a really long time. But if nobody is reading those plans, they’re driving by there all the time, [thinking] why does it take so long? So, that’s kind of what this stretch of brown is there for—that the landforms are there and take a really long time to build at the mines. Then, once there’s little parcels that are ready for reclamation, as time progresses. But it takes a really long time and eventually this would transition into an integrated landscape that has water and vegetation.”

Using traditional shield art and oral storytelling, (from left) Gillian Donald shares her visions for mine closure and reclamation of the Fort McKay Traditional Territory while Gabe Desjarlais, and Elders Clara Mercer, Doug Mercer, and Scotty Stewart listen.
Co-researchers’ collective visions for mine reclamation and closure of the Fort McKay Traditional Territory painted on traditional shields. Photo: Christine Daly.

The potential for oil sands companies and Indigenous Nations like Fort McKay to align on intercultural closure visions was demonstrated across individual, and within small-group, traditional shields. There were similar reclamation planning elements across the closure visions, such as water, trees, and return of wildlife. Also, some company and Fort McKay co-researchers elected to create small group traditional shields together, instead of personal art pieces. These small group visions were communicated using plural pronouns and displayed personal accountability. For example, co-researchers made statements such as, “that’s our idea for reclamation” and group members signed their collective artwork. A company co-researcher said, “I could hear everyone talk about trees. We heard water and trees the most. We wanted to include that, so the three of us put the tree in the center and then around the tree we each put things that reclamation meant to us.” After closure visions were shared through traditional shield art and oral stories within a talking circle, Elder Joe Grandejambe said co-researchers had “come together to make one story and everyone had almost the same idea, a good idea about the reclamation.” While Fort McKay co-researchers shared a unified voice that historic and contemporary mine reclamation and closure planning in their traditional territory does not currently meet the community’s land use needs, the Co-Reclamation Project’s intercultural planning activities and meaningful inclusion of Fort McKay provided hope for improved reclamation outcomes for future generations. Elder Edith Orr shared that she had “lots of hope for reclamation, for my kids to be able to enjoy the land one day, or their grandkids, or just our future generations.

Elders Edith Orr and Dora L’Hommecourt looking out onto Moose Lake. Photo: Alex Davies Post.
Elders Edith Orr and Dora L’Hommecourt looking out onto Moose Lake. Photo: Alex Davies Post.

In closing

The intercultural governance model, framework, and tools in this case study present innovative approaches to support the braiding of Indigenous and non-Indigenous ways of knowing and collaborative action. When applied, they support inclusion of Fort McKay’s voice and leadership in Alberta’s and Canada’s energy transition and the conservation and reclamation of the First Nation’s culture, which is permanently and intimately connected to its homelands. As we said at the beginning, this story is about Fort McKay First Nation and university co-researchers who learned from one another. The story is still unfolding. Time will tell if these intercultural research products are adopted into routine practice and policy by governments and the energy industry.

Acknowledgments

We wish to acknowledge the contributions of the co-researchers who were lost along this research journey: Elders Clara Mercer and Doug Mercer; and mentor and friend Dr. David Lertzman. Funding was provided by the Alberta Conservation Association, an oil sands company, MITACS Accelerate, and University of Calgary scholarships. Research operated with university ethics approval and in accordance with the Tri-Council Policy Statement: Ethical Conduct for Research Involving Humans (TCPS).

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McCarthy, Daniel, Martin Millen, Mary Boyden, Erin Alexiuk, Graham S. Whitelaw, Leela Viswanathan, Dorothy Larkman, Giidaakunadaad (Nancy) Rowe, and Frances R. Westley. 2014. “A First Nations-led Social Innovation: A Moose, a Gold Mining Company, and a Policy Window.” Ecology and Society 19 (4): 2–20. http://doi.org/10.5751/ES-06771-190402.

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ʔuyaasiłaƛ n̓aas, or Something happened to the weather

Published as part of our Indigenous Perspectives series of Indigenous-led climate research, produced in co-operation with the Centre for Indigenous Environmental Resources.

The Golden Rule, as it is commonly known today, of treating those around you how you would want to be treated, is a moral principle of philosophy found in many cultures throughout the world. Remote Indigenous communities on the west coast of Canada are no exception. In a recording taken in the early 1990s, late Ahousaht elder Caroline Little shared a story in her language that invokes this same principle. When revealing the lesson in the story, she said “ʔuyaasiłaƛ n̓aas” (uh-yah-sith-akth naws), which means “something happened to the weather.”

In Caroline’s story, the weather was the protagonist, wielding its power and might to enforce the important teaching to treat others with respect. Her story is best told through her language, where the English constraints of isolating environment and land from the community cannot take hold; within her language these important concepts are interconnected. Compared to the ancient roots of Caroline’s language of Nuu-chah-nulth, climate change is a relatively new concept that is now making its way into languages throughout the world. Nuu-chah-nulth does not yet have a direct translation for this concept. However, through language and stories like Caroline’s, we can better understand climate change and our response to it, within the living moral principles and teachings of effective stewardship, so that we might better strive for oneness with the environment around us.

Faced with the ongoing threat of climate change, Indigenous knowledge and stewardship practices are vital to land use planning and natural resource management. Within Canada, Crown government land use planning departments are gradually beginning to implement policy to act in full partnership with Indigenous communities, recognizing the role that Indigenous stewardship over lands and waters has played in sustainable natural resource management and economic development since time immemorial (Alangui et al. 2018). Additionally, Indigenous communities are increasingly recognizing the benefits and potential of conducting both independent and collaborative planning processes. Land use planning in Indigenous territories that adheres to Indigenous governance and law protocols provides a means to support the well-being of communities and ecosystems. Planning can become a tool for sustainable economic development, environmental conservation, and the minimization and adaptation to climate impacts through incorporating Indigenous knowledge and culture into decision making.

For Indigenous knowledge to be implemented appropriately throughout these planning processes, Indigenous communities must either act in a leadership capacity or be full partners if the planning involves provincial, federal, or municipal orders of government. 

The use of Indigenous languages, and specifically Indigenous place names, is a significant dimension to stewardship that can be unearthed through Indigenous-led planning.

Welcome figure in the fog: Matilda Inlet, Ahousaht territories. Photo: Tara Atleo

Indigenous language and knowledge should also play a significant role in climate action efforts. The value of Indigenous knowledge comes from living among and as one with the land and understanding the complex systems and gradual changes taking place over time. In many cases, particularly throughout Indigenous communities in Canada, this knowledge is shared through the language and oral history, and in many cases the true value of the knowledge is often very challenging to translate. For Indigenous communities, language carries the culture, teachings, law, governance, and connection to the territories. Language sits at the heart of stewardship. With most Indigenous languages in Canada at risk of extinction, recognition and preservation of these languages are necessary responses to decipher the knowledge needed to combat climate change (Krupnik et al. 2018).

Amongst British Columbia’s 34 Indigenous languages (First Peoples’ Cultural Council 2018), many have words or phrases similar to hišuukiš cawak (hish-ook-ish tsah-wok), or “everything is one and interconnected,” in the Nuu-chah-nulth (new-chah-noolth) language, from the west coast of Vancouver Island. This important teaching, heard throughout many communities in different regions, references the deep connections that Indigenous communities have with their surrounding lands and biodiversity. It speaks to the inherent need and sense of duty to preserve, respect, and protect one’s relations and one’s community.

As guided by the language and the teaching of hišuukiš cawak at the core of stewardship, this case study explores the land use visioning community process of the Ahousaht First Nation. Ahousaht’s land use vision demonstrates how integrating Indigenous place names into planning processes can provide critical biological and cultural details to inform policy and management regimes and better understand the impacts of climate change.

Indigenous land use planning in British Columbia

Indigenous communities in British Columbia have been practicing stewardship and sustainable management of natural resources since time immemorial (New Relationship Trust 2019). Stewardship was not historically achieved through contemporary land use planning processes as we see them today, of course. Instead, it was developed through deep connections and respect for the lands and waters and the inherent understanding of the sustainable use of resources. Indigenous land use planning as we see it today in the province is, by contrast, reactive to encroachment and land allocation by colonial systems, and reactive to the use and management of lands and waters by federal, provincial, and non-Indigenous local governments. Tenures, developments, and divisions enacted from these government bodies have compromised Indigenous stewardship practices as guided by law and governance and have put Indigenous communities in a position of response and reaction. Responses can include partnership, settlement, or confrontation, prompting Indigenous communities to engage in official land use planning processes to fight for continued stewardship over their territories using modern planning techniques that are recognized by external governments and stakeholders.

Today, land use planning for Indigenous communities can take many forms. For example, planning can follow a government-to-government approach, such as British Columbia’s modernized land use planning program (Province of British Columbia 2022b) or it can be developed independently within the community. In the case of the Ahousaht First Nation, land use planning has been developed in partnerships with external stakeholders and non-governmental organizations. The Ahousaht land use vision was completed independently from crown government within the community, with technical and financial capacity and support of an external conservation organization (Maaqutusiis Hahoulthee Stewardship Society 2017).

The Ahousaht First Nation on the west coast of Vancouver Island, the focus of this case study, named their process a land use vision to clearly demonstrate that it is a working document that adheres to Ahousaht law and governance protocols, and is to be revised and revisited as needed.

This coastal community places particular importance on allowing land use adjustments and changes to best serve the community and the territory most effectively for future generations.

Climate change and land use planning

British Columbia is already seeing the devastating impacts from climate change, including mass flooding, harrowing wildfires, and drastic weather changes that set new temperature or precipitation records each year. Rural and Indigenous communities face particularly high risks from these impacts. Many rural and Indigenous communities in British Columbia have experienced mass destruction and displacement, and the threat of further damages only continues to increase. These communities are particularly vulnerable due to their rural and coastal geographies, socioeconomics, and reduced access to technical assistance. Many communities also lack the capacity to develop and implement robust mitigation, adaptation, and clean growth strategies (Whitney and Ban 2019). Similar to many small island nations around the world that are on the frontline of the climate emergency (Climate Refugees 2022), many coastal communities in B.C. have become vocal advocates for action at the global level to prevent further devastation. Advocates believe that without the implementation of immediate and substantial climate action, we will begin to experience an outflux of people fleeing their territories due to climate related changes or hazards (Donatuto et al. 2014), rendering homelands inhabitable. 

Rising ocean levels, flooding of rivers, and other landscape-level changes are not the only issue: the problem is paired with impacts to food security as a result of changes to food systems from extreme weather events and rising atmospheric air and ocean temperatures (Marushka et al. 2019). These changes cause the ocean to become less productive, the numbers of plants and animals used for sustenance harvesting and cultural practices to dwindle, and fresh water to become scarce and contaminated. Local economies suffer, with loss of revenues from commercial harvesting and downturns in tourism from the lack of proper infrastructure and the degradation of the natural landscape. These effects are gradual but substantial, widespread, and cumulative, and must be met with natural resource management and land use planning from an Indigenous perspective that has been proven sustainable over thousands of years.

Facing south down Matilda Inlet: Ahousaht Territories
Facing south down Matilda Inlet. Photo: Tara Atleo

Ahousaht First Nation’s Land Use Vision

This case study examines the Ahousaht Land Use Vision developed by the First Nation of Ahousaht, which is located on the west coast of Vancouver Island, approximately 40 minutes north by boat from the popular tourist town of Tofino. The Ahousaht territories cover over 170,000 hectares, span from Meares Island near Tofino Harbour to Hisnit near Hesquiaht Harbour, and encompass large portions of Vancouver Island including parts of what is known as Strathcona Park. The territories include temperate rainforests, countless islands, many shorelines, and mountain ranges with extensive biodiversity and habitat. They are known throughout the world for their beauty and bounty and as a UNESCO Biosphere Reserve (UNESCO 2018).

Ahousaht First Nation, as it is known today, was originally made up of six separate nations that were amalgamated through war. What is now the Ahousaht main village of Maaqtusiis (mock-too-cease) was formerly the village of the Uutsuutsaht (oots-oots-sawt) people. Ahousaht has a governance structure comprised of three houses, each led by a hereditary chief, hawił (hah-with), and each with different roles and responsibilities within the community. In the 1950s, a chief-and-council governance structure was implemented in Ahousaht through the Indian Act by the Federal government. This form of governance was intended to replace the hereditary structure, using an electoral system to seat new leadership, though in Ahousaht the inaugural chief and council were appointed by the hereditary chiefs rather than elected.

Today, both hereditary and elected governance structures persist, though the hereditary chiefs no longer appoint chief and council. Elections are now held by the community, and the chief and council under this colonial governance system have been empowered by the Crown government under the Indian Act to act on behalf of the community. This outside approval and influence represent an example of how colonial systems have been undermining cultural governance since first contact and, in many cases, have impeded Indigenous communities from maintaining stewardship practices over their lands and waters.

In an effort to re-establish its stewardship and enact Ahousaht law and governance over natural resource management, the Ahousaht hawiiḥ (hah-way-ah) established the Maaqutusiis Hahouthlee Stewardship Society in 2012.[1] The Society engages in all matters of resource management and economic development for the entirety of the Ahousaht territories under the four guiding principles of iisʔaḱstaƛ (ee-sock-stockth), respecting one another, haaḥuupstaƛ (ha-hope-stockth), teaching one another, yaʔakstaƛ (ya-uck-stockth), caring for one another, and huupiił’aƛ (who-peeth-ahkth), helping one another. 

Under the Stewardship Society in 2016, the Ahousaht hawiiḥ opened the land use visioning process with intensive community sessions with Ahousaht people living both within the territories as well as in select urban centers where many Ahousaht people reside. Community members were asked to provide input into maps to outline their ideas on future conservation and developments within the territories and share ideas on which areas hold cultural significance and should be preserved. This process yielded seven distinct land use designations that defined the allowable and prohibited activities within each. Designations that held potential for more intensive development include the Forest Management Areas and the Communities Development Areas, accounting for just under 18 per cent of the total territories. The designations slated for measures more aligned with conservation encompassed the remaining 82 per cent of the Ahousaht territories. These designations include Watershed Health Areas, Cultural and Natural Areas, Shoreline and Island Management Areas, and Marine Harvest Bays.

Through the planning process and the appointment of specific land use designations, the importance of including Ahousaht place names was repeatedly highlighted. Acknowledging and incorporating these place names underscores how place names can reveal and apply a deep knowledge of the changing landscape, demonstrating the importance of ensuring that Indigenous place names are reflected in matters of the lands and waters. 

Ahousaht Land Use Vision Map: January 17, 2017 Credit: Maaqutusiis Hahoulthee Stewardship Society
Ahousaht Land Use Vision Map: January 17, 2017. Credit: Maaqutusiis Hahoulthee Stewardship Society

Ahousaht’s place names reflect a different relationship with the land and waters than the modern colonial place names that are used today. Ahousaht place names do not encompass large areas but rather smaller defined areas. They are sometimes circumstantial and reference the experience of one individual or a one-time occurrence, but some also allude to the ecosystem services, biodiversity, and cultural importance of sites, as further analysis of the origin of the name can reveal.

The impetus to incorporate the knowledge held within place names into the Ahousaht Land Use Vision, as well as the actual place names themselves, came mainly from the participating community members and elders who engaged in the planning sessions. In conducting this research, the Stewardship Society also relied on a research project published in the 1990s by Canadian forestry company MacMillan Bloedel, which has proven to be a very useful resource that includes interviews with elders documenting over 900 Ahousaht and Tlaoquiaht place names (Bouchard and Kennedy 1990). Within each place name description, Ahousaht elders shared their insights on each name as well as their experiences of specific biological changes at the places that were the result of  colonization or a shifting climate. Examples of such changes include reference to abandoned spawning areas where fish were once abundant, or where seasonal homes were once built and now no sign of them remains. Historical knowledge and indicators such as these can provide vital information allowing for critical data input into the land use planning process, such as helping to determine locations for focused salmon restoration efforts, ideal areas for residential development or expansion, or areas in need of enhanced conservation measures.

Indigenous knowledge for climate action in land use planning

Historically, Ahousaht villages were located near areas of sustenance gathering, and many place names indicate this alignment within the Community Development Area designation. T̓iikwuwis (teak-woo-wis) describes a root-digging beach, ʕisaqnit (ice-awk-nit) a place of wild onions, and mukʷnit (moo-kwin-it) a place where the deer feed on ferns. The names provide guidance to the unique characteristics that made each of these sites habitable for the Ahousaht people prior to colonial contact, knowledge that is critical to the well-being of a community that is heavily dependent on sustainable harvesting.

The Ahousaht Land Use Vision that emerged from this research establishes designated Community Development Areas that have been identified as areas for potential future residential expansion outside of Maaqtusiis. The population of Ahousaht is large and continues to grow, requiring infrastructure growth within Maaqtusiis and into other areas of the territories. The Ahousaht Hawiiḥ want to ensure that there are space and opportunities available for Ahousaht people wanting to live and work in the territories. They hope to create this space through stewardship, sustainable development, and diverse economic and career opportunities.

Place names can also inform community planning by identifying landscape features that could impact infrastructure development. ʕaʔukʷnak (eye-ah-u-kwin-awk), for example, which is a community adjacent to Maaqtusiis, has undergone improvements and expansion for residential homes. ʕaʔukʷnak translates to “it has a lake,” and this lake was said to once house a special species of sockeye salmon when the Uutsuutsaht inhabited this area. This lake used to drain into the bay on the shoreline, though in the early 1900s, when missionaries came to Maaqtusiis to build a residential school, they filled in this lake to turn it into a field. As nature took back over, some of the water returned, creating a bog that now houses cranberries that the community harvests.

Ahousaht is particularly vulnerable to rising water levels, rising ambient temperatures, and rising ocean temperatures. The Ahousaht Land Use Vision has designated areas as Shoreline Management Areas, which encompass large portions of the shoreline throughout the territory. This designation allows for the maintenance of conservation zones for food harvest, cultural access, and transportation, even when those areas are adjacent to other designations within the Land Use Vision that allow for more intensive development opportunities.

Traveling down Matilda Inlet looking northeast, sunset in Ahousaht territories. Photo: Tara Atleo
Traveling down Matilda Inlet looking northeast, sunset in Ahousaht territories. Photo: Tara Atleo

These shoreline areas include areas of great cultural, historical, economic, and social importance to the Ahousaht community. For example, Numaḥt̓aʔa (new-mah-ta-ah), meaning “forbidden creek,” references a historical site where significant events occurred, as detailed through oral history. The importance of this site to the Ahousaht community led to it being granted a specific Shoreline Management Area designation, to ensure that the history and teachings from this site are respected and preserved.

Many place names also reference the food that is or was available for sustainable harvest by the Ahousaht people. Huʔuł (who-oolth) is such an example, translating to “where the cormorants slept,” indicating that this is an island frequented when hunting cormorants. Nearby is Qʷinqiit (kwin-keet), which describes the area as a seagull resting place and where seagull eggs are gathered. These precious shoreline areas may be the first impacted by rising tides and warmer oceans, compromising nesting grounds and food sources of critical beings in the holistic community ecosystem. The region’s great biodiversity is not only a source of sustenance for the people of Ahousaht; it is an essential part of the cultural teachings of hišuukiš cawak, underscoring the responsibility of those who live in relationship with this territory to protect it.

Cruising jellyfish, Ahousaht Territories. Photo: Tara Atleo
Cruising jellyfish, Ahousaht Territories. Photo: Tara Atleo.

Integrating place names into the Ahousaht Land Use Vision has not only helped the people of Ahousaht to see and recognize the actions that must be taken to better prepare for and adapt to a changing climate. It has also helped non-governmental planning partners, Crown governments, and stakeholders to see as well. Within the Ahousaht territories, place names serve as a reminder of the bounty that the delicate shorelines, rich forests, and vast marine areas provide the Ahousaht people sustenance, culture, wayfaring, biodiversity, and ecosystem services.

The bay of ƛakišus (clock-ish-us), protected under a Cultural and Natural Area designation, is one example of the bounty that these names reflect. It describes the use of the area by migratory grey whales for rubbing the beach to rid themselves of barnacles and parasites. This rubbing is a critical ecosystem service being provided to the whales, iiḥtuup (ee-hah-toop), further highlighting the intent for protection and preservation under a conservation land use designation at this location. Maqy̓aaqw̓aqƛił (mawk-yawk-walk-klith), a cave in Millar Channel on the east side of Flores Island which has also been granted a Cultural and Natural Area designation, represents a culturally important site for the Ahousaht. Translated as “corpses in a cave,” Maqy̓aaqw̓aqƛił was historically used for burial and is only accessible at specific tidal levels.

Place names also serve as markers for history and teachings of the area, such as at the shores of Katkuwiis (kut-koo-ees), located along the well-known ecotourism corridor the Wildside Trail. The trail sees hundreds of visitors a year passing through the village and the beaches, bringing with them economic opportunities for community members. This section of the trail, currently known as White Sands Beach, is a popular section for camping, though this is also a key location in a gruesome 14-year battle that took place in the early 1800s between the Ahousaht and Uutsuutsaht (Sam 1997). This was the battle that ended with Ahousaht taking over the Uutsuutsaht territory and amalgamating the nations. As the risk of rising ocean levels looms, this area, which defines current governance within the territories through the amalgamation and acts as a historical touchstone, a significant tourism destination, and a catalyst for sustainable economic opportunity, may soon be lost to the tides.

Wildside Trail Sign, Katkuwiis, Ahousaht Territories. Photo: Tara Atleo.
Wildside Trail Sign, Katkuwiis, Ahousaht Territories. Photo: Tara Atleo.

Place names can indicate the possibilities of what is to come in the future, as well as what has been lost. The place name Cuuxʷnitapi (tsoo-kwin-it-app-eh), translating to “coho jumping”, indicates an area of shoreline in Bedwell Sound at the mouth of the Bedwell River. One of the elders interviewed by Bouchard and Kennedy (1990) shared that he had not seen coho there before, but that it was historically understood that this is where they once ran. Specific historical knowledge about this area has helped to develop salmon restoration projects over the past couple of decades and has initiated further salmon saving efforts.

The Ahousaht Stewardship Guardians, a program under the Maaqutusiis Hahoulthee Stewardship Society tasked with stewarding the territories under the direction of the hawiiḥ, even took drastic measures during the 2021 heatwave by moving juvenile coho out of warm, shallow pools into deeper areas of the Bedwell River where they could better escape the deadly heat (Wood 2021). The Ahousaht Stewardship Guardian Program is implementing the knowledge found within place names for on-the-ground efforts for cultural stewardship, as well as for observation of climate-related changes on the lands and waters.

Many Indigenous communities throughout British Columbia have similar stewardship programming, providing an ongoing presence in their respective territories. Such programming is critical for implementing land use planning within Indigenous territories. It is also on the frontlines of data collection and observation of the impacts of climate change on the landscape.

Facing into Ahousaht harbour.  Photographer: Tara Atleo
Ahousaht harbour and Catface Mountain, Ahousaht territories. Photo: Tara Atleo.

Conclusion

Retention and revitalization of language and land-based knowledge are necessary for land use planning and natural resource management within Canada and around the world. The Ahousaht Land Use Vision highlights the importance of recognizing Indigenous place names as cultural and land-based knowledge that can help guide natural resource management and climate action from an Indigenous perspective. Investing in stewardship capacity and programming can establish data hubs within Indigenous communities that can cross-reference cultural knowledge such as place names with biological and ecosystem features and changes.

Many Indigenous communities throughout Canada have already begun such initiatives, despite the limited support from Crown governments for these programs. Unfortunately, given the geographical vastness of the country and the complexity of data storage and collection, stewardship programming is not yet given the same weight and importance as academic or research institutions. The collection and analysis of cultural and environmental data are crucial to the ecological restoration and good governance of communities throughout Canada—Indigenous and non-Indigenous alike—and each community should be empowered and supported in undertaking this important work, which is vital to long-term health and well-being.

Additional funding and support from provincial and federal governments should also be provided for Indigenous communities to undertake the research and recording needed to document place names and implement unofficial and official place name changes within their territories. Formalizing these changes and having the names adopted and made into law would provide greater opportunity for education and cultural resilience. Efforts to integrate Indigenous place names can be supported by the departments currently responsible for unofficial and official name changes at both the provincial and federal levels with Natural Resources Canada (NRCAN 2022) and the B.C. Ministry of Forests, Lands, Natural Resource Operations, and Rural Development (Province of British Columbia 2022a). Simplifying and streamlining the process for Indigenous communities to restore their place names through official and unofficial name changes would promote greater awareness around climate risks and adaptation solutions, while furthering language revitalization, reconciliation, and Indigenous knowledge data collection.

Updating policy regarding the environmental, social, economic, and cultural impacts of land-based decision making at the provincial and national levels would provide Indigenous communities with the opportunity to apply the critical ecological and cultural information that place names and Indigenous knowledge contain. Integrating Indigenous knowledge and Indigenous perspectives at the initiation of land use planning processes is critical. Integration can help establish cultural and ecological Indigenous knowledge data as the baseline and can guide decision making towards the stewardship practices that Indigenous communities have been thoughtfully practicing on the lands and waters for many generations.

Though the resurgence and legitimization of Indigenous place names alone cannot resolve climate change, place names can serve as a tool for local peoples and visitors alike to observe and understand the impacts of climate change on a specific location, drawing on the experience of generations of people upholding the laws of hišuukiš cawak and living as one with the environment around them.


[1] Hawiiḥ is the plural form of hawił, hereditary chief.


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Province of British Columbia. 2022a. “Geographical Names.” https://www2.gov.bc.ca/gov/content/governments/celebrating-british-columbia/historic-places/geographical-names

Province of British Columbia. 2022b. “Modernizing Land Use Planning.” https://landuseplanning.gov.bc.ca/modernizing

Sam, Sidney. 1997. “Ahousaht Wild Side Heritage Trail Guidebook.” Western Canada Wilderness Committee. Vancouver, B.C.

UNESCO. 2021. “Clayoquot Sound Biosphere Reserve, Canada.” Available from: https://en.unesco.org/biosphere/eu-na/clayoquot-sound

Whitney, Charlotte K., and Natalie C. Ban. 2019. “Barriers and opportunities for social-ecological adaptation to climate change in coastal British Columbia.” Ocean & Coastal Management. Pp. 179-1. https://www.sciencedirect.com/science/article/abs/pii/S0964569119300390 Wood, Stephanie. 2021. “A lot of salmon died: Ahousaht Guardians look to watershed restoration amid B.C.’s dangerously dry summer.” The Narwhal. September 19. https://thenarwhal.ca/bc-drought-ahousaht-salmon/

Gitxsan Rez-ilience

Published as part of our Indigenous Perspectives series of Indigenous-led climate research, produced in co-operation with the Centre for Indigenous Environmental Resources.

This case study provides a foundation for a wider, more inclusive understanding of what it means to be resilient in an Indigenous context.

Many Indigenous Nations in British Columbia (B.C.) have maintained connection to their seasonal round of activities—the annual cycle of land-based practices that have sustained these Nations since time immemorial—despite the recent shifts that we are collectively experiencing as the climate changes. By using the seasonal round as a touchstone for adapting and continuing land-based activities, the application of each community’s values and protocols to the perception of resilience in their context can lead to a holistic and grounded demonstration of rez-ilience: our own understanding of how to be resilient.

The integration of both social and ecological aspects of resilience will reinforce the deep knowledge held by Indigenous Peoples of how to live sustainably, as well as how to successfully adapt to change. These inclusive and grounded understandings of rez-ilience can lead to more progressive, relevant, and effective climate policy and decision making. Indigenous Peoples have shown the efficacy of ecologically rooted resilience through our long histories of living in balance, in connection, and in harmony with the environment.

This case study is a continuation of the work I have been doing on my Master’s thesis, which looks at climate resilience in Indigenous communities. This case study is informed by my own living understandings of what Indigenous climate resilience is as a Gitxsan woman, and through interviews and surveys completed by Gitxsan community members. This study is supported by the work done by Gitxsan scholars before me.

Lip Seksinhl Jebin (Clean up the mess that you made)

Climate change—the warming of the atmosphere as a result of the burning of fossil fuels—is responsible for the worldwide increase in extreme weather, forest fires, disease transmission, pests, and species loss. Although the majority of the emissions responsible for climate change were released by colonial powers, the adverse impacts disproportionally affect Indigenous people (Abate and Kronk 2013; Donatuto et al. 2014; Green and Minchin 2014; Vinyeta et al. 2015; Chisholm Hatfield et al. 2018). The intense warming over the last fifty years can be linked to human-caused global greenhouse gas emissions from the extraction and burning of fossil fuels (United Nations 2020; IPCC 2020). This warming has caused significant changes in Gitxsan territory, and is beginning to shift the Gitxsan seasonal cycle of use. These changes to annual cycles and patterns, the seasonal round, are one more example among many of the consequences of the lack of balance and harmony in our relations with the Earth.

Because of this failure to connect the social and the ecological, the Eurocentric understandings of resilience that are dominant today are at odds with the kincentric and relational nature of Indigenous worldviews. In other words, within Indigenous worldviews, humans and nature share ancestry and origins. In other words, kin or relatives include all natural elements of life (Salmon 2000). Eurocentric understandings of resilience, on the other hand, speak of adapting and changing while remaining within a critical threshold (Berkes and Ross 2012). They leave no space for the deep relationships Indigenous people hold with their territories, nor for the sense of stewardship and responsibility that accompany these relationships. Lastly, these understandings do not account for the strength and resilience already demonstrated by Indigenous Peoples, who have survived colonization and past climatic changes and have continued to thrive.

Restoring balance is a difficult task. It involves viewing the Land as a relationship, and as a sacred responsibility between ancestors and kin (Turner and Clifton 2009; Whyte 2013; Whyte 2014; Snively and Williams 2016; Wilson et al. 2019). Defining and understanding rez-ilience in a way that reflects the strength, responsibility, and relationships to Land is a foundational step to building holistic and effective practices that reflect relationality, responsibility, and stewardship.

Living on the frontlines of this environmental crisis, Indigenous communities are adapting to climate change by using the same spirit of resilience they have demonstrated time and time again throughout history.

Daxgigethhl get elhl la’oo’m (The people were healthy long ago)

The Gitxsan (also spelled Gitksan) People are from the northwest coastal region, and live at the unceded confluence of the Skeena, Nass, and Bulkley Rivers in British Columbia. Gitxsan territory is mountainous and heavily forested, falling within the Interior Cedar Hemlock Biogeoclimatic Zone (Figure 1). Gitxsan territory occupies 33,000 square kilometres in the northwestern portion of the province and is slightly larger than the land area of Belgium (Main-Johnson 1997). The Gitxsan have occupied this area since glaciers retreated around 15,000 years ago or shortly thereafter, and have demonstrated their resilience since time immemorial. Today, there are six Gitxsan communities: Gitanmaax, Gitwangak, Gitsegukla, Gitanyow, Anspay’axw, and Sik-e-dahk.

Illustrated map of the Gitxsan territory. This map features significant Gitxsan landmarks and includes the four Gitxsan clans. Map by Brett Huson, illustrated by Natasha Donovan.
Figure 1: Illustrated map of the Gitxsan territory. This map features significant Gitxsan landmarks and includes the four Gitxsan clans. Map by Brett Huson, illustrated by Natasha Donovan https://www.bretthuson.ca/gitxsan

Culturally, the Gitxsan share similarities with the coastal Nations of the Pacific Northwest. Gitsenimx, the language of the Gitxsan people, is rooted in Tsimshianic, a language family spoken in the unceded territories of northwestern British Columbia and southeastern Alaska. Like other coastal people, the Gitxsan uphold the feast system. Within the feast system, there are four pdeeks (clans), which are passed down through the mother: Giskgaast (Fireweed), Lax Gibuu (Wolf), Lax Skiik (Eagle), and Lax Seel (Frog). Positionality within the huwilp (house) system governs many aspects of daily life, including resource and territory access and responsibility. The Gitxsan calendar recognizes 13 moons (months). Moons are descriptively named and those names give insight into phenomena occurring in the natural world during that month, as well as how the Gitxsan responded to those changes and events on the land (Table 1). The 13 moons in the Gitxsan seasonal round are divided up into four seasons: Gwooyim (spring—March, April, May); Sint (summer—June, July, August); Xwsit (fall—September, October); and Maadim (winter—November, December, January, and February).

Gitxsan Moon (Month Approximate)English translation
K’ uholxs (January)Stories & feasting Moon
Lasa Hu’ mal (February)Cracking Cottonwood & Opening Trails Moon
Wihlaxs (March)Black Bear’s Walking Moon
Lasa Ya’a (April)Spring Salmon’s Returning Home Moon
Lasa ‘Yanja (May)Budding Trees & Blooming Flowers Moon
Lasa Maa’y (June)Gathering & Preparing Berries Moon
Lasa ‘Wiihun (July)Fisherman’s Moon
Lasa Lik’i’nxsw (August)Grizzly Bear’s Moon
Lasa Gangwiikw (September)Groundhog Hunting Moon
Lasa Xsin Laaxw (October)Catching-Lots-Of-Trout Moon
Lasa Gwineekxw (November)Getting-Used-to-Cold Moon
Lasa ‘Wiigwineekxw (December)Severe Snowstorms & Sharp Cold Moon
Table 1: Gitxsan moons and their approximate translations. Note that the 13th Gitxsan moon, Ax Wa, is the Shaman’s Moon. It is the second full moon of the month and varies from year to year.

Gitxsan understandings of resilience are infused with a holistic understanding of ecosystem management. Gitxsan people know their place as a part of the Land and have a sense of responsibility to the Land. The Gitxsan community members I spoke with reinforced concepts of connection, respect, holism, balance, and ceremony, which contribute to good stewardship of territories. When asked, many of the words Gitxsan people use to describe resilience are reflected within the Gitxsan wheel of philosophy (Figure 2). The wheel of philosophy guides Gitxsan values, and therefore guides the interactions with the seasonal round on the Land. These values are upheld within the seasonal cycle and are a reflection of the respect the Gitxsan have for the Land and for each other, which uphold the sense of caretakership and responsibility that allowed the Gitxsan people to live sustainability for thousands of years.

The philosophy wheel of the Gitxsan. This wheel represents the values of the Gitxsan (Smith 2004)
Figure 2: The philosophy wheel of the Gitxsan. This wheel represents the values of the Gitxsan (Smith 2004)

As Gitxsan scholar MJ Smith says, “Gitxsan spirituality was [holistic]: it is intimately connected with all things in nature. Animals, water, rocks, trees, and earth all have spirits and are all gifts from the creator…. Everything growing from the Land was a part of the Gitxsan. That was why the Gitxsan respected the Land and felt that it was sacred” (2004). The teachings, protocols, and ceremonies within the wheel of philosophy reinforce what it means to be Gitxsan, but also teach how to have good relations with the Land. In other words, the wheel summarizes the sustainable ways in which Gitxsan people lived for millennia, honoring harmony, balance, and interconnectedness in their relationship with the Land. These teachings inform Gitxsan rez-ilience, which I now understand to mean, Observing the changes occurring on the land, and working to uphold the teachings that have been passed down since time immemorial.

Aa’t’ikshl ‘wii t’ism wis (A storm is coming)

The Indian Act and Residential Schools restricted, as they did with many Nations, the authority of the Gitxsan people over their community, their governance, and their system of land and resource management. Despite this, the feast systems have persisted, and hereditary governance remains largely intact. Both colonial and traditional forms of governance operate within Gitxsan territory. Like many Indigenous Nations in B.C., the Gitxsan are in tune with the annual cycles of changing seasons. Gitxsan life and culture are founded on the seasonal cycles (Figure 3). The cycles influence the areas in which we as Gitxsan people live, hunt, harvest, and perform aspects of culture.

Gitxsan seasonal cycle, inclusive of seasonal activities (Main-Johnson 1997). Gitxsan Moon by Brett Huson.
Figure 3: Gitxsan seasonal cycle, inclusive of seasonal activities (Main-Johnson 1997). Gitxsan Moon by Brett Huson.

In the past, the turning of the seasons and the activities within each season were predictable. However, like many other places in B.C. and around the world, Gitxsan territory is experiencing variable temperatures, which impact the plants and animals. Climate change is altering the predictability of seasons, which changes the Gitxsan seasonal round. The descriptions of activities associated with each month in the Gitxsan lunar cycle no longer fit with the observed events on the landscape, and no longer reflect how the Gitxsan ancestors lived on the land. In an effort to better understand these changes in seasonality, I interviewed four Gitxsan community members, and collected 17 written surveys.

All of the participants spoke of the changes taking place throughout the Gitxsan territory, which influence how we, as Gitxsan people, are able to practice seasonal activities.

The timing and abundance of berries and medicines are different, for example. They are blooming at different times, which forces harvesters to choose between harvesting one species or another. During the heatwave of 2021, many of the plants showed visible signs of heat stress, which meant fewer berries to harvest. These destructive events are happening more and more, and are also beginning to impact other species that rely on these resources. The inconsistency in harvestable plants and forage affects the moose, who are not found as consistently throughout the territory.

The harvesting of huckleberries typically happens in the fall in Gitxsan territory. Photo: Janna Wale.
The harvesting of huckleberries typically happens in the fall in Gitxsan territory. Photo: Janna Wale.

This is what we call a cascading effect: a shift that creates a series of other shifts. Xadaa (Moose) are an important species in Gitxsan territory; they often forage for vegetation during the same times as the Gitxsan. Moose are now seen less frequently and are not in the same areas they used to be. Having reduced access to moose not only destabilizes the ecosystem; it is also beginning to impact Gitxsan food security. Every year, there are fewer and fewer salmon, and they are often in worse condition. To the Gitxsan, the salmon are a culturally significant species. They are an important source of protein, are in a lot of Gitxsan stories, and hold a special place within the feast hall. Fewer salmon jeopardizes food security and the crucial link to culture and identity.

Jarred sockeye salmon. Jarring is an important food preservation method that which helps the fish last for months to years. Photo: Gabriel Hernandez
Jarred sockeye salmon. Jarring is an important food preservation method that which helps the fish last for months to years. Photo: Gabriel Hernandez.
The inside of a smokehouse in Gitsegukla First Nation. Salmon strips are hung on trays and over beams, where they are slowly rotated over a slow smoking fire. Photo: Janna Wale.
The inside of a smokehouse in Gitsegukla First Nation. Salmon strips are hung on trays and over beams, where they are slowly rotated over a slow smoking fire. Photo: Janna Wale.

These changes are shifting the Gitxsan seasonal round of activities—the very ways in which we as Gitxsan people exist on the Land (Figure 4). In the Gitxsan worldview, resources are valued as intrinsic, as a food source, as a source of economy and trade, and as a connection to culture and identity. A changing climate “challenges the fundamental belief about how elements of the natural world are connected, as well as the timing of when traditional patterns occur and behaviors are formed” (Chisholm Hatfield et al. 2018). The Gitxsan view of seasons ties together timing and connections: it describes a whole-systems change, and how “interactions among things are moving in relationship to one another.”

The distorted Gitxsan seasonal cycle based on anecdotal evidence (Wale 2022). Gitxsan Moon by Brett Huson.
Figure 4: The distorted Gitxsan seasonal cycle based on anecdotal evidence (Wale 2022). Gitxsan Moon by Brett Huson.

As the seasonal round shifts, culture, language, and the Gitxsan identity also shift. Culture and identity are founded on the Land and its cycles. As we are confronted with changes on the Land, we will be forced to try to adapt pieces of language, our culture, and our ways of knowing and being on the Land. However, it is important to understand that a change in relationship does not equate to a loss in relationship. Redefining our relationships with the Land to include contemporary uses and ongoing adaptation to a changing climate is at the very centre of rez-ilience.

Indigenous values, concepts, and ways of being are not reflected in the way government thinks about resilience. The lack of a definition inclusive of community-land relationships, stewardship, responsibility, and kincentric bonds has contributed to climate policies and management strategies that are inequitable and cede far too much power to the settler state. Policies devoid of relationship, responsibility, and accountability to the Land and our relations work to further capitalism, economy, and extraction at the expense of community, ecology, relationship, and reciprocity.

Yukw na Hagwil yin (Learning to walk softly)

Common understandings of resilience assume it refers simply to the ability to recover from shocks and stress (Summers et al. 2016). A lack of a compatible understanding of resilience, rooted in relationship, undermines the ability of Indigenous and non-Indigenous people alike to practice resilience. Too often, imposed understandings of resilience exclude Gitxsan practices, values, and philosophies upheld in feast halls, in ceremony, and in ways of knowing and being. Imposed approaches to resilience also inhibit our ability to implement creative, applicable, and encompassing management solutions and adaptation strategies that incorporate Gitxsan expressions and worldview. In essence, they do not make space for the kincentric relationships and responsibilities that inform the Gitxsan culture and worldview.

A key part of understanding Gitxsan rez-ilience is acknowledging the resilience that has always been demonstrated and then applying that same spirit of strength to facing climate change. Based on what I have learned and what I have been taught, to me, Gitxsan rez-ilience is the ability to weave together all that we have learned from the past into rising to the challenges of the present and the future. In other words, Gitxsan rez-ilience is strength-based and holistic. It is founded on a sense of responsibility to maintain the Land and exists in relationship to the Land, much as Gitxsan people do. Further, Gitxsan rez-ilience is the ability to persist and survive. It is the ability to uphold traditional laws, ceremony, and protocols of management that were successful in the past, and to adapt them for current needs, goals, and dreams. It is balanced, interconnected, and harmonious. It is rooted in relationships and is founded on the responsibility that Gitxsan people have to steward and take care of the Land for future generations. It should be understood that as with the Gitxsan themselves, this definition and understanding of rez-ilience will adapt, grow, and change.[1]

By combining the teachings of the Gitxsan wheel of Philosophy with the shifting timing of the seasonal round, we arrive at what it means to be resilient within a Gitxsan context.

The seasonal round teaches how and when to be on the land, and the wheel of philosophy teaches how to carry oneself with respect to relationships and responsibilities as a kincentric people.

Understanding this, effective climate policy needs to be approached holistically: it needs to make space for responsibility, accountability, and relationship. It must incorporate place-based values that take into account the intensity of the changes we are seeing within the seasonal cycle across “Canada.” Only then will resilience be inclusive of harmony, balance, and interconnectedness, and only then will it reflect Gitxsan understandings of their place within human-ecosystem relationship

Emerging from this research, and rooted in this understanding of resilience, I would offer the following recommendations for policy makers at all orders of government:

  1. Incorporate a place-based lens to climate adaptation, emergency management, and resilience policy. Having policy that is aligned with each Nation’s values, understandings, and philosophies would increase effectiveness and lead to better outcomes. Further, it would start to undo some of the colonial assumptions about human-Land relationships that are entrenched in federal, provincial, and territorial policies.
  2. Include seasonal considerations in decision making. Considering seasonality when looking to increase resilience would strengthen ecological resilience while reinforcing social resilience (upholding the ayookxw of the Gitxsan and other Nations, who are in tune with the seasonal changes). Climate policy needs to be designed to consider the changes and needs of each Nation in each season, rather than as year-round blanket statements.
  3. Manage for Naadahahlhakwhlinhl (interconnections with all living things). The mismanagement of our resources can largely be traced to fracturing of the Land and our relationship to it. These fractures are reflected in colonial government structures, and therefore are embedded in policy. Effective climate policy needs to be holistic in nature: appreciating the responsibility we have to the big picture, while considering the smaller working pieces.

In my understanding, Yukw na Hagwil yin translates roughly to “learning to walk softly.” In Gitxsan culture, Walk Softly is a reminder to take care in carrying yourself and in how you act. It teaches you to think of those around you, including your non-human relations, and to think of how your actions and words affect them. Learning to walk softly when thinking about resilience to climate change is important. It is a reminder of responsibility to generations coming after us, who will be left to deal with the decisions we make and the world we create. It is understanding how our actions as humans, as Gitxsan, affect the state of our environment, and how the decisions made today will impact the generations coming after us, for seven generations.

The key, moving forward, is to approach resilience to climate change with the same strength of spirit that the ancestors embodied. Look to the teachings in the seasonal round and know that there is a time for everything. Look to the teachings of values and culture and know that resilience is built into Indigenous identities. Look at all we have been through as Indigenous people—and we are still here.

Each Nation will have to determine what values, strengths, and protocols define their expressions of rez-ilience. Since colonialism has impacted every Nation across “Canada” differently, we have many expressions of Indigenous rez-ilience to draw on. We are revitalizing our practices, our languages, and our ways of being on the Land.

Building resilience is a journey. I firmly believe that we as Indigenous Peoples are meant to be leading this work. Our responsibility is to take this work as far as we can, so the next generation can pick it up and continue the journey. This case study and my own understandings of resilience that I share here are a part of my contribution to the larger journey that we are all on together.


[1] These are my own understandings based on my research and what I have been taught—I cannot speak on behalf of my community or my Nation


Appendix A – Glossary of Gitxsan Terms

Adawaak: The oral history of each Wilp.

Ayookxw: Gitxsan laws that ensure peace and order for the Huwilp.

Daax litxwit: Still standing—aassociated with Gitxsan resilience[DM1] 

Deex Goot: Steady, unwavering heart—associated with Gitxsan resilience

Giskgaast: Fireweed/Killer whale Clan

Huwilp: The collective of eight Wilp that collectively constitute the Gitxsan People

Lax Gibuu: Wolf Clan

Lax Skiik: Eagle Clan

Lax Seel: Frog Clan

Lax’yip: The ancestral territories of the Gitxsan

Luis yaltxw: Restored from hard times—associated with Gitxsan resilience

Otsin: Spirit of our People—associated with Gitxsan resilience

Pdeek: Clan—there are four Gitxsan clans (Wolf, Frog, Eagle, Fireweed/ Killer whale)

Wilp: House group—the primary political, social, and decision-making unit of the Gitxsan, each with its own well-defined territories managed according to a strong and enduring system of land management.Xadaa: Moose—a cultural and dietary staple of the Gitxsan People

Appendix B – Voices of the Gitxsan

In completing this case study and as a part of my Master’s thesis research, I had the chance to speak to and learn from many Gitxsan people. It is important that their voices be recognized in this work, and that their understandings and observations be honoured in sharing what I think and have learned of Gitxsan resilience. It should be noted that this is only a piece of Gitxsan resilience, and that I am still learning. My voice is not reflective of the Gitxsan Nation as a whole.

Here are some of the insights that were shared with me in my interviews with Gitxsan people:

 “Preventative measures are being taken to ensure resilience at a local level. Observation of forests, water, and numerous species of flora and fauna is underway. Limiting use of resources, only hunting and harvesting as necessary. Exploring renewable energies and alternatives to exploitative industry. Upholding the wilp governance system and Gitxsan legal order to ensure the future of the territory.”

“Salmon are very important to Gitxsan people. We are probably made of salmon—a major part of our diet for thousands of years and a major part of our culture.”

 “Everything is connected and all things are affected by man. Take too many trees and it causes flooding. The balance with nature depends on loggers and fisherman. Take too much and the supply is diminished.”

 “The laws are still in place—people are pretty strong. Talking to elders, these values don’t go away.”

 “It is just so unpredictable now—we used to know when the water would rise and fall and when the rain would come, but it is so different now.”

 “Moose are harder to hunt in the fall, which it never was before. The resources are scarce, they have moved everywhere and are in different places. It seems like when we do find them there are less, and in different spots than we have found them in the past.”

 “Yes, the feast system is still in place for it will always be our ayookxw (laws), our laws that will keep carrying on for generations.”

 “Our territorial management plan is in effect based on the wilp membership, not Indian status membership. This doesn’t mean that we have respect from the province or Canada as it pertains to our territorial management plan.”

 “If there’s too much rain, there’s no harvesting berries. This year we don’t have enough rain. The soap berries are turning red already; it usually extends until huckleberries are ready.”

“It is called our lax yip (territory). This is where we got all our stories, which are so important. The elders looked after it for us, and now we have to look after it for future generations that are coming.”

References

Berkes, Fikret, and Helen Ross. “Community Resilience: Toward an Integrated Approach.” Society & Natural Resources 26, no. 1 (2013): 5–20. https://doi.org/10.1080/08941920.2012.736605  

Cajete, Gregory A. “Indigenous Science, Climate Change, and Indigenous Community Building: A Framework of Foundational Perspectives for Indigenous Community Resilience and Revitalization.” Sustainability 12, no. 22 (2020): 9569. https://doi.org/10.3390/su12229569  

Ford, James D., Nia King, Eranga K. Galappaththi, Tristan Pearce, Graham McDowell, and Sherilee L. Harper. “The Resilience of Indigenous Peoples to Environmental Change.” One Earth 2, no. 6 (2020): 532–43. https://doi.org/10.1016/j.oneear.2020.05.014

Galappaththi, Eranga K., James D. Ford, Elena M. Bennett, and Fikret Berkes. “Climate Change and Community Fisheries in the Arctic: A Case Study from Pangnirtung, Canada.” Journal of Environmental Management 250 (2019): 109534. https://doi.org/10.1016/j.jenvman.2019.109534

Main-Johnson, Leslie. “Health, Wholeness, and the Land: Gitksan Traditional Plant Use and Healing.” UBC Circle, 1997.

Salmon, Enrique. “Kincentric Ecology: Indigenous Perceptions of the Human-Nature Relationship.” Ecological Applications 10, no. 5 (2000): 1327. https://doi.org/10.2307/2641288

Smith, Jane. “Placing Gitxsan Stories in Text: Returning the Feathers. Guuxs Mak’Am Mik’Aax.” UBC Circle, 2004. https://doi.org/10.24124/2000/bpgub137

Snively, Gloria, and Lorna Williams. “Knowing Home: Braiding Indigenous Knowledge with Western Science.” University of Victoria, 2016.

Summers, J. Kevin, Lisa M. Smith, Linda C. Harwell, and Kyle D. Buck. “Conceptualizing Holistic Community Resilience to Climate Events: Foundation for a Climate Resilience Screening Index.” GeoHealth 1, no. 4 (2017): 151–64. https://doi.org/10.1002/2016gh000047

Turner, Nancy J., and Helen Clifton. “‘It’s so Different Today’: Climate Change and Indigenous Lifeways in British Columbia, Canada.” Global Environmental Change 19, no. 2 (2009): 180–90. https://doi.org/10.1016/j.gloenvcha.2009.01.005

Whyte, Kyle Powys. “Indigenous Women, Climate Change Impacts, and Collective Action.” Hypatia 29, no. 3 (2014): 599–616. https://doi.org/10.1111/hypa.12089

Whyte, Kyle Powys. “Justice Forward: Tribes, Climate Adaptation and Responsibility.” Climate Change and Indigenous Peoples in the United States, 2013, 9–22. https://doi.org/10.1007/978-3-319-05266-3_2 Wilson, Nicole, Leila Harris, Angie Joseph-Rear, Jody Beaumont, and Terre Satterfield. “Water Is Medicine: Reimagining Water Security through Tr’Ondëk Hwëch’in Relationships to Treated and Traditional Water Sources in Yukon, Canada.” Water 11, no. 3 (2019): 624. https://doi.org/10.3390/w11030624

Closing Canada’s adaptation gap

The Government of Canada has committed to developing Canada’s first ever National Adaptation Strategy (NAS), currently under development and expected at the end of 2022. Canada has lagged behind other countries in developing an integrated, country-wide strategy to respond to the impacts of climate change. Many of our peer nations are now on their second or third versions of adaptation strategies and corresponding implementation plans. 

The development of Canada’s first NAS provides an opportunity to catch up. Learning from the experience of other countries, Canada can create a strategy to address our underinvestment in adaptation to date and better prepare the country for the effects of a changing climate.

In this discussion paper, the Canadian Climate Institute outlines essential elements of an effective and successful National Adaptation Strategy, based on international best practice and the Institute’s policy assessment expertise. The paper is not intended to provide a comprehensive assessment of every detail of a robust NAS. Instead, we highlight some of the most critical elements to set the strategy—and the policies that will stem from it—up for both short-term and long-term success.

Critical elements of a successful National Adaptation Strategy include:

  1. Set national adaptation priorities based on risk, including identifying the top national climate change risks that will be the focus of the NAS and establishing specific and measurable adaptation goals and outcomes for each.
  2. Identify short-term policy priorities, including outlining policies and actions that can begin to be implemented immediately, as well as a timeline for delivering a more comprehensive national adaptation plan to follow shortly after the NAS.
  3. Define improved adaptation governance processes, including clearly articulating roles and responsibilities, improving co-ordination within and between governments, and creating mechanisms for internal accountability.
  4. Create a framework for tracking progress and enhancing accountability, including measuring the outcomes of policy efforts against stated goals and objectives, using targets and indicators to measure success, and ensuring durability and transparency of the framework.

Nordic co-operation, Canadian provincialism

This case study was co-produced with Canada Grid, an initiative of The Transition Accelerator.

Introduction

In its pursuit of carbon neutrality by 2050, Denmark has become one of the world’s leading producers of variable renewable energy, with wind power alone accounting for 47 per cent of its domestic supply in 2021. What made that impressive achievement possible, however, was robust connections with other Nordic jurisdictions that can supply power when the wind isn’t blowing. These jurisdictions also provide a market for surplus Danish supply when generation is strong. 

For more than 25 years, Denmark has worked with its neighbours Norway, Sweden, and Finland to build a market of two-way trade that facilitates cost efficiency, flexibility, and carbon emission reduction. The inter-jurisdictional co-operation has since expanded to the Baltic states of Latvia, Estonia, and Lithuania, and increasingly with European Union neighbours. 

The experience of the Nordic countries holds some key lessons for Canadian provinces that are facing decarbonization challenges. 

Electricity trade, the Nordic experience shows, has to be a two-way street—both to optimize opportunities and to provide political support for greater integration. Co-operation must extend beyond the construction of transmission capacity to include formal links that facilitate planning and grid security co-ordination. Harmonization of data and of supply/demand modelling is required to ensure maximum grid efficiency. And harmonization of markets has been another key feature of the Nordic success; in its absence, co-operation among provinces will be more challenging. 

Fundamentally, the Scandinavian countries have benefited from a culture of co-operation that is rarely seen in Canadian interprovincial relations. Even in the absence of such co-ordination, however, Canada can still learn from the Nordic experience, though applying the key lessons will likely prove challenging. 

Calls for Canadian interties: Finding a way past balkanization

Canada’s electricity system remains highly balkanized, with most provinces guarding access to markets, maintaining highly concentrated decision making, and championing in-province supply options over regional interties. 

For several years, leading industry analysts have concluded that consumers would be well-served by greater interprovincial co-operation on grids, especially as we work to decarbonize. We would see the greatest benefits from increased trade between hydro-rich provinces like Quebec, Manitoba and British Columbia, and fossil-dependent neighbours that are building out renewable power capacity in their efforts to decarbonize (Pineau 2021, Shaffer 2021, van de Biezenbos 2021).

Among those voices:

  • Natural Resources Canada produced companion reports in 2018 on the Atlantic region and Western Canada, both of which endorsed the desirability for more interprovincial transmission (RECSI 2018, RECSI 2019).
  • In a 2021 report on decarbonization for the Canadian Climate Institute, Blake Shaffer pointed to the cost benefits of building greater inter-regional transmission capacity to marry hydro-rich systems with those that are building out variable renewable capacity (Shaffer 2021).
  • The International Energy Agency in a recent review urged greater interconnections among provinces and territories to “ensure balanced progress towards national goals for decarbonizing the power sector” (IEA 2022).
  • University of Calgary law professor Kristen Van de Biezenbos argued in a 2021 paper that the federal government has constitutional authority—and an urgent need—to assume permitting of interprovincial transmission. Lack of such capacity is “a deterrent to private investment in renewable energy projects, which is holding Canada back from meeting its climate commitments in a way that provides major economic gains,” van de Biezenbos concluded. 

Unilateral federal action, however, could run into serious roadblocks. Shaffer described the considerable barriers to greater integration, which include political resistance among provinces and lack of alignment of market structures and regulatory systems (Shaffer 2021).

As the Nordic experience shows, these challenges can be overcome but only through a thoughtful sharing of the benefits, and a deep and long-term commitment from government leaders to break down the provincialism that is the hallmark of the Canadian power sector.

Building Nordic co-operation: Theyre all in this together

Co-operation among Nordic countries on electricity markets goes back more than 100 years, to 1915 when the first undersea cable was laid between Denmark and Sweden. 

The Nordic Council of Ministers, which was formed in 1972, has consistently made energy co-operation a top priority among the four governments of Norway, Sweden, Denmark, and Finland. The resulting market integration has taken a number of forms.

In the early days, the Nordic Council of Ministers outlined priorities for regional efforts that focused on security of supply. Additional transmission capacity was built and interjurisdictional trade was managed by national Transmission System Operators. 

In the early 1990s, countries faced an over-supply of capacity and inefficient grids that inflated costs. Led initially by Sweden, governments began to deregulate their electricity markets. In 1995, the four Nordic countries agreed in the Louisiana Declaration to pursue “free and open markets with efficient trade across borders” (Cejie 2017)

At that time, the goals were less about environmental and climate change imperatives, and more about investment, flexibility, and reliability. The next year, Nord Pool was created as the first international power exchange, operating between Norway and Sweden. Finland joined in 1996 and Denmark a few years later. Baltic states Estonia, Latvia, and Lithuania joined the market between 2010 and 2012, connected by three underseas transmission lines to their Scandinavian neighbours.

Transmission capacity has since expanded dramatically among the Nordic countries as well as between them and other European nations such as the United Kingdom, Netherlands, and Germany. 

In an interview with the Canadian Climate Institute, veteran power broker Tomas Kaberger said the integration achieved significant benefits. “The interconnectedness has increased and resulted in more efficient power generation and reduced costs,” said Kaberger, who was head of the Swedish Energy Agency and is now professor of industrial energy policy at Chalmers Technical University in Goteborg. 

The benefits, however, did not accrue solely from more transmission capacity and restructured markets. The Nordic states also assembled regional governance structures to provide an overarching strategy to the market developments. 

Today, the council of ministers meet regularly. The Transmission System Operators have joint planning sessions for strategic capacity-building.

In late 2021, the Nordic Regional Security Co-ordinator was spun out from the Transmission System Operators as a jointly owned but independent corporation. Its task is to maintain a reliable power supply for the short-term market as well as in the longer term.

The Nordic Energy Research group, which operates under the council of ministers, provides a shared platform for research and policy development on a range of issues, including some that resonate in Canada: the role of hydrogen and carbon capture utilization and sequestration (CCUS).

The Nordic group also provides a regional perspective as the governments work within the European Union on a continent-wide strategy for clean electricity and decarbonization, efficiency standards, and grid reliability. However, each country retains policy autonomy in setting goals in areas such as emissions reductions, renewable electricity targets, and energy efficiency. 

Canadian provinces could similarly benefit from strengthened ties at a regional level while operating their electricity system under an over-arching climate plan that will drive decisions, just as the Nordic group does in Europe. 

In recent years, the Nordic group has been operating in a context where the European Union is playing a greater role in driving increased transmission capacity and greater market integration. Indeed, in years of high rainfall, Norway has displaced France as the largest power exporter within Europe. (Norway is not an EU member but participates in the common market of the European Economic Area, which also includes non-EU member Iceland.) 

The European policy is driven by three related concerns: decarbonization, keeping costs down, and maintaining grid security as greater variable energy sources are brought online. It is managed by the European Network of Transmission System Operators for Electricity (ENTSO-E), which comprises the national Transmission System Operators and which has urged continued strong investment in interjurisdictional transmission capacity (ENTSO-E 2020).

European policymakers expect considerable benefits from the market integration. ENTSO-E has forecast that, with an investment of 3.4 billion Euros over 15 years, generation costs would be 10 billion Euros per year lower than the baseline figure. At the same time, the system would avoid 110 TWH of energy curtailment by 2040, while reducing carbon emissions by 40 megatonnes in 2030 and 55 megatonnes in 2040 (ENTSO-E 2020). 

As the EU asserts its federal role, the four original Nord Pool countries have recommitted to regional co-operation to advance Nordic perspectives in the broader strategic consultations. In the same way, provinces could do more to advance their regional interests within the Canadian federation. 

Provinces already maintain regional forums such as the annual Western Premiers’ Conference and the Council of Atlantic Premiers. However, regional initiatives in the electricity sector are either non-existent (Western Canada) or nascent and struggling (Atlantic Canada.) While the western premiers have failed to advance a regional perspective for electricity, Saskatchewan and Manitoba did recently upgraded an intertie with federal support. 

The Atlantic premiers are pursuing federal support for an Atlantic transmission loop which would bolster intertie capacity and could involve Hydro Quebec. However, the provinces have not done the joint analyses and planning that would underpin the proposed five-billion-dollar project. Deep political divisions present enormous challenges, including an ongoing dispute between Quebec and Newfoundland over transmission of power from Labrador hydroelectric sites, and a deep distrust in smaller Maritime provinces over perceived Quebec ambition for market dominance. Nor is it clear if the provinces can forge a financial structure that will make the Atlantic Loop competitive in the long term. 

Windy Denmark, water-powered Norway: Charging and discharging the battery

Denmark’s experience in the Nordic energy group holds perhaps the most compelling lessons for Canadian provinces like Alberta that rely on fossil fuels for electricity and are building out their capacity in variable renewable electricity generation. 

Denmark is now a major transmission hub connecting to Norway and Sweden as well as with European neighbours to the south. 

The country has seen one of the world’s largest expansions of wind capacity, mostly offshore. It has availed itself of its large transmission capacity to provide backup power and exporting surplus power when winds are strong. In 2021, wind provided 47 per cent of the country’s electricity supply. Denmark offers a concrete example of the benefits that interconnections can provide.

Denmark also significant natural gas-fired capacity but has turned to cheap wind power—backed up by hydro imports—as it pursues a decarbonization strategy. Generation from natural gas plants fell from a 20.6 per cent share in 2006 to 7.3 per cent in 2016 and then stabilized (IEA 2019). A key reason for the decline in gas-fired power is the significant levels of interconnection with its neighbours and its participation in the Nord Pool spot market, the IEA noted. 

Denmark now has a total of nine interconnections with neighbouring countries. In 2016, the most recent year for which figures are available, seven international transmission lines provided 6.4 GW of export capacity and 5.7 GW of import capacity, which exceeded the country’s peak load of 5.6 GW. That same year, nearly 80 per cent of wind generation was balanced by either exports to the region, or imports from the region. 

The Norway-Denmark relationship, in particular, is a model for how Quebec’s electricity trade could evolve more efficiently with Northeastern U.S. states and expand with neighbouring Canadian provinces. When rainfall is low in Norway, as it was in 2021, the country can import power from Denmark and other neighbours to preserve its reservoirs. When rainfall is abundant, Norway can export surplus power and back up variable sources like wind. More two-way capacity would give the Norwegians even greater ability to mitigate the impacts of dry seasons and would improve the cost efficiency of transmission capacity. 

Northeast North American would benefit from similar trading patterns. A 2020 study from the Massachusetts Institute of Technology concludes that the addition of 4 gigawatts of transmission between Quebec and New England would lower the cost of zero-carbon electricity across the entire system by between 17 and 28 per cent. The benefit flows to both partners in the trade. The key condition: Quebec would act less as a baseload power supplier and more as a storage system that backs up a growing capacity of wind and solar generation. That is the role played by Norway’s (and to a lesser extent Sweden’s) hydro resource. 

The MIT paper’s lead author, Emil Dimanchev, says he would expect that a build-out of transmission links between Quebec and Atlantic Canada, where provinces have set their own net-zero goals, would also be the most cost-effective route to decarbonization. 

In an email, Dimanchev said that both Norway’s and Quebec’s hydro systems are like batteries. New transmission would increase the rate at which these storage systems can be charged from surplus renewable power in neighbouring jurisdictions and then discharged to provide power during periods of scarcity in these regions. 

Western Canada would also benefit from more interprovincial electricity trade. Hydro-rich British Columbia and Manitoba would act as batteries for Alberta and Saskatchewan as they begin to rely more heavily on wind and solar. In turn, renewable producers could sell back to hydro provinces when they have surpluses.

It is time for a mindset shift on what the best use of reservoir hydro is: namely as a long-term battery for variable renewables, which would require two-way trading between provinces.

—Emil Dimanchev

Green Sweden: Pursuing a 100 per cent renewable grid

With an historic reliance on hydro and nuclear, Sweden has now almost fully decarbonized its electricity system, a leader among developed countries. Further upping the ambition, the Swedish government has set a target of 100 per cent renewable power by 2040. Achieving that goal would require the replacement of aging nuclear plants with more variable sources of electricity. 

The Swedes are facing challenges that are familiar to many Canadian provinces: how to integrate large volumes of low-cost but variable renewable generation into the grid without requiring backup from natural gas-fired plants with the resulting greenhouse gas emissions.
The Swedes are facing challenges that are familiar to many Canadian provinces: how to integrate large volumes of low-cost but variable renewable generation into the grid without requiring backup from natural gas-fired plants with the resulting greenhouse gas emissions.

The country has long been a net exporter of power. In 2017, Swedish electricity exports totalled 30.9 TWh while imports were 11.9 TWh. Sweden is well interconnected with neighbouring countries. It relies mainly on land cables to Norway, but also on high-voltage sea cables to Finland and Denmark, as well as Germany, Poland and Lithuania. In 2017, half of Sweden’s electricity exports went to Finland while it was a net importer from Norway.

A number of challenges confront Sweden’s pursuit of its 100-per-cent renewable goal, however; not least the need for large-scale investment in an aging transmission system that is already plagued with bottlenecks. Under its 2040 target, the country will have to phase out an aging nuclear fleet—which accounted for 40 per cent of the country’s generation in 2017—while integrating growing wind capacity. 

The International Energy Agency warned in a 2019 review that the country may have to revisit its market approach, which does not provide incentives for building standby capacity.  “Sweden needs to make sure that the energy-only power market can deliver a stable electricity supply, while facing higher shares of wind power and a potential nuclear phase-out,” the IEA said. “This will require a well-thought-through market design and further regional collaboration.” Similarly, Canadian provinces will have to consider how their market structures accommodate decarbonization.

Part of Sweden’s solution involves greater investment in transmission, both for the internal grid and for great regional market access. The International Renewable Energy Agency (IRENA) laid out a menu of policies for Sweden in a 2020 report. It included greater digitalization of the grid; robust energy efficiency policies; a greater reliance on distributed energy generation and new sources such as renewable-power-to-hydrogen and renewable-electricity-to-heat; and finally more reliance on Nordic and pan-European markets. Essentially, IRENA concluded, integration has to happen not just horizontally at the level of the national grid, but vertically, from local, to area-wide, to national, to regional, to continental. Sweden already participates fully in what is the most integrated electricity market in the world. Greater co-ordination with the Nordic and Baltic countries, as well as European neighbours, will be a cost-effective way to achieve its renewable target, the international agency has said. 

Everyone into the Nord Pool: Building a common market

One of the key elements in the increasing Nordic electricity co-operation over the past two decades has been the role of Nord Pool, the wholesale market jointly owned by the transmission system operators of the four countries.

In the 25 years since its launch as a joint market between Norway and Sweden, Nord Pool has grown into a behemoth—the largest power market in Europe, accounting for 995 TWh in traded power in 2020. In addition to the Nordic and Baltic jurisdictions, it now operates in 15 European countries including Germany, France, the Netherlands and the United Kingdom. 

Nord Pool began in the 1990s with Norway and then Sweden deciding to deregulate their wholesale electricity markets, which were plagued by overcapacity, inefficiency, and high costs. As they were followed by Nordic and then Baltic neighbours, expanding trade in electricity by way of more intertie capacity became an obvious next step.

Several authors have noted that mismatched market rules in Canada represent a hurdle for any effort to expand interprovincial trade (Pineau, Shaffer, Van de Biezenbos). It is notable that the Nordic countries did have significant exports and imports prior to the market reforms; this trade was managed by the Transmission System Operators directly. The market reform early this century unleashed investment in transmission capacity that may not have occurred otherwise. 

In a 2017 review of the group’s co-operative efforts, Joakim Cejie, chair of the Nordic electricity market group, said better market functioning yielded improved price formation, bigger markets that were more attractive to investors and increased cost efficiency (Cejie 2017).

Nordic electricity ties: Across the wires, a culture of co-operation

Despite the long history of collaboration, Nordic politicians and technocrats cannot take public support for granted when it comes to free trade in electricity and the benefits of large net exports.

Norway’s protectionist Centre Party—formed as the Farmers’ Party a century ago—has called for a major reduction in power exports in order to keep prices low at home. Its platform no doubt gained some traction this winter as prices soared due to low levels in the country’s own reservoirs and high natural gas prices in Europe. 

Nordic co-operation has the “weight of history” on its side, but maintaining that co-operation takes continuous work, Andrea Stengel, senior adviser at Nordic Energy Research, said in an interview over Zoom. “It’s not a given because there are always populist voices saying the power should be used at home.”  

A vocal minority in each Nordic country has always opposed the relegation of decision-making to intergovernmental bodies. The populists have been most successful in the effort to keep Norway out of the European Union and have become re-energized by the United Kingdom’s decision to leave the EU, Stengel said.

The clear lesson for Canada: Advocates of greater provincial electricity trade need to recognize the inevitable political resistance. They must find ways to communicate the benefits of co-operation. And find ways to strengthen economic and social bonds so that increased electricity trade is part of broader shared agenda.

In the early years of the Nord Pool there were in fact few formal structures in place to manage the multilateral energy relationship. In a 2004 paper, Pierre-Olivier Pineau, Anil Hira, and Karl Froschauer, noted: “Integration has, in fact, been made through a decentralized regional framework, whereby each country has kept all its legislative sovereignty and no common institution has been created” (Pineau et al. 2004). 

Since then, we have seen the creation of common institutions that came about both organically, to manage the growing complexity of the regional relationship, and in response to EU action on electricity driven by both environmental and reliability concerns. Legislative sovereignty remains, but important planning and regulatory efforts have been taken up by regional institutions.

Under the auspices of the Council of Ministers, Nordic Energy Research grew from a small collaborative institute when it was formed in 1999, to a sizeable secretariat based in Oslo. The group funds research and manages pilot projects in emerging areas such as nuclear technology, CCUS, and hydrogen, as well as supporting the Nordic electricity policy engagement with the European Union.

In the interview, Stengel highlighted the organic nature of Nordic electricity co-operation. “They saw it worked and they saw that everyone profited, and they had been co-operating for a while so why not have the market and the grid with even tighter co-operation,” she said. 

The clear lesson for Canada: Co-operation is something you build piece by piece. It is important to get started with joint projects and some pilot programs. Canada’s patchwork of provincial electricity systems cannot go from virtually nothing to effective integration in one fell swoop. 

Conclusion: Lessons from Nordic electricity co-operation

In assessing the lessons Canada can draw from Nordic electricity co-operation, we need to recognize that the Scandinavian experience emerged from the countries’ shared history and culture. While the Nordic countries sometimes “quarrel like siblings” as Stengel put it, there is a greater history of economic co-operation than there is among provinces. The electricity market in Scandinavia has been liberalized and is dominated by private sector firms that are active in all four markets and beyond. 

The Canadian power market, by comparison, is highly balkanized. It features largely provincially owned, often vertically integrated corporations that dominate their home market but have no presence in other provinces. Politically, the success of “provincial champions” which provide high-paying jobs in communities all across a province is highly valued and can complicate the pursuit of low-cost, reliable, and environmentally sustainable power that greater integration offers. 

Federal intrusion into electricity markets is rare and politically sensitive, especially in Quebec where state-owned Hydro Quebec is seen as an unambiguous success. Finally, there is little evidence in the Nordic region that Indigenous populations play a significant role in project planning and implementation, whereas Indigenous communities in Canada are demanding their seat at the table. The construction of interprovincial transmission lines will require their participation.

Despite the fundamental differences, there are some conclusions to be drawn from the Nordic experience that are relevant to Canada. 

As the Nordic model shows, the expansion of provincial interties would yield benefits by marrying hydro-rich systems with those that are decarbonizing through large additions of wind and solar. 

The optimal trading pattern would be two-way, with hydro suppliers backing up a growing fleet of variable renewable capacity, which can be used to recharge reservoirs when market opportunities arise. 

Grids can still be managed internally by provincial system operators who then collaborate regionally through formal bodies for the purposes of planning, short-term supply adequacy and balancing. Market harmonization is the grease that allows for most efficient trading and lowest-cost electricity supply but is not a prerequisite for greater co-operation. 

Transmission planning and market harmonization in the Nordic group are driven by shared values that now include national net-zero commitments. Such consensus does always not exist among provinces in Canada. However, a growing commitment to decarbonization would bring the benefits of interprovincial co-operation into clearer focus.

Fundamentally, the strength of the Nordic system is the culture of co-operation that undergirds it. Such a culture can be built here if provinces focus on the three essential elements of successful grid management: affordability, zero-carbon, and reliability. Joint planning is needed to ensure that benefits are shared. Trust is critical. 


Waves of change: Indigenous clean energy leadership

Indigenous communities, governments, and organizations in every region of Canada have been active developers of renewable energy projects over the past two decades. Today, First Nations, Métis, and Inuit entities are partners or beneficiaries of almost 20 per cent of Canada’s electricity-generating infrastructure, and almost all of that infrastructure is producing renewable energy. Indigenous Peoples are thus at the forefront of the country’s clean energy evolution.

This paper traces the rising waves of Indigenous participation in clean energy over the past two decades. It looks at how to catalyze exponential growth in Indigenous clean energy opportunities, proposing specific actions and initiatives that can materially contribute to Canada’s clean electricity future. The paper wraps with a series of strategic recommendations to forge new electricity relationships and commitments rooted in pan-Canadian collaboration, Indigenous participation in planning electricity futures, using carbon price revenues more effectively, and removing the capital bottleneck for clean electricity systems within the Canadian federation. 

Enhancing the resilience of Canadian electricity systems for a net zero future

Reliable and resilient electricity systems are essential for a prosperous, net zero Canada. While Canadian electricity systems are generally reliable, they face growing challenges as climate impacts worsen and as electricity use increases through decarbonization. This scoping paper examines the expected climate-induced risks to Canadian electricity systems and discusses opportunities to enhance their resilience on the path to net zero.

Cutting to the chase on fossil fuel subsidies

Canada and other G20 countries have committed to phase out “inefficient fossil-fuel subsidies that encourage wasteful consumption” (European Council 2021). This has sparked debates about the definitions of inefficient and subsidy. On one hand, governments and industry have interpreted this language narrowly to defend measures that support increasing fossil fuel production and consumption. On the other hand, others have taken much broader interpretations that arrive at very high subsidy estimates.

This paper takes a different approach, which we hope will prove useful in guiding Canada’s implementation of its pledge to phase out fossil fuel subsidies. We assess whether existing and proposed government measures support or hinder the private investment needed to drive Canada’s long-term success through the global low-carbon transition. Success, in this context, means both strong economic growth and a smooth transition for workers and communities.

Border Carbon Adjustments

Recent policy efforts in the European Union (EU) to implement a Carbon Border Adjustment Mechanism for a select number of products have increased the focus on border carbon adjustments (BCAs), moving them from theory to practice.

Executive summary

The EU is exploring a carbon charge on some imported goods to address imbalances in carbon costs between the carbon price levied on EU producers and a lack of carbon pricing in exporting countries. The EU is not alone, with the Canadian government releasing an issues paper on BCAs in August 2021 as part of a broader initiative to consult on BCAs. In the U.S., the Biden administration has made no secret that they are also interested in investigating the application of BCAs. With Canada, the United States, and the European Union now all considering their design choices for border carbon adjustment mechanisms, BCAs are about to get real.

One important aspect in the design of BCAs is the level of cooperation among governments. Some level of cooperation would seem advisable to improve design, increase the understanding of programs among trading partners, smooth the protectionist waters, and, importantly, incent other countries to increase their ambition to avoid the border adjustment.

The Canadian Climate Institute, with the support of the German Embassy in Canada, explores in this paper the technical and administrative aspects of a cooperative agenda that could support the implementation of border carbon adjustments. We explore two important areas of potential cooperation, including:

  1. UNDERSTANDING THE CARBON POLICIES that the BCA credits for equivalent policy.
  2. ASSESSING EQUIVALENCY AMONG SYSTEMS, including developing a legal, fair, and practical approach to assessing the relative policy stringency among traded commodities.

Important elements of the cooperative agenda for countries to pursue include the following actions:

  1. FURTHER ENGAGE to bring BCAs into more widespread discussions under the WTO.
  2. BRING BCA DISCUSSIONS into multilateral alliances and cooperative forums and broaden sectoral deals.
  3. START COOPERATIVE WORKING GROUPS focused on best practices.
  4. PREPARE THE INFORMATION to reveal the average costs of carbon pricing programs

Going further in the conversation

The German Embassy in Canada joined the Canadian Climate Institute on December 15, 2021 to discuss the cooperative agenda that could help smooth the waters for border carbon adjustments. Watch the webinar:

Germany’s Energiewende 4.0 Project

1. Canada’s net zero target and the path ahead

Canada has committed to reducing its greenhouse gas emissions to net zero by 2050. To support these efforts, the federal government has legally enshrined that goal, created a mechanism for defining five-year milestones on the way to achieving it, and established a governance framework to help keep the government on track.

In January 2021, the Canadian Climate Institute published the first comprehensive study of what this net zero goal means in practical terms, Canada’s Net Zero Future: Finding Our Way in the Global Transition. The report modelled more than 60 different scenarios for Canada’s energy future to determine the feasibility of the net zero goal, consisting of various combinations of established “safe bet” solutions and less certain “wild card” solutions that could be used to achieve it.

The biggest takeaways from that foundational report are that Canada’s net zero goal is achievable, and that getting there requires a massive, early build-out of clean electricity and expanded electrification.

Currently, however, Canada’s aging electricity infrastructure is not aligned with a net zero future. In particular, intermittent renewable energy sources such as solar and wind, which are essential for reaching Canada’s goal, present challenges for electricity systems that aren’t ready to handle them. Furthermore, the regulatory framework governing Canada’s network of provincially managed grids is rigid and often misaligned with net zero goals, which creates major barriers to innovation. Electricity grids are far too important to Canada’s vital progress toward its net zero goal to perpetuate this status quo any longer—something Canada’s new government has acknowledged in its recent commitments to supporting the development of cleaner grids.

Fortunately, Canada is not alone in this energy transition. Upgrades to electricity infrastructure and systems to support decarbonization are already underway around the world. Germany, for example, has led the way for more than 20 years, with a national commitment to producing electricity from renewable sources that has seen the share of renewables on German grids expand from less than five per cent to more than 40 per cent since the start of the century. As Germany pushes on toward even more ambitious goals, including a nationwide phaseout of the coal-fired power plants that still supply about one-quarter of its power and an economy-wide target of net zero by 2045, German insight and expertise can provide valuable lessons for Canada’s own net zero push.

2. German leadership in the global energy transition

Germany’s leadership role in the growth of renewable energy and other climate solutions has been guided since 2002 by a range of federal and state-level policy tools united under the banner of die Energiewende (“the energy transition”). Germany’s pioneering work over the years has included the first industrial-scale ramp-up of the solar industry, innovations in energy efficiency, climate-friendly design for everything from homes to heavy industry, and a lead role in political negotiations to expand its transition goals to the entire European Union.

In some ways, Canada is embarking on its pursuit of net zero with a huge head start over Germany. The German transition began from a massive reliance on coal-fired power plants, whereas Canada’s electricity infrastructure is already more than 80 per cent non-emitting, thanks to an abundance of hydroelectric and nuclear power. But Canada’s national figure masks a sharp regional variation between provinces with predominantly hydroelectric and nuclear grids and those with mostly fossil-fuel-based grids (Shaffer 2021).  Both the Canadian and German grids, however, are highly centralized and built around large-scale power plants with readily dispatched electricity supplies. Germany’s Energiewende, which has been dealing for more than a decade with the challenges of ramping up intermittent renewables and rewriting outdated regulatory, legal, and financial frameworks, thus has many lessons to teach Canada about how best to accelerate its transition.

Opening of the NEW 4.0-Roadshow in May 2018 at the Chamber of Commerce in Hamburg. Photo: Daniel Reinhardt/HAW

3. NEW 4.0 and the future of net zero grids

As Germany enters the next phase of its Energiewende, pursuing a target of 65 per cent emissions-free power by 2030 and net zero nationwide by 2045 for all energy production and use, it has begun to tackle the most difficult technical, logistical, and political questions raised by the redesign of its grids for intermittency, distributed generation, and large-scale storage. In support of this, the German government’s Federal Ministry of Economics and Energy launched a “Smart Energy Showcase” in 2016—a funding program to launch experiments in next-generation digital technology to assist the Energiewende in achieving its goals. One of these projects was Norddeutsche Energiewende 4.0 (the North German Energy Transition 4.0, or NEW 4.0).

NEW 4.0 was conceived by local and state officials in the northern German state of Schleswig-Holstein and the neighbouring city-state of Hamburg to showcase its leadership in the energy transition and develop tools for even more renewable energy use, both in the state and across the country. Schleswig-Holstein is Germany’s wind energy heartland, home to abundant wind power resources both onshore and offshore along its North Sea coast, as well as a major manufacturing hub for wind turbines. As a leading clean-energy region within a leading clean-energy nation, Schleswig-Holstein stands among the vanguard of the energy transition globally, making it a particularly robust model for Canada’s net zero road ahead.

Northern Germany’s transition is already running into problems that Canada too is expected to encounter. The state of Schleswig-Holstein is deeply entwined economically with the major industrial and port city of Hamburg to the immediate south—the primary customer for the state’s electricity, whose heavy industries and their relatively high emissions require more than simply adding additional wind power to the grid. (Large-scale industrial operations such as aluminum smelters and steel plants, for example, are dependent on the reliable on-demand energy flows from centralized power plants, and retrofitting them to work with technologies such as intermittent wind power and energy storage obliges a rethink of every aspect of both the power market and the respective production processes.) The regional grid already suffers from significant grid congestion at times of peak wind power production, often dealt with inefficiently through re-dispatch or curtailment.

The problems of intermittency, grid congestion, outdated technology, and legal and regulatory barriers present in Schleswig-Holstein mirror challenges Canada’s grids are expected to encounter as its pursuit of its net zero goal accelerates. The experience of Germany’s NEW 4.0 project provides an excellent case study, allowing Canadian jurisdictions the opportunity to anticipate and avoid clear stumbling blocks along the way.

The project

The NEW 4.0 project, which ran from 2016 to 2020, billed itself as a “blueprint for the energy transition,” launched in “a model region for the Energiewende.” The project’s intent, beyond the technical specifics, was to demonstrate that an entire region of Germany—the federal state of Schleswig-Holstein and neighbouring city-state of Hamburg—would be able to operate on 100 per cent renewable energy as early as 2035.

With more than 60 per cent of the regional grid’s capacity consisting of renewables at the project’s launch in 2016 and more than 18,000 jobs already in the regional clean energy industry, Schleswig-Holstein stood at the forefront of Germany’s (and Europe’s) energy transition and provided a strong model for future grid development. The region also faced some of Germany’s steepest costs—around one-third of the approximately €1.2 billion in costs nationwide were borne by Schleswig-Holstein and Hamburg alone due to grid inefficiencies and imbalances of supply and demand (the costs of which were heightened by the region’s greater reliance on non-dispatchable generation).

NEW 4.0 brought together 60 partners from both the public and private sectors, including grid operators, public utilities, and local and regional government agencies, as well as technology companies (among them Siemens Gamesa, Acciona, Nordex and Vattenfall) and major producers of steel, aluminum, copper, and chemicals. Total project funding for the five-year project was around €80 million, with €45 million coming from the German government’s Federal Ministry of Economics and Energy.

The conceptual framework for NEW 4.0 was loosely based on an “innovation sandbox” framework. Northern Germany served as a “model region” in which to test new applications, business models, market mechanisms, and technologies. This regulatory space for experimentation hosted approximately 20 simultaneous demonstration projects. The centrepiece was an “Energy Platform”—a digital pricing and load management tool for the region’s grid, powered by blockchain technology and intended to use the flexibilities of supply and demand in the region to stabilize the grid and create cost-cutting and efficiency opportunities for both energy suppliers and electricity consumers. The platform allowed large industrial customers, storage technologies, hydrogen fuel providers, heat generation facilities, and small electricity producers to trade excess supply and demand of electricity on an open marketplace. Developing tools for this kind of load management is a crucial step in the path to net zero in any jurisdiction.

NEW 4.0 proved the clean-grid concept: from a technical standpoint, large-scale industrial economies can be run pretty much completely on renewable electricity and other currently available clean technologies.

Werner Beba, a business professor at the Hamburg University of Applied Sciences (HAW-Hamburg) and the project coordinator for NEW 4.0, summarized the project’s core focus: “We have taken the next major step [toward 100 per cent renewable power] by testing the coupling of the electricity sector with the heating and industrial sectors. Functioning market platforms have been created to reduce congestion in the electricity grid, intelligently control energy flows, and harness currently curtailed electricity volumes. We have used green electricity to replace gas, coal or oil in heat supply and in industrial operations. We have tested the use of hydrogen in the industry, the heating and mobility sectors, which also helps to reduce greenhouse gases. In addition to the technical innovations, we have also learned which factors are crucial for ensuring broad social acceptance.”

NEW 4.0 demonstrated that electricity can be supplied, as the project summary report explains, “on demand to different consumers at any time in the amount required, while also keeping the grid frequency stable” (Beba et al. 2020). The project provided a successful test of the integration of energy-intensive consumers in Hamburg’s industrial sector with wind power production in Schleswig-Holstein. In short, NEW 4.0 proved the clean-grid concept: from a technical standpoint, large-scale industrial economies can be run pretty much completely on renewable electricity and other currently available clean technologies. NEW 4.0 also revealed some of the non-technical shortcomings of current energy systems—economic, legal, bureaucratic, political—that most urgently need to be addressed to achieve net zero goals in Germany and Canada alike. (These challenges are discussed in Section 5 below.)

Opening of the NEW 4.0-Roadshow in May 2018 at the Chamber of Commerce in Hamburg. Photo: Daniel Reinhardt/HAW

The NEW 4.0 projects

NEW 4.0 involved approximately 100 sub-projects across the region, with particular focus on 20 full-scale demonstration projects. These included:

  • demonstrations of new technologies, ranging from battery, heat, and hydrogen storage systems to household-scale smart appliance applications
  • demand-response systems to increase flexibility for large-scale industrial customers
  • digital trading platforms to create marketplaces for short-term trading of surplus power between producers and consumers

Let’s consider a few of these with the greatest potential relevance to Canada’s energy transition in detail.

The Energy Platform

Developed by Hamburg Energie, the primary public utility company in the city of Hamburg, the Energy Platform is a digital application using blockchain technology to enable “the rapid regional trading of flexible renewable energy, contributing to grid stability and security of supply while also maximizing the value of surplus energy from wind and other renewable sources. Participants in this demonstration project included three of Hamburg’s largest industrial operations: ArcelorMittal (steel production), Trimet (aluminum), and Aurubis (copper). By establishing a marketplace for producers and consumers of renewable energy, the Energy Platform allowed consumers to contract directly with producers to meet their planned electricity demand.

Harnessing peak wind power

In the small city of Norderstedt, a satellite of Hamburg, the local utility company, Stadtwerke Nordestedt, joined the NEW 4.0 project with a demonstration of load management strategies and technologies to take advantage of low-cost excess wind power. The project signed up 1,000 residents to receive a special tariff for using electricity at times of peak wind power production, reducing rates at those times to €0.05 – 0.15 per kilowatt-hour (from normal rates of as much as €0.30). Participating homes were equipped with a switch box and four connected sockets. Large appliances plugged into the sockets were automatically switched on when wind power production was at its peak. Dishwashers and clothes washers were among the most common appliances operated using the sockets, but the mix also included phone chargers, electric bikes, and even electric cars. During the 20 months of the demonstration, the 1,000 homes made use of 371 MWh of power that otherwise would have been wasted; the peak wind use amounted to about 10 per cent of each home’s overall energy use on average.

Power to aluminum and power to steel

At major aluminum and steel production facilities in Hamburg, NEW 4.0 projects introduced systems to efficiently pair industrial-scale energy demand to intermittent renewable energy supplies. At Trimet’s aluminum plant, ten smelting furnaces were equipped with specially designed heat exchangers and control systems, allowing the plant’s production to be scaled up and down as available wind power fluctuates. When there was excess power, production could be increased while the heat exchangers dissipated the excess heat to maintain the constant high temperatures required for aluminum smelting. When there were shortages of electricity, the heat exchangers functioned as insulators, preventing the furnaces from cooling down and in effect acting as virtual batteries for the facility. If the Trimet plant’s 270 furnaces were equipped with the heat exchangers, the result would be a battery capable of storing 3,800 MWh of wind power for several days, reducing the need to switch off nearby wind turbines during periods of particularly high wind.

At ArcelorMittal’s Hamburg steel plant, meanwhile, two NEW 4.0 sub-projects tested ways of adapting steel production to intermittent renewable power supplies. One of these tested the ability to “time-shift” production, increasing the smelter’s output during periods of high wind. This proved to be technically feasible, but it would not make economic sense under current market conditions in the region. The other sub-project investigated the viability of using electricity from renewable sources to replace some of the natural gas currently used to fire the plant’s smelters.

Large-scale storage

In the north of Schleswig-Holstein, near the Danish border, a joint venture of the Dutch utility company Eneco and battery manufacturer Mitsubishi installed the largest lithium-ion battery storage facility in Europe. The 48-MW/50-MWh installation was sited near large-scale wind and solar farms at a spot with excellent grid connections. Though capable of supplying more than 5,000 homes with 24 hours of electricity, the storage facility has to date only been used to balance power load and improve stability on the regional grid.

Power to hydrogen

This NEW 4.0 project combined a 2.7-MWh battery storage facility with an electrolyzer and hydrogen filling station to examine the feasibility of hydrogen fuel as a means of reducing the amount of curtailed wind power on German grids. Wind turbines in northern Germany produce about 80 per cent of all the curtailed power in the country, due to high wind power production overloading the grids. This challenge could be alleviated by storing peak wind power and converting it to hydrogen fuel for use in mobility and heating.

5. Canada’s net zero target and the next-generation grid

The NEW 4.0 project was intended to provide a model for Germany’s future energy infrastructure development as it pursues a nationwide goal of net-zero emissions by 2045. NEW 4.0 focussed on the significant upgrades, technological innovations, re-design work, and regulatory reinvention that will be required to build the grids that the energy transition requires. The most important lessons from this four-year innovation experiment, as noted in the project’s final report (Beba et al. 2020), are:

  1. Grid expansion is not enough. The reliability of the emissions-free grid will require decentralized load management, innovative storage technologies, and electricity markets that reward flexibility. And these features must be available at low cost.
  2. The technology is ready. “We currently already possess the necessary facilities, market instruments, ICT infrastructure and know-how” to build grids ready for a 100-per-cent-renewable future, the NEW 4.0 final report explains. The necessary flexibility required to avoid curtailment, find customers for excess renewable power, and overcome power shortfalls can be provided by a range of stakeholders, helping to improve grid stability and avoid grid congestion.
  3. The financial and regulatory frameworks aren’t ready. “What is missing,” the NEW 4.0 final report notes, “are adjustments to the legal framework as well as financial incentives to implement the newly available technological and market solutions rapidly, effectively and economically.” The rules, regulations, and rate structures of German grids are not yet ready to create markets for these innovations and incentivize deployment of the new technologies. The business case simply isn’t there yet, and the evolution of the legal framework in which electricity infrastructure operates has not kept pace with technological changes. As Oliver Arendt of the Hamburg University of Applied Science, who served as a project manager on NEW 4.0, the project arrived at the same conclusion that the other four projects funded under the same federal “Smart Energy Showcase” initiative reached: “We need to redesign the way we pay for electricity.” The current approach to electricity rates in Germany, even 20 years into the Energiewende, still does not encourage a business case for technologies and systems that improve flexibility and pursue net zero goals, particularly regarding the way revenues are distributed to the energy system’s stakeholders.
  4. Industrial stakeholders have a major role to play. “Industry is a key driving force in decarbonization and effective climate protection,” the NEW 4.0 final report explains, and the industrial participants in NEW 4.0 projects demonstrated that their consumption can be synchronized with renewable energy generation using smart energy technologies and more flexible market mechanisms. “Large industrial electricity consumers are technically capable of using additional wind power even at short notice. Similarly, the industry can also reduce its energy consumption when the production of green electricity is low.”
  5. Better data analysis is urgently needed. Owing to the impact of weather changes on renewable energy production, grid operators need greater data volumes in order to respond quickly to short-term changes, while real-time analysis of data is also vital for the operation of complex, decentralized power generation and more flexible supply and demand. On all fronts, more and better data is crucial for the future of the emissions-free grid.

Thorsten Müller, founder of the Foundation for Environmental Energy Law, who oversaw NEW 4.0’s work on market conditions and the regulatory framework, provided this summary of the project’s main lessons: “Firstly, as a basic prerequisite, we require a great deal more electricity from renewable sources and need to create the necessary preconditions in energy, planning, and approval laws, otherwise it will not be possible to achieve greenhouse gas neutrality. We also need electricity from renewables in the heating and transport sector—the keyword is sector coupling—and in industry. Secondly, we will have to restructure the energy industry in such a way that it consistently focuses on fluctuating renewables and assigns real value to efficiency. Thirdly, we need to transform the largely isolated energy sectors into a unified energy system and fundamentally redesign the law as a control instrument: away from contradictions and complexity and towards coherent, cross-sectoral energy laws.”

Lessons for Canada

There are of course many significant differences between the German and Canadian contexts regarding geography, resources, economies, and politics. Perhaps most significantly, Germany’s federal government has far more authority over energy policy than Canada’s federal government does. Still, the attempts to date to prepare Canadian grids for the coming energy transition have uncovered similar challenges and opportunities to those that have emerged from the NEW 4.0 project. Despite the differences, Canada can learn a lot from the German efforts as both countries pursue net zero.

The primary challenges for Canada, as in Germany, are not technological but regulatory, legal, and structural.

QUEST Canada, for example, is a non-governmental organization that partners with Canadian governments to accelerate the energy transition, and its recent work has included collaborations with the Ontario government and Ontario Power Generation on developing an innovation sandbox for the province’s energy infrastructure. QUEST’s analysis indicates that the primary challenges for Canada, as in Germany, are not technological but regulatory, legal, and structural (QUEST 2021).

Current regulatory mandates in Canada prescribe a very narrow view of costs and benefits, meaning many of the changes necessary to accelerate the energy transition are not incentivized and innovation is not encouraged. “To get more innovation,” says Eric Timmins of QUEST, “you have to consider non-financial aspects.” But regulators can only work with what is in their mandates, and the system in general rewards risk-averse conservatism regarding innovation. Policymakers will have to take the initiative to encourage these changes, including by sending clear signals through a rising price on carbon or regulatory constraints. But given their own risk aversion, they will also need to create spaces for experimentation, innovation, and proof-of-concept work—which is where innovation sandboxes similar to the NEW 4.0 project’s approach become crucial.  

The ultimate lesson of Germany’s pacesetting NEW 4.0 project, however, is that it provides clarity on the daunting scale of the change that electricity systems will have to undergo on the way to net zero. The technologies to reduce emissions are increasingly ready to go, but they cannot solve the myriad problems of finance, regulation, and political will that must be addressed. Changes throughout the system are needed to invite innovation and properly reward approaches that accelerate the drive to net zero. Innovation sandbox projects like NEW 4.0 are nonetheless enormously helpful in catalyzing that larger task, giving innovators and regulators alike a space to prove the viability of the net zero toolkit.

We thank Konrad-Adenauer-Stiftung for their financial support in producing this case study.


Works Cited (click to expand)

Beba, Werner, Matthias Boxberger, Janina Grimm, Martin Heins, Onnen Heitmann, Kaja Juulsgaard, Hanna Naoumis, Thorsten Müller, Klaus Schweininger, and Matthias Weng. 2020. NEW 4.0: Showcasing the energy landscape of tomorrow. Renewable Energy Hamburg.https://www.ponton.de/downloads/New40Report.pdf

QUEST. 2021. A State of Renewal: Ontario’s Innovation Sandboxes. https://questcanada.org/wp-content/uploads/2021/09/A-State-of-Renewal-Ontarios-Innovation-Sandboxes-Sep-27.pdf

Shaffer, Blake. 2021. Technical pathways to aligning Canadian electricity systems with net zero goals. Canadian Climate Institute. https://climatechoices.ca/wp-content/uploads/2021/09/CICC-Technical-pathways-to-aligning-Canadian-electricity-systems-with-net-zero-goals-by-Blake-Shaffer-FINAL-1.pdf