b

Jame

cL !l and

M

TER

E VIR

M

cc: James
THE UNIV R ITY OF

F

IE

T L

. Mclelland, 1999

ORTH R

BRITI H

L IVI l

Jun e, 1999

ll ri ghts re erved. This worl may not be
reprodu ed in whole r in part, by photo op r
other m an , with ut the perrni sion o r the author.

b trac t
I l I t n a 11 , FI r t

ntl , mine cl vcl J m nl in Fir l

b n minimal. M r re

fi

u

r 11

r thi re
I

, hat impa t th

nti h ' lumb1a '

nv1r 11111 ntal a

fi r Jr l

at1 n

I a111 c1pat1 11 111 three a

lamalt n

f th

E m ·1ro11111 1110! Assessnz 'Ill Act In i

pr

effi t1v ne ; and, provide re
cffc tt\'enc

r r Fir t

a literature re, tC\\, p
to an

mm cndal1 n l 1rnpr

c

al I n

t-h

anal

111

r llllllC d

nl(E )
prn enl ;

n [-:

lumbia'

rili h

at1 n ' pat1icipati n in mine de cl pm cnl.

p 11 y
p !i cy

clh cJ u cc.I in clud e

h en at1on, and comparative analys is

1 , c mmunit

er the re arch que ti n . Poli

analy i fram

111munit1 c . The

m1111e·

ar h i t d

rfi ti\' ne

al1 n,' tra l1t1 na l ten-it ri c

ir t

n mm

lumbia ha

riti h

rp ra l I n an cJ

nOi t b

ha

I pmcnt 111

at i n ' pa rt 1 iI at I n in 1111 nc d

crfi l1vene

fi r ca h

'1 e 1,

det r1111ncc.l with an

ork that examine effica y fr m a practice, perfi m1ancc, pr ficiency, and

pu1110 e per pective. When combined, the fi ur per pcct1ve

yield a mea uremc nt or

overall polic y effectivene . The re ult of th1 stud y indicate that of the three ca e of
A, none attained overal l policy effectivene

for Fir t

ation ' pa11icipation. Thi i du

to non-achi ve111ent of principles or obje tive within each of th e practic e, perfomian c,
and transactive per pecti ve

e ·arnined.

he impact of th e proclamation of Briti h

Columbia' E11viron111enta! Ass s111 nt Act on p li y effe ti ene
within the perforn1ance per pective. Legislating Fir t

\.\.a mo t rcauily cen

ations to

it

n the Pr l

ommittee h !peel towards the achi ving of perfomrnn c objective . The tuc.l

on lud

with re

olumt 1a'

mrn enclati

11 ,

ba d

11

the a c tud

r ult, lo impro,c Bnti h

tA policy cffectivenes fi r ir t Nati n 'parti ipali n in min d vcl I rnent.

II

Tab l

f

nt nt
..

11

cl n

1gur
lcd gm nt
I

hapter n : Jntrodu cti n
1. I11tr ducti n
1. 1 bJC ltv
fth R ar h
rga1111att 11 f th The I

2
6
7

hapt r

,, : Publi c and Fir t ati n Parti ip ati n 111
. , nvironm ntal
m nt
~.O Intr ducti 11
~. 1 The
n pt f Public Parti ipati 11
\' rnm nt Deci ion - aking and Publi Part1 1pati n
- ·- · 1 P liti al Rati 11al
- .~.2 Funct1onal Rati 11alc
-·- ·3 Democratic Rati nalc
2.4 nvir nmcntal
e m nt and Public Pa1i1 ipat1on
sc ment
2.5 Fir t ation ' Participati n and nv1r nm cntal
2.6 n E aluati n Frame ork [i r n ir nm ental
mcnt
Policy ffi cti ene
Chapter T hree: Me th odolo y and naly
3.0 cthodolog
3. 1 Re earch De ign
3.2 M thods
.2.1 Literature Revi
3.2.2 Post-Hoc nalysi
3.2.3 Obs rvation of ommunity vent
3.3 C mparativc Analy i
Chapter Fo ur: Firs t Natio ns' Parti cip ation in Min e Deve lopm nt :
a e De cription
4.0 Introduction
4.1 Mine eve loJ ment and nvironm ental
4.1.1 Hi story f nvironmental
ses rnent
and Mine ev I pm nt
4. 1.2 ir t ation ' Parti ipati on: The /\li11e J) vel op1J1 e111
A ssess 1J1 e11t cl nd th e En\•1'ro11111 e11tal A · ess1J1 e111 Act
4.2 Mt. Mil ligan Mine Pr ject
4.2. 1 Proj ct L cati n and
cri ption
e
4.2.2 Re ur cs and Land

111

9

9
I1
II
12
14

24
32
3
51
52
52
53
55
55
57
5

61
62
6_
6

70
76
76
76

4.2.
4.2.4

4.

.. ..,..,._,..,..,111

nt Pr

7

79

ipati n

K m

Min
4._ .1 Pr J
4. _ .._ R ur

t

alt n and
an I and

ri1 ti n

4 .. 3 nvir nm ntal
c m nt
4. _ .4 Fir t ati n ' Pai1i 11 at1 n

4.4 Hu klcb tT Min Pr JC t
4.4 .1 Pr j t
call n and
4.4 .._ Re ur c and and
4.4 .3 ~ n\'ir nm ntal

4 4.4 I· tr t

r

90
rq ti n

(0

92

c
rn nt Pr

c .

)

)4

alt n ' Patil 1pat1 n

hapt r Fi\' : naly i
5.0 lntr dueti n
. I Pr ccdural P lie
ffcctiv n
.~ ub tantivc p lie
f~ tivcnc
ffc ti\·cn
.3 Tran aeti\ c Polte
5 A \ era] I Po Ii y ~ fG ell\ enc

I 01
102
102
110
l 20
126

Chapt r i : Conclu ion and Reco mmendation
6.0 onelu 1 n and Rec mm ndat1 n

130
131

Literature

137

ited

I\

I i t of Figur
Figur
rianglc" .

'-. 1
2.2

.l

3.-

4. 1

p

f p J1

e f fi t I \

41

4_

11 e

Pr ,·111 ial map 1llu trat1n g the I ati n
th m111e clc,·el pm nt a

f
54

\ 'alidat1 n f First at, n ' pa111 c1pat1 n thr ugh
trian gulati n \\ 1th1n a e .

60

Int racti n b l\
en 1r nm nt.

4

n mi111ng pha c and th

4.2

The" had \\ Elf' t" fi r minin g.

67

4 .3

FIO\\Chart utlin111 g
m nt Pr cc

71

111 De elopm ent

Flowchart outlining Fir t ation ' input into the
Envir nm ntal
e mcnt Pr ce s

73

4.

Mt. Milli gan min e development locati n

77

4.6

Kerne s mine deve lopment project locati n

2

4.7

Huck leben-y mine development project location

91

5.1

ummary of proc dural, ubstantiv , and
tran active policy effectiven s for the three ca e

127

4.4

\'

hapt r n
lntr du t1 n

pur u d b m1111ng

a

the I

d t

n

m nt I r
h

e

( ad! r, 1
f

u

I

Ir

t

r, a r

.H

mparn

7

ati n ' part1 q ati n fi r a rang

a identtii d durin g a

th
th r ugh u l
the

111

trn g

ir t

ali n cx pr

f different cl e

f infi rmat1 n haring an I advt

n

luml ia with aried

ri ti h

In fi und that th

f th

1ev

ati n ' pa11i i1 ati n 111 the en 1r nm ntal

f Fir t

LI

nt r

ir l

d man

ati n

111

ry c i n h Id

gr up 111 I )96 and 19)7. Within

c nccm

ith th e E

pr

e . The fir t

n cm deal \\ 1th 11 t1fi alt 11 Fir t 'al1 n ' pnn 1pal c nccm 111 th1 area i th e need
fi r earl

r an appl i ati n fi r a pr JC t a ppr

n tic

al crti fie ate pn r t

any s d

turnin g.
Th
c pr

cd the

nd concern in

e

Ive

the a e ment of pr ject effec t .

1ew th at pa t hi t ry \\ith de cl pment project ha
m 11t for cc nomic, en ir nmental,

effect . The view was al o

ir t

ati n

1cm n trated a la k

cial hentag , cu ltural , and hea lth

pressed that pa t development have failed lo hare re ultin g

proJ ct ben fit ,

uch a

ec nomi c, eclucati nal , and empl yment op portuniti es with

ne1ghb rin g Fir t

ations' ommunitie .

The third area of concern e pres d by Fir t
provid e an open process . First

ation

ations wa that co n ultation ho ulcl

felt that their concern regarding ce11ain

must be tr ated with re pee l even if th ey are different than concern

ue

held by pc pie

out id e th eir c mmunitie . Fir l Nation al o cxpr ssed opinion regardin g th e manner in
which c nsultati n should take place. They e pr s eel
c mrnunicati n, ufficicnt time to discu

the

the need

ue within their

for

tw -\\ ay

ommunitic , and a

choi e of what con ultati n meth d will be u c I in th - pr c s . In

umm ar , the

n f

n

m b

ir t

f ir t

ati n ' parti ipati n

th

nt p li

LllT

Thi

p r c1vcd la k

m nt pr

a

ffi ti\ n

e

that

ll1

riti h

ati n

gr up

r ate the p r pt1 n that there i a la k

ithin

riti h

lumbia

and rai

ithin th e pr

fi r

ir t

ati n

parti ipati n

[

1r t

at1 11

p rll ipati

lurnbia app ar t be a

en th rn and min de
and Hu kl ben

Kem

min e \\ re a u d by th T 'lY Keh

ri ght and pra li e

th e

11

f

nni ct

nni t at th e
f th

at d in n rth wc tern B. '. The de el per
enc hand

11

Ir nm ental

ntnbutrng fa ct r in th

f le tr y1ng r impairin g th eir

111 rclati n t th tr trad1t1 nal t rrit ry and

c mp n ati n fi r th e c damage . The c mp any re p n e l
all egati n wa th at, b ca u

l 11

ti

C

I p r . F r C'{ampl c, th re ha be n

K me

mrn

11

th q LI

f pr

idin g in adequ ate

th e T ay I ch Dene

th e ompany had rece i ed th ir pr jcct ce rtificate aft er a

fo ur-year proce

th at includ ed c n ultati n wi th all parti c and takch Id er (in c ludin g

th e T ay Keh

ene), all is ue had b en addrcs cl. In respon e, th e T ay Keh Dene

attempted to halt the min de elopment proj ect by taking their fi ght to th e pro vin ce'
upreme co urt (Ro ya l Oak, 199 ). Throu gh medi ati n between th e Provin ce and th e
T ay Keh Dene, th Band di scontinu ed it cuITent liti gati on a an ut of c urt cttl cment
wa achi eved.
onflict between th e
cc uIT d when th e

hes latta band and the Huckl eberry mme deve loper

he latta band accu ed th e gove rnm ent of failin g to follov it

\\n

environm ental a ess ment proce s wh en it appro ed the Huckl eb rry min e ( alt\
roup ' , 1997).

a r suit, th e

ierra Legal

efen c Fund , repre enting evcra l Fi r t

Nati n group , chal leng d th

u klcberry min e dcv lopm ent approval in B

upr me

' urt (

end , th e cha II ng

app ro \'al

hrcincr, 1997 ). In th

fai I d t hav the proj

rtifi ate and

made b r pr

n u d

ffi

m nt

n 1r nm ntal

nt 111

HP diam nd m111e

th r area
th

rth-

n 1r nm ntal a c ment a

fail111g

pr

e

111

( 'R i 11 , l 9 C: and

111

f

b

ati n

g

I

nt and th

111111

n t nl

an da ... r e arnpl , re
T rrit rte

ha

ri ti h

limit d t
nt a1 pr

r ult cl

al

f th

riti i 111

Ill

f

pr v1 le a c mprchen 1 c, fair, and n g r u.

r, 19 6) . Fir t

calling Ci r th dire t 111\· h emenl f their
'\\e have t

f th

Fail, I 9

ta id

pm nt fr m ir t

riti 1 m f mine de
lumbt 'l but 1

ntat1 c

at1 n 111

111rnu111t1

I ed \ 1th the pr

c

are

111 env1r nmcntal plan . They ay

in ol\'ed in ckvel pin g 1t, re\ 1 \\ lll g it, and approv lllg 1t" ( 1am nd

Panel, 199 ).
Fir t

ation ' lack of uffi ient in

recogrn1ed b

lvcmenl in mine devcl pment ha al

gov 111ment and indu try. F r example, the g vernmenl

been

f Briti h

lumbia recently r j cted th propo al fi r a mine de elopment in the Windy ' raggy
ar a because insufficient con ultation, in their pmion had oc urrcd with Fir t
(Hauka, 1997).
Fir t

swell, Placer Dome 's chief executive officer, John Will

alt n~

n, agreed that

ation are not con ulted a well a they h uld be by mine developer , but that

Placer Dome is learning to provide the pportuni ties for m re con u Itat1on and 1 3\.\ arc
of this deficiency ( atives, Miners, 1997).
In many quart rs the continued conflict b tween Fir t
<level per in British

ation

and m me

lumbia i con idered criou enough l be a thr at to the v1abilit 1

of the 1111n111g industry. A recent m111111g sur ey fi und that 9 . . . o/o of re pondent
ab riginal is ues a the indu try' marn con em ( unningham, 199 ).
cc n m1

imp rtan c

f min

de el pm nt in Briti h

5

it d

n id rin g th

lumbia and the \ ide prcau

p r pti n that

ir t

th

ar h t

n e d fi r r

al uat

n ir nm ntal a e ment pr

1.1

bj cti v

ln

rd r t

fth R

furth r
ir t

fi r mme de

ati n ' pa11i 1p t1 n 111 th
th e p Ii

fi r

ir t

I pment i la king,

ati n ' parti ipat1 n in th e

fi r min e d vc l pm ent i app arent.

ar h

ur under landin g

p li e

fi r

arc p

ibl c ( age !, l C) 6, 9c ):

f

nt1 h

lumbi a'

env1r nm ental a e srn ent

ati n ' part i ip at1 on 111 m111 c leve l pm ent, th ree ave nu e

f e alu ati n

quit

1.

•

The ex tent t whi ch a p li e '
t and be ncfi t 'ire d I tn buted, am ng th c
affe ted, in u h a mann r th at no 1nd i 1dual r gr up rece ive le th an a
max imum c t le el r minimum benefi t le cl.
ffi c1cncy

•

3.

e pec ia ll y monetary co t , as 1n d1ca tcd
Th e tent to hich a poli cy redu ce c
by a ratio th at invol v both benefit s and co t or t ta! co t.
ffecti vene

•

The ex tent to w hi ch a po li cy ac hi eve th e benefit s 1t 1s upp sed to achi eve, plu
any un anti ci pated sid e benefit .

This the is will ex amme the policy

ffec ti venes

o f Fir t

environmental assessment for mine deve lopment in Briti h

ati on ' particip ati on 111
olumbi a.

uesti n po d

for th is the i are:
I. What are the crit ria and h w does ne detem1in e e ffi ti ve po li
fi r Fir t
ation s' participation in
for mine cl evelopm nt in Briti h
lumbi a?
2. H w ha the proclamation of Brili h
lumbi a'
in 199 changed the
p !i cy effec tivene
of environm ental a s mcnt for Fir t
'lti n '
parti ipati n in min e de cl pm cnt in riti h

6

r

mm ndat1 n
an b mad t im1 r " p 11
c ffi tivcn e
ti n
pa11i ipati n 111 en ir nmental a c mcn l of min e
lumb1a'.
I pm nt 111 nll h

hat p Ii
fir ~irt

d

l. 2

r gani za ti n f

Th

ri II \Vlll g

the

llvtr 11111 ntal a

h
·am1n
C

ri r F ir t

un-in g . Rati nal
\\ ith a

111 Ill

n eptL1 al !'ram "

xam I ncd In
[i r eac h

ha1 ter

fth e a

rk t

T,,

l r

nt cxt 111 wh1 h Fir t

th
C

at1 n

f r 111111

rn a Li re cnv 1r nm nt al a
hapt r T hree d1

ri ti h

de\' el pm nt m

hapter Fo ur. T he re ult

effi cti vene

1

LI .

in th e tL1d . I-Ii to n alb a k g r

de, ·elo prn ent Ill

hapt r

v I prn cnl 111 Brill h

p art1 ip ati n 111 cnv 1r nm ntal as

min e dc\' el pm cnt and th e ev lut1 0 11

Fi ve .

·1t1 11 ' I a11i 11 ati n 111

c th e rn c th d I gy and analy i s LI cd
1r t

at1 11 ' part1 1pat1 11 111

e

m cnt p !i cy fo r min e

th e de c ri pti n

r eac h ca c o r 111111

LI nc..l

11

f th e ca c analy c

arc d1 c u

pro id es recomm endation , ba ed on th e ca e analy 1 , t

of Fir t

ation '

min e devc lo pm nt 111 Bnti h

particip ation in th e env ironm ental a se
o lum b 1a and in c lu de

rem ark

7

m nt, al ng

m cnt p 11 y e ffc ti enc

r en ir nm ntal a

o lumbi a i ntr du ce

' lumhia i

ed in

' haptc r

imp rov

th e

m ent pr ce s

a co nc lu io n w ith

r

om e c lo m g

( hapt r T"
Public and · 1r t

at1 n 'Part1 ipat1 n
Ill

11\ tr nm ntal

8

mcnt

2. In tr d uction

ir t

ati 11

Th e rati 11al

rati 11al

g , crnrn nt de

ar

d nv d fr m th

1 n-mak1n g and
ht

fr Ill th

lit ratur

LI r

11\ tr

I a111 1pati on pr gram
ti

11c

fi r ir t

n p 1bli

r

a numb er

J arti

1r

ipati n 111
t

at 1 n '

hapt r intr du c fi ve ra ti nalc , wh1 h arc d ri

d

u 1 n [ bjcc t1 c fi r publi

and/ r

ir t

bJ c ti c

fi r

and in lud

and I r p

lit ratur

nm cntal a c rn cnt , pc 111

d1

ati n ' pai11 1p t1 n pr gra m . Th~

f[i

upp rte I b

pa1ii ipati 11 111 en, tr nm 11tal a c m 11t

n lu 1111 g
·1

ti 11 utilt/ s th e

fra rn cv... rk th at i

u eel to

111

a ure p Ii c y

ati n ' pa11i ipati n 111 cnv1r nrn cntal a c 'Srn cnt.

2.1 T h Co nce pt of Publi c Parti cip ati n

Th literatur on "c it11 n parti cip ati on" or "publi c parti cip ati on" 1 genera ll y di vid ed int
three categori

of participati n. The e are: pa1ii cip ati n in oc ial r rec reati onal event

like community spo1is team s; participation direct d towards indi vidu al, community, or
gr up betterment

uch as th e pro gram

o f th e

nit d Way · and pa1iicipati on th at

mnu nces government dec i ion-makin g

anadi an

1988 ). Due to the nature of thi s

forth comin g di cu i n \,\ ill foc u on th e

tud y th

ouncil on

ocial Deve lopment,

category of public pa1iicipation that influence government deci ion-making.
Publi

particip ation in governm ent dec ision-makin g i

often t m1 cd "ci ti 1en

participation" r "citi zen inv lvernent" and ha num er u definition within th e litera tu re .
For examp le, Amstein (196 ) d fin e citi zen participation a citi 1en pov er \\ hcrca
Praxi ( 19 8, I) talc that "pub Ii in vol

ment i th e Ir

parti c intcrc tcd 111 agcn

intcg nt d int

d

9

b \ hi h th vi e\\ of al l
an ag n

' de i i n-rn ak. ing

akl

d firnll n. In an alt mpt t
pr

nt th

mean

r ·111

th rn t

that th

parti ipat1 n b

nd . Pa1i1 i1 ati n a a m an 1

the d
~ la

d fin

n lude

r

an 111 r a mgr I

d ci i n-mak1n g procc

al I

1c in g the litcratur

th e u e

f parti 1pati n t a hicv

r bJe ti e . Part1 ipati n a an end i ent1r l differ nt , a it

I pm nt and

d fin1t1 n

1mpl

that there 1 n t a univcr al

h th r I art1 ipati n 1 u ed a a

id a that th d finiti n 1 influ n d b

rn pr det rmin d g al
pr m t

ther hand,

n th

19 1

Ill future d

f publ1
111

r th

tr ngthenin g

r the pub] i , cnab I1ng

apab1lit1

ct 1 n-making pr ce e .

part1 1pati n 1 dctem1111ed b

aklcy'

th e

n lu i n

bJ c tives

r th e

hi h part1c1pat1 n 1 prom t d.
r al d finiti n fi r publi participati n th ere

Ith ugh th lit rature la k one u111
are orne c mm n fa t r that the rnaj rity

r definition

hare. Public participation , at a

minimum, mvolvc two-way commu111cat1 n, rather than a ne-\ ay fl ow of in!i rm ati n
betw en goven1m nt and th public. It sugge ts orne I vel of citi/ n influence over th e
outcome of the deci ion and ubsequent deci ion , and it ha the potential for the public
to learn a a re ult of th e penence ( adler, 1977).
The public in the participation proce

defi n d a

a "co n tan ti

multiplicity of affiliations, intere t , and alliances" (Pra i , 198

2). Thi

hiftin g

mean that

there is not only one public, but many different ones that change and grow according to
the 1s ues at hand and the point in the deci ion -makin g proce .

rima ( 1

) note ,

care 111 election o[ the public(s) i n t nly impo11ant t the de 1gn

f th e pro

, but

al

en ure that pecial inlere l group do not teer the proce

in a dir

tion that i not

congruent with the int re t of th general publi . pecial int re t group hav a pe ifi
int er st and ma

b ne fit dir

tly fr m ·1 dcci ion, whcr a publi

10

inter t gr up 1dcally

r pr

nt th pub li g

In an

g

d nd

ill n t dir

ti

rnrn nt de i i n-rnakin g pr

th

e

v

rnm nt D

There 1 a gr

re og n1 11n g th
1995) .

r

f.

ati n , and indu tr .

i ion -1\l akin and Publi c Parti cip at ion

111g real11ati n b

n-mak111g i n d d. Thi

d

, l 990) .

v ill be

pub li (

indi idua l fr m th g n ral publi , int re t gr u1 , Fir t

2.2

nn

b n fit fr m ad

l1m1tat1 n

ampl e,

th at publ1

pai11

ip at1 n 111 g

rnm cnt

b au e th publi c i in rea 1n gly fru tratcd w ith - and
f - r pre ntat1 ve dcm

rat1 c

tru lure

uffy ct. al.

h n g v mm cnt arc a kcd [i r dcc 1 1 n-mak in g ace untabil1ty

th e are often un abl e t re p nd t th

ati fa ti n

publi may al ob di ati fi cd beca u

it d e n' t und r tand th e proce e in v l ed 111

dec i i n-mak1n g and find

f eith er indi 1du als r gr up . 1 he

th em maccc ibl e (Kn pp and

aldbcck, 19 0) . There

general concen1 that p ci al intere t group ha e politi cal r cc nomi c power th at i u ed
to influence the gov rnm ent d c1 ion-m akin g proce s 111 a mann er th at i not 111 th e be t
interes t of the pub lic (Parenteau, 19

). The justifi cation for in clu ion of publi c

pa11i cip ation i not onl y in re ponse t

th ese fru strati on and lirnitati ns, but i al o

rooted in several rationale . The ration ales are of three m ti vati onal type

p liti ca l,

fun ction al, and democrati c.

2.2. 1 Politi ca l Rati onale

P liti al m ti ve fo r the g vernment t
image, legitimi ze it acti ns, and mcreas

111

lud e the pub li \

it er dibi lity ( uff

p·irti cipatio n i rati nali zed by g v rnmc nt t make their d

11

uld be to nh ancc it ,
et. al. 1995) .

ft n

ptabl b

111

king th

publi

111ning

r th

publi

G I a th ugh th

al

parti 1p ti n ar

Jp

).

imp rtant, lht

p l1t1 al ral1 nalc \\,ill n t l1kcl

d r b re

been in

ilt 11

fi r part1 q ati n b au

rati 11ale

ha

lud

an

\ ill fi u

pari 1 iJ ati n J r

I ing

fi r

Ith ugh p l1ti al m ti c
n fun l1 nal and dcm

c

rat1

lcly

th at rcli

n a

be 111 th be t 111l r , l f th c pu bl1

2.2 .2 Fun cti nal Rati nal

un t1 nal 111 t1, al1 n arc dcn\ed fr 111 th c nccpt th at publi c p'1rti ip ali n can
1mpr \ C dcc 1 1011-mak 1ng '[/ ' ct n ·eness and e/jtc1e11 cr, make th pub Ir

111

res ~lf- r ,fw nf,

and provide lllfor nw t1 011 one/ xp rtzse t th e pr cc . Functl nal m ti ati 11 th erefo re
a um c th at th e in clu ion of publi parti ip ati n durin g deci i n-makin g b th 1mpr vc
the pro e

and benefit th e publi c.

Ejfectivenes

- Impro v rn ent of dec i ion-making effecti vc ne

meeting th e objecti ves of the proce

( akl y, 199 1). These procc

clarifi ed and organi zed ea rl y in the proce

1s depend ent

n

objec ti ve can be

with publi c input (Prax is, 198 ). Thu ,

decision-makin g will become more effec ti ve b cau

in crea eel input and sc rutm by the

publi c aids in the achi evement and definin g of obj ecti ve (Brenn ei , 1990 ).

Efficiency - It i often argued th at public parti cipation slow th e deci ion-makin g

pro ess and use large amount of res urcc (Brenn ei , l 990 ). The
perceived lack f parti cipali n effici ency.

n clo r examinati n, hO\: eve r, th ere ccm

ampl e reason to c nclude that public parti ipation incr a e pr
input i used t clarify and

criti i m r oi nt to a

rgani zc bj cc ti e ea rl

in th pr

e

effi ien

. If pub l1

, re ur

u

an be

m re ffi i nt ( ak l , I
i le

lik lih

(Pra 1 19

publt

d

I). In that v nt pr

[ later d1 agr

e

ment that

ffi i 11

ill in r a

d wn th

and

b au

there

re

nni t

).

S ,ff-R lwn

-

cl f-r Iian c I a br ad

a a r ult

r it

parti i1nti 11 111 d

en a an du ati nal pr
making pr cc

( rcnn 1 ,

rndcp nclcnt b

J

r rn t1 ng

e

m th

I

[ ben fi l that I
n-mak1ng. Pai1i 1pal1 11

f th

uc 11w lved, an i in the elem crati

0) . Th partic1pat1 11 I r c
cl f-m\ ar n

al

I ublic 1
d

n-

h Ip the publi b c me

and c n fi lcn

c nfid n c an b u d t c ' amine th i ue and d tc1111i11c
engaged deci i n-making proce

r ught t the

Thi

cl f-awarcnc

and

lul1 n to pr blcm fi ran

and in future pr cc e ( aklcy, 1991 ).

!11formatt011 ancl Exp rt1 se - Public participation in decisi n-making can provide

data and infom1ation that may oth rwi

not b

acces iblc. T o di tinct

ourcc

r

information can be derived from the public to aid the deci ion-maker (Brennei , 1990).
Fir t, the public can offer infom1ation and e perti e that
governme nt, and

I

rnacce ible to the

econd, the public can provide information about valu , and an

e timate of th public wi ll , that are critical.

uch input can aid in th clarification and

organization of proce s objectives, leading t better deci ion ( rim a, 19 5 ).

2.2.3 D m crati Rati nal

111

rati

ti

111

fi r publi

ti n

pa11i ipati n

i be t und

d b it

b d and ru 1·. m an111g th rul

r . lrnt1all

traditi n .

it11 n

111

ra

rath r than th
th

d 111

rule

r an an

1t17 n b d

\ a

and th

pra tice,

d

r ck d m

ra I

\ h v ere 1ti1en , d m
and

w r

ra

meant

dem

ra

th

c

e unable

t1

rat1c-

meant th rul

iti1cn

fth b dy

r a m narch . In an i nt

ra

h

were n t fi mal

bear arm

nb d a b ing
11

ur d m

: d mo ·, meaning th

r tn t d t

fi re1gner , men aged under th111

tcm rr m

reek
lave ,

r). Thu

111

ra ie . F r th

c

(the p

ilitary dem

r

Jr-g vernmcnt r direct rule (Dunlca y

'Lear , 19 7).

During the firth century

, in ancient

then

the citi;cn body a emble I and a

maJonty ote, nom1ally by a how or hand , decided e

itil'en fi r

ry p litical i uc.

admirn trati e and judicial office drew lots and there were effecti e instrument
controlling the major elected official . For

xample, if official

received a certam

percentage of citizens votmg agamst them in an election they could be
the city for a period of ten years (Dunleavy and

for

traciLed from

'Leary, 19 7).

From its origin in ancient Greece to the pre ent, the ev luti n of demo racy ha
produced many theorie and id ologics attempting toe plain it concept . For implicity,
the maj rity or the
classical

c nception

the rie

r dir ct ideo l gies

and ideologi s can be divided into thr c group : (I)
[ democracy; (2) repre

nta/n ' , ind,re t,

or plura/1.,·1

f dem cracy; and ( ) parti ipatory d m era y (R jai, 199 , 157).

14

ti

r dem

g1

r dir cf id

r Ill parti LL I r th d Ill
th

ide I g1

r ali 7 d b th
nt1 al t

"

th

\\ 1th th

rac th at C

a

iat d primaril

i th an 1cnt

Ill

th 11 at th at tim e.

enti al ly,

r elf-rul e b th p

m tc th

J nn

mm

ill", and th e n ght and lib rti

11

fun ti rnng

1ndi 1dual ' rat1 nalit and g

pp n nt

ar

f direc t d m

1pl

r th e e pnn 1pl

th

dn

(Reja 1, I

).

rati

rule hav

h a ii

h "0111111 11 g

cJ' ' I

r indi 1 Iual ar 11111

rtant.

a u111pt1 n

nti c11cd thi

f th e

rd111 ary

a umpti n, al ng

th er pnn q I . Th ma111 argument agai n t th th eo ry arc a fi ll o

. Fi r t,

avail abl cv1d n c d c n t h \\ th at th 1dcal r "g \ Crnm ent h th e pc pi e" ha ever
b en rea li zed, r
1 unrea

er

ill be.

cc nd , the a umpti n of hum an g

nab le con iderin g th e findin g

cin e

and rati onality

rm dem p yc hol gy . Third , th e conccpti n

r

"comm on good" and "co mm n will " are intu 1t1 ve noti on that cann ot be d 111 011 trated or
proved.

nd la tly, th

cone pt of lib rty and indi vidu al ri ght , 111 literal term , arc

contradictory and cannot be achi eved m an y society (Rejai 1995) . In re pon e to th e e
argurn nt , which were recogni zed a bein g valid , the d fend er of democracy propo ed
indir ct, representati ve, or plurali t democra y.

Representative, indirect, or plurali I conception of democrac y emerged and grevv in

th e nin eteenth and twenti eth c nturi e . Th ba ic premi se of repr entati e, indirec t, or
plurali l dem cracy i that, becau e of th eir larg numb ers, direct rul e by th
limited. ln lead , th ey ch

p opl e 1

e leader and repre cntati ve wh rul on th eir behalf (Reja1,

I 995) .

15

RI 111g 11 th1 pr 1111
d m era

ar

plurali m.

' th ma111 I rm 1pl

nt r d ar und th
1al plurali rn r fi r

art1 ti c rga n11 ati n ,
r li e

n th

r

th e C

, indir t, r plurali t
ial

1111 ti ti n,

r

numb r fdiffcrcnt1ntcr t gr up

nti fi an I pr fe i n l gr up , ul tural and

rgani1ati n , and \ luntar a

ntinu d e

poli ie pl atfi 1111

ntati

p liti al and

and lab r rga111 7 ti 11 ,

u h a bu 111

r a repr

f t

c1at1

11 . P

r m re p liti al parti

lit1 cal plu rali rn
ffi r altern ati ve

nd le d r (R ja1, 199 ).

W1th111 th1 plu ra li t1

p

th eir 1 ad r and the p l1ti ca l partJ
ace untabl e and an w rabl

[i r

pie mu t have th e ab1l1ty to elec t and di mi

, ver t1 111
their ac ti n

he cl cted g vcrnrne nt mu t al o be
and be abl

and

r aso nable p pul ar demand (Rejai, 199 ). Las tly, a democrati c

illin g t

ac hi eve

ciety ann ot fun cti on

with out Iiberty and equ ality; meaning th at an i ndi vi du al' freedom i Iim ited on Iy by th e
qu a] fre dorn of all oth r indi vidual . Thi idea i refen ed to a L1 hcralism and demand
that ome individual ri ghts, or freedom , should be protected fr m th e governm ent and
majo rity decision s (Dunleavy and O' Leary, 1987).

ntil th e 1960's few refin ements to plurali t democracy had changed it fund amental
principl s. How ver, a wave of intell ectu al at th at tim e, and later, point d
between concept and reality.

ut gap

irst, th ey argued th at a plurali t democracy claim to be

obj ec ti ve. Yet in reality, by mph a izin g politi cal office rotati n and co mpetiti on, the
plurali t writers d

lare a c n ervati ve bia for be. lance, tabilit , harm 11 , pr di ctab ilit_,

and

econd , plurali t d mocrati c th eory tr

talu s qu .

c mpetition wh er a in reality, demo rati c gr up are

16

p puhr parti ip ati 11 and
mp

d

r and run b

lite .

ri ti

a 1 all , th

ra

d 111

aid that th re ar

: rr rn th

111

id and t p d \ n; and fr m th

in id and t p d v n fr m the tandp int
chan g

r an ind!\ idu al in

re ntr I fr m b I w . a tl

and r p n i

n

crili ci m
and

l al repr

ntali e

cc altc111 at1n g g

c111111 nt ,

ut i e and b tt rn up rr 111 lh

landp int

r tat1 n ·1t th e t p fa il t pr rn tc I pul ar innu cn

an am unl

It mat

t

ut id and b tt m up . Fr 111 th

r an elite) n

and p liti al c mp etit1 n. r m th

g v m ing and be

a

at 1 a t l

h rca

Ill

plu ra l1 l dem

f plural1 m.

cmph a 11e r p n ibility

r alil , th e lite arc, fi r all int nl ·rnd purp

nd I ubl i r a h (R cJai, 19

c mp ling th e n c

ra

c , cl r-

).

ha\ c received mu h atlenli n 111 re p n c t

r exampl e, th e n e

co-plural1 m arc co mm n to thi

or

u h a th e

cw Ri ght

the c

lit1 111 , Mar i m,

d bate co ncernin g liberal dcm cracy .

ac h

[

th e e lh eo ri e ha it

merit and fa ult . ' Plurali t appr ac hes to input poli cic , tale-

oc i ty r lation ship

tale organi zation, poli cy- making and cri c

political science literature of Western
O ' Leary, 19 7, 70).

urop e and

still domin ate the

orth Am ri ca" ( unl ea y and

ut of thi s, plurali t democrac y wa found wantin g becau e a gap

between reality and co ncept remain . Wh at \ a propo ed to fill thi gap vva th e theo ry or
pa1iicipatory democracy.

Partic1pafory democracy, ori ginating in th e l 960's, is ba ed on a entral pr mi e th at

rc~uirc max imum parti cip ation in and control
Two principl es involved with thi premi

vcr program , p li cie , and andid ate .

are the d ccntrali la ti n o r de i ion-makrng

and p litical p wer. hi s mean that dec isi n

17

hould b mad a

ea p

ibl c to the

arG t d

n titu n

, and

rd1nar

iti1en

h ul I ha e dir

t in

Iv rn nt in d

n-

d rn

ra

the pr J n nt , ar

that

t

al

making (R Jal, l

he

d

ntag

g vernmcntal abu
ne d and

f I 11i ipat r
[ p \

ndit1 n , th

!aimed b

r i limited d

mr

I gitima

fd

rare!

lear111 ng,

du ati n, and

I mpr

pn1

uc, ·rncJ th

pr

r

c

mcnt G r the c mmunity .

hercnt iclc I gy that it i weak,

Ho ev r, part1 iJ at r dcm

ra

\ ague, and inc mpl tc .

1t i n t c ngruent \ ith reality becau e 1t fail t rec gn11

the
p

I

ert

tal I robl m a
an11

[; ii in that 1t i an 111

an I

r

ciat I with I cal dec1 1 n-making n I uc

u h a p lluti n,

c ntr I, and the ec nomy . La tly, partic1pat ry democracy

na ed: it attempt t

return to the ideol gy of dire t

fatally

I

r cla ical dcm cracy with ut

ha\·ing ol ed th fundarn ntal probl 111 that have plagued it pre ur

r (Rejai , 19 5).

n the whole, participatory dernocra y eeks perrection and utopia while pol1t1 ca l
reality i by definition imperfect. ons quently for all its hortcoming and naw ,
indirect r pre entative, or plurali t dem cracy is the only reali tic arrangement
a ai labl to us today. s Win ton hurchill i suppo ed to have aid, democracy i a
bad fi rm of govemm nt until one begins to contemplate the alternatives (Reja1 , 199 ,
164 ).

lthough pluralism i

accepted a

the ideology in w hi ch democracy mu

runcti n, it i of c ntinuin g interest to impro e how the public pai1icipate in d
makin g.

thi s end , Parenteau ( 19

) propo e

pa11icipati n within the re1 re entative y tern.

18

th e in titution lizati n

hi in tituti nali za tion \

..
I

1011-

r pub Ii

uld pro\ id a

rn an

t

h k and balan

1ndi tdu

f th r pr

and th

h
affected individual
, b au

th d

11

[ affc tcd

ntati c g v mm nt ( rennet , 19 )0) .

r, diffi ulti
n I th

n rn

i th th

making pr

[ th

111 a hie, 111g a bal n
r pr cntat1,

g

b tvv'

n th

n1m nt In the d

publ1 part1 1 at1 n 1 ,·ic," J J1 ffcrentl

nccrn

[

n-making

by the t,, .

122 n te :

th1 pr
ln a lib ral, repr ntatJvc d m era
by I finit1 n, 1
c n01ct1vc and cliti t. Part, ipati n, n th
thcr hand, tri e t be c pcral1, and egalitarian . I l n e, ther I an pp 1ti n 111 val uc that no
J c1 fi m J I an tran cend .

there e i t this oppo 1ti n in value between affected indi 1dual and tho c

f the

[i r public participation .

ntil

repre entat1v government, what i n eded are objecti e

the e ar e tablished, public participation wi ll continue t be ill defined, lack guidance
and have no means for it evaluation ( adler, 1977).

e pite difficultie

uch a the c that

hinder the definition of public part1c1pat1on, attempt have been mad

to define public

participation and e tabli h objective for it evaluati n.

Borrowing from th e work of Laird (1993, 343), public participation within the
context of pluralism can be defined "as the action of organized voluntary group " that
citi/cn join and upp rt to rcpre cnt their intcre t .
pr vid e

cl ser xarninati n

ome characteristics that aid In th e id nti fi ati n

parti cipation :

19

[

bj c ti v

[ plurali rn
[i r

publ1

1.

h

r quir d t

J ubli

Ith ugh

ti n.
repr

ntat1 n it

in tituti 11

t

thi

p Iii 1p t

a

111

r quiremcnt

a um d and r

b

uggc t

nd that

a

g1111e I that ther

r

le ened
I

ting 111
ll11J

an cc.I [i r

rtan e

[i r

ther fi nnal

upp ti part1 ip ti n.

Paii1 1pall n mu t b m aningful in t\\

\\a

I am m r ab ut their inter t and h \\ th
th ir inter t

ond it h uld nab!

. hr t, 1t h ulc.l enahle indi i lu al t
ma affi t c.le

111divi lual t ha

n, that

uld 1mpa t

me

[ inCTucn e

rt

that arc made.

Plurali rn i c nc rnec.l \\ ith the act1 n
promote their intcre t

or voluntary gr up

\\ here people can

thr ugh c llective acti n much m re effectively than a

indi idual . In fact, a properly functi ning plurali tic y tern depend

n properly

funct1 ning group .

4. Pluralism

mpha 1ze

outcome

and the di tribution of benefit

and burden

throughout society. The proces i looked at as a linear model where people' interest
are brought together and pres nted by eparate intere t group in the political proce .
The co ll ective interest( ) of a group arc viewed as

tatic throughout the lec1 i 11-

maki ng process and are si mpl y input into the proc s , where group com pet

[i r a

decision in their favor.

5. Plurali 111 recognize

that fi rmal I gal stru turc and politi al 111 tituti n arc not

adequate.

cyond tho e thin gs a

making.

iti zcns need l

ciety mu t agree on ·omc n rm

be cd u atcd in th

()

c n rm

and lnve

[i r d

m

1011

uegr e or

agr cm nt nth a
ict

th

r alt mate deci i n .

l table rang

uld n t be d m

rat1

and

ith ut the

uld d g n rat t t rann

pr

nditi n

r a fractured

tat

c fi r f ubli

Th

hara tcri ti

aid 111 i I ntif ing

bj

c.lem

ra

r, bri lgin g th " I I

1ti n 111 alue " ( r gha, l 977, 122) between a

. H \\

r pre ntati

d

I

partic1pati n in a I lurali t

m and a pa11i iJ at ry ne ha re ult d in a pr I

"br ad ncd plurali m ' ( mith, 19
making

t1

" a mean

... 4 . mith c.li

br a I n the ba c

ion-mak1 ng bee me

pen ' pr c

bjecti e fi r public parti ipation arc ba cd
theor of democracy in

merican political

r th

al fi r what i t m1ec.l

u c publi parti ipati n 111 p !i cy-

plural1 tic y t m

that plannin g and

r management" . Th rcfi re, the foll wing
11 plurali

rn as it I

een a th e " main tream

ience" (Laird 1993 , 343) and guided by the

broadened plurali tic per p cti e within th literature.

1. Participation heyoncl ,·oting - there mu t e i ta legi lative ba I fi r parti 1pat1 n, r

in other word , the public mu t have a legal right and opportunity to participate
(Luca , 1977; mith, 1993 ; and Brenneis and M'Gonigle, 1992).

2. Representation of participant - in order for participant to be reprc ented th ere mu t
be provisions for equal access and opportunitie for pa11icipation .

his al o mean

that the rep re entation should entai I a f ul I range of value and inter t on a topic
(Sere ford and

r ft, 199 ; MacLar n, 1995; and

mith, 1993).

Paru 1pa11t I arl1!ng and und r tandwg

tv.

I aming and under landing h uld

ar a : th

h

it - If.

parti ipati n pr

c

1 u ( ).

n act1\

(Luca , 1977) .

h uld be

h uld Ir vi dc a

·111d \vcll -111fi nncd publi

hi

I

in fi rmati n
n

ar

m an th at th e taff f th de

l pa111c1pant infi rmati n requ

b r p n I

c

, and th

ith th pr

that d

cur 111

f 1mm li atc rel van

n

fi r c!Tc ti

mm g th

parti ci pat1 n

n-mak 111 g auth rity hould

Mac aren, 1995) . Thi infi rmati n

, be attra t1 e an I brief an I b appr pri ate t the

pe pie ' ab J!1t1 e

cxpcnen c kn \\ ledg , languag , and culture . The end re ult of

thi

pr

111 form ation

alue (Bere ford and

h uld b the building

r ncv.

r rt, 1993 ).

In order fi r the public to ga in an und er tandmg and kn
making proce

r kill, idea, and ·

ct

there mu t b acce

proce s under tandable (Brennei

ledge

r the deci

n-

to in fom1ati n that i rele ant and make the

and M '

nigle, 1992) . The proces

inforn1 ati n

hould also includ e when th e opportunitie for public participation ar to occur and
hov. th e outcome are to be deri ved from the participat ion ffort (Parenteau, 19

4. Resource provision - Provision of ad qu ate re ource serve
re

urcc such as fundin g, personnel and logistical

in equaliti es that c i t betwe n participant

( rennei

mith , 199 ). Th e e resource pr vid e tcchni al gui lan
travelling expenses fi r parti ipant alten<lan

).

two purpo c . Fir t,

upport are needed to balance
and M '

ni g lc, 199- and

, lega l adv1 c, tran p rt and

, infi mrnli n, and tnining that help

n ure

ntinuit

[ ad quate r

f parti ipati n

ur e

parti ip ti n fr m th

u h
g

r ft, 1

nd , th

).

fundin g, taffin g, and t hni al r
emrncnt

h \

mmitm nt t

ur

ri r I ubli

th

(

Lar n, ·

111flu n e O\ er th e de 1 1 n-mak1ng pr ccs

an be

199

I ur/1 1;w 111 111/ lu en , - Publi

a

cd b

mu t ha c d

me initi al hara ten t1
1 1

n-mak1ng p \ r, mu t mak clear

!earl d fin e th e limit
and co mmit t ac

c

. Fir t, th auth n t th at 1111 t1 at

[ pu bli c auth nt 111 th pr

pt publi 111put (Parentc'lll , 19

th e pr cc s

hat de I i 11 arc p nd1ng, mu t
c , anc.l mu t dealin g

I faith

, and Ma Lare11 , 1995 ).

nd publi c input h uld n t be m a non-per nal ri rm , u h a written, but b

thr ugh fi 1111

that are verb al and d ircc t ( B lahn-1 and Ya nt - hcpard , l 9 9 ). 1 he

auth rit y h uld combin e parti cipant prefcrcn c in a way th at demon trate h w input
wa consid ered and u ed to affect th e dec ision-makin g proce

( Kn opp and

aldb cck,

1990). Th way in which th e pub lic receives the feedb ack from input into th e pr cc
should be in a written form and

hou]d d monstrate th e rea

ning behind a g1ven

decision (Brenn eis and M ' oni gle, 1992).

Lastly, there shou ld be ome fon11

f eva lu ation of th e dec 1 i n-makin g procc

the partic ipant to gauge sati faction with the effi ciency and cffecti en
pr gram (Knopp and

aldb ck, 1990 and

by
f th e

ere [i rd and Croft, 1993 ).

In ummary, th e fiv obje ti vc of publi parti ipati n 111 gove rnm ent d 1 1c nmak ing arc parti ipa tion h yond voting. p ublic repr e11tatio11, partic1pu 11 / lear11111g and

ul1(/ r. tancll/1 . r , our
bJ

7

v\tll b r p at di

tI \

pub Ii and

cmph a 11cd 111 th

fl/

fi 11

n

ti

nv1r nm ent al a

111

r th i

ha1 t r th at

nt p 11

e ffc t1\e ne

JJ1 g

·1

being cnt1 al t

rn ent an I ar util11 d 111 th e
an

nv1r nm cntal a c mc nl ( E: ) 1 often referred t
alu atc th

1d nt1 f , pre<lt t, and

alu ·1t1 n fram e

rk

fi r

a th e pr cc s th at i de igncd t
r a deve l pm ent

r p 11 y

adl r, 19 5; and Law rcn e, 1997a ).

br a<l er

en\ 1r nrne nta l impac t

r<ln r, I

19

\,\ uld be a pr c

dcfi rnll n fo r

t1 n

m nt and Publi c Parti cip ati n

nv1ronm ntal

pr p al Re

. Th ee

11 -11wk111g pro

ti,

ati n ' p rit ip at1 n 111 n 1r nm ntal

Ir t

n ludrn g

2.4

prov, ,on, and 111flu 11

that depend

up n van u

dec i

n-111 ak 1ng

appr ac he th at are cone med with hum an ac t1 iu e and th e envir nm ent.

Th ese approach e e entially anal yze, ynthe ize, and manage predi cted imp act
of de elopment propo al , pol ic1
and

, and program . Th e goal here 1 to pre cnt b1oph y 1cal

ocioec nomi c dam age throu gh enli ghtened deci ion -makin g ( ib

Ith ugh

A i u uall y defin ed bro adl y,

prom te

cia l Impact

trateg ic

nvironm ntal

per i ten e

r the e

e ment ( I ), Fauna Impact

id cnti ti

reat

e ffi cient nv1r nm cnta l managcm nt and ah Ii ti
Mc

nald, 1995

199 ).

me practiti oner and a<lmini trati ve y tern

e m nt ( E ). In

eparat

n,

c sment (FI ) and

me ca e thi may b v arrant d, but th e
c n ru i n and i d tn mental b th to
1ew

r th e nvi ro nm cnt ( rO\\ n and

In att mpting t d

rd

d1 ffi r nt t pc
appr a h
11 If

rib

in a br ad en

n-mak1ng a1 pr a h : ( l )

n 1r nm ntal

(2

a

C

111

nt

4 ) pr p

lhre

n 1r 11111 ntal i1111 a l a

menl

appr a h

nm nt 1 planning and manag rncnl appr a h

!:n, ·,ronm 'nlul 11npu t as, e, .w1 'Ill - fi
of 1t

ardner l

'

h d fin

u

9

an I

(_ )

re

ur c

and ·

th t !111 a fi 11

n the J red ict1

11

and mi ligation

pccifi 1mpa t .

2. E11, ·1ro11111e11tal u

m 11! - att rnpt t und r tan I ml ra ting en ir nmcntal

clement and pr cc c fi rd

1 i n-rnak1ng, and i u d at cliffi rent planning

and manag m nt tag

R ourc and 11\•1ro11111ental pla1111111g and mwwg men! - arc concerned with
minimizing damage and ma imi1111g resource u e lhr ugh planning and
rnanagem nt of human acli vi ti

that imp act the cnvi ronmcnl.

Hi toncally, EA (environmental assessment) was first [i 1111ally introduced in the

nited

tates a the

ational Environmental Policy Act ( EP ) in I 969.

P

wa

produced in resp nse to the public outcry over env1ronmcntal damage. It pr v1ded
environmental legislation that focu ed the concern of the public int
and consent procedures ( ppiah- poku

1994 ).

tandard planning

anada adopted the E111 ·1ro11n1entul

Ass ssment RevieH; Proc s ( ARP) in 1973, which app li ed to devel pm nt pr p al
initiated by the fed ral g vcrnrnen l.
the time wa th e

nc triking difference between

P

and

RP at

RP di In l nj ya lcg i lati e ba king. It wa n t until 199_ that the

'a naclian E nvLronm ntal A

e

n, nf Act (

) wa pr claim d ( adl r, 199 ).

luti n fr rn 1t fir t [i rm I mtr du ti n a

unng
th

pr

pr
I

U

nt, r

gniti n

ha gr

n. Thi

[

f th

urr d a a r ult

n 1111 d vel pm nt and

att nti n f man auth
I i79;

n d G r in luding th

7(;

mith, 19 4;

r ti nal iii ng

[i r

the

fun t1 nal m t1vati n

The r lea e f
n ir nm nt and

th

d

' inab i Ii t t e rri ti

adc.lre

erved

fi

th

u the

f publ1 parti 1pati n ( r gha, 1977; Th mp
nma, t 9

writ r

; and Parenteau

ommon Future b the

e elopment (W

19

n,

). The ba i fi r

f the d mo rati , p liti al, anc.l

an e. t n 1 n

that v e find v ithin the literatur

ur

lll

n 1r nm ntal limit and thi

n th 1 u

adler

r

pu Ii

RP t

and

n ited

r public particq at1 n 111

ati n W rid

1111111

non

D) m 19 7 arguably created a new rati nale for

publ1 pa1iicipat1on in en ir nmental deci ion-making. Thi d cument t ok the p sition
that

hould promote u tainable de elopment (Lawrence, 1997a). In an interpretati n

of Our Comm on Future, by a

anadian Ta k force on

anada'

recommended that steps be taken to "open environmental

l

procc , it wa

res urce, and economic

development policy-making and planning to gr ater public input" (Hill 1988, 19 ).

From a normative viewpoint,

u tainable de elopm nt ha

received much

attention as many auth r ( teadman and Hill, 1992· Margerum, 1997; Wyant ct. al.,
1995; and

awrence, 1997a) have published artic le that di cu

public parti ipation when

is integrated with

(19 9, 42) (di cus

participati n m

publi

p w r in d c1s1 n-makin g' which allow

A)

'fi r

6

th

implication

u tainabilit . For l:Xarnplc,
n Jud
ocial

for

ardncr

that a "fair di tribut1on or

lf-d tcrn1inati n and

ultural

div r it " a ,

11 a th "a hi

u t·11nal I .

mu t b Ii 11 \\ d Ii rd v l pm nt l
ha

be n a

pted b

g vemm nl

making h uld triv , " th pra t1
11 r

g1111 d r ft 11 tra11 lated 111t a t1 n"

nl

n, 1r nm nt·1l

n-

rnm1trncnt hav 11 t ct been

f th1

1l

lhal

Ith ugh , u ta11nhlc d

a a g al t \\ard \ h1 h
I 1mpli at1 n

ar pnn ipl

1aJ JU ti

nl

f quit

m nt

n, J< ) _, I . ).

ntl th ugh, trat g1 cnv1 r nmcntal a c . mcnt ( ' l: ) 1 prom t111 g th
n pt

f u tainabl

d
f C\aluallng the

mprchcn 1vc pr
pr gram an I 1t altcrrn1t1,

Ia

n t. al., 1

fine.lin g
imp!

4, 3

untahlc de

n-rnak1n g"

1 the applicall n of

at a rn r

trategic 1 ,. I: the level or p 1icie , plan , and program (W

t

an intemati nal le el

th

practice or

d, 1995 ).

ha

1i r evaluat1 n

policie , plan , and propo als. Thi i a re ult or numerou recommendation
arth

umm it of Rio'

genda 21 and th

r

utili1ec.l the c ncept

f guiding pnn 1plc

u tainable developm nt in the production

r

a written report n th e findin g.

111 publicly a

lated,

and

r a p lie ' plan

n,1r nmcntal 1mp·1ct

, 111 luc.1111 !!, the prcparat1 n

aluati n, and u 1ng th

f that

1i rmal11c I, y t rnat1

c.l fin d ·1 'th

I

r

uch a the

Bruntland report. B th have trc ed the

importance of considering ocial and economic i ues, parallel to e

log1cal I u , 111

political dcci i ns in relati n to su tainable d ve lopm ent. Thu , fr m the

ta11, the

pr m lion

f publi c awarene , inv lvement or the public and en ir nmental auth ritic ,

a

rep rting

we ll a

n th e en ir nmental impact, were h Id t

be

uidin g Prin ipl

requrnn g publ1

( eldm an, I 98).

h

111 v lv rncnt a on

f th thirt

[

ren ct thi

n pnn ipl e (Mar den, 199 ).

7

focu

entral

I

uc

ub l nli e

ib

11 ( I

r u tamabl d \' I pmenl \ 1th an nal

r

n

ithin a

th th

anada

111

that he fi rmulat ,

r de ign prin ipl

t

integral

ib

er the I a t twent y ar .
n ( 199 , 19 pr p e that

pen, ra1r, and part1 1pat r . I Ii
r arti ipati n 1 ba cd

nth thr

n,·ir nm ntal a

1.

r ti al impli ati 11

111 lu I n

r public

fi II \ 111g argument :

111

nl I unm 1dabl

\ alue-la<lcn and there ti re publ1

part1 1pat1 n I

a mean

c mbat narr v\ bia e and encourage

areful attenti n t matter

f public

ncern .

The

penn

ine capabl . Th

r d

1 1 n-mak1ng to th

public

I

gen ral I

public has hec me p litically
u pect

f as unnce

made by

go e111m nt agencie and pc pie e pc t t be inv lved in de isi n that wi ll
affect their liv .

3.

Public participation i appropriate becau

env1ronm ntal a c ment i

ecn

as a learning proce s for the public.

Environmental a e ment, as Beattie ( 1995, 109) notes, "alway

contain

unexam111 d and unexplained valu a sumptions". EA ha traditionall y been a technical
matter reserved for expert

but experience ha shown that many que tion in th

process cannot be an wered olely thr ugh the provi ion oft
111 olvement

r values and prefcren c . Thi

ha

hnical fa t but require the

underlined th

importan c or publi

participati n that is repre entative of all intere led an I affc ted p·1rti
in a e ment d ci i n-making ( ibs n, 199 ).

8

E

, at an earl

tagc

nd th
rcq u1r d fi r

ab

ffi ti

argum nt

th r

parti ipati n t

. R-

111

arc

ur 111
iall

hearing ,

( ib

iall

where pr fi

ur c

n id rati n

11 and fairn

S

f

a " 1 ubli

part1 1pant nrcly

mpl , and I ngth

lclib crat1 n , u h

i nal t chni al and legal c pcrti

needed"

11 , 1993 19).

Pr
r quir

p

r

im1 rtant in

have d quat fund fi r ffi ti e 111 v h m nt in
a

th r imp rtant

e

th

fa 1111

thin g

u h a

qu a! trea tm ent

pr v 1 1 n

rn pa rt I a I I t 111 aI p i nt m c nt

1

f all part1 c

f 1ndcpend ent admini trati n, c, pl, it criteri a fi r

i n- mak1ng and rev ic

b di e , mane.l at ry rclca c f

infi rn1 ati n and rca on fo rd c1 1 n , and an appea l pro c
HO\ e er, a

ib

n (1

3) not

111 th e a c ment. Thi

fi r qu e t1 nabl e dee , 1 n

, e en if the c t p are taken to pr

public particip ant are oft n di ad vantaged (eve n with pr

ic.l e a fa ir pr cc

i ion for fundin g) a th ey can

eldom match th e r ource of the projec t proponent.

Public participation in E

i now cl earl y recogni zed a imp rtant to th e dcc i ion-

making proce s, both from th

broad framework of ration ale for publi c parti cip atio n

( rirn a, 19 5) and becau e of th e impli cati ns of integratin g u tain able deve lopment
with

( ardner, 1989) . Practical e peri ence over th e last twe nty yea r ha al o ho" n

that public participation is an important factor in impl ementin g ffcc ti
1993 ) . . . A e ffi cti v nes may, however, depend on how ne 1ew

often viewed a pa ive, activ . or edu catil' (Brown and M

9

onald , 199 ).

s ( ib on,
[

h

th

1th re J ct

d
n th
111

f th

p 1 n• r I

a ur

al

r le, but 111cffi t1v

r th

n and M

111 an a lt\

nald, 1

).

r

1b

,ten I n

n

invol\ 111 nt and

en a

parti ipallon, in

lvcment and

a mean

rp ratt n r r m dnl .

111

r le. Tht

re

ha b n cfGct i c

g111t1 n In

th erfic1 n

e , the educa tn ·e rol
of achieving

cial

bjecti

mp wem1 nt (Br wn and Mc

au c I the

r

and cffe t1venc

1

curs thr ugh puhl,c
fi r c mmun1ty

nald , 199 ). The e

, not only a a mechani m to impr \e 1t

auth r pr po e an edu ative role G r
and efficiency, but al

CIC'/ I\ '

( 1993) rrin 1ple, that public partic1rat1 n

1 a learning pr

ne

Jude th

t. Th

c t

t d 1gn hangc during th plann111 g

111 r

appr pn at b cau

ffi ct1

111

i Ii ng ad

r a pr j

undnc

edu ativ r I a a m an t 1mpr

an

rep 11 pr

nd1ti n t pr _1ect a1 Ir val. It I n t d that

t·1ge r in Iudcd a

pr p

1mpa t

t mitig t ad

111 a pa t\

11\ 1r nm ntal

pand th I a iv r le t

th r hand

r

I r parati n

a

a critical pr ce s or

ocial learnin g that

individual , organization , and governments must go through and that cannot be av ided .

Wcbler l. al. ( 1995) define
as cial ituation. It is the proce

ocial learning not simpl a indi\ idual learnin g 111

that ccur when people with di er e per

and c 111111 n int r sts comet gether t reach an agreement on c II
mutual prob I 111 . From thi
tw

c mp n nt

places cmpha i
a id thci r p r

111

1ewp int, W bier cl. al. ( 1995) di id

ral devcl pm nt and c gniti

30

d

tiv a ti n t

r al I.

h

a

cial I aming int

nhan cm nl. M ral d

n h w indi idual are cnabl d to rnak
nal d mand and a t G r th g

nal int re t

pmcnt

m ral judg rn nt by etttng

nhan

gniti
Ill

ubj

t 11

but al

t,

1mg

nd1ti

11 l

th at ri r d

II

r

and 1mpr
a arc n

f I ub!I
e

h

mu l I an

\ ard

n-makin g J r

H \ ver, a

mcla1r

und r landin g

r th e de

nI

tran fer f p \\ r rcquir

and pr fi ren

ell a

a

th e

111 lair and D1du k (1 9 ) ) argu ,

th r .

Ill

gamin g t hni al

nl

n t

111

alu

tJ v

ft h

adv an

h, m nt

111

th r hand

n th e

ammg ab LI t

du ati n th at r at
pr

ment,

nd r lat I i

pr

e

h

111

LI

I

a n
rn tcin , 19 9)

n t. l t i

ftc n argu cl

re e f fi ll

, c ffi I en t, and air, publ1

gr at r le cl

f de I I n-mak 1ng p we r.

111 C 111

idu k ( 1 9 , 2~

p 111 t

ut " 1t11 n

r whi h th

mu t ha c a fi rm

arc a pati" a "an effcc ti c

an cffec l1\ e tran fr f J n \v ledgc" .

Pr gramm1ng 111 v h1 h c gnit i e cnh an cmcnt and m ral dev I pm cnt have
cc urred pro 1d

ome ba 1 fo r eva lu at1 n o f publi

rev iew in g t chniqu

fi r providing pu bli c du cati n

that citi zen-training program

parti cip ati n techniqu e . In

111 lair and Die.lu ck ( 1995) ri und

computer-ba ed parti cipati on, open h u e , pl ain lang uage

leg i lation, phone education , publicati n , and v id eo/film prese ntati on we re th e be t
edu cati on techrnques.

imil arl y, cert ain acti 1t1 es were found t

be 1nstrum ental rn

prom ting social leaming (Webl r et. al. , 1995). Thee include uch thin g a : itc \i it,
mall -group w rk (face-to-fac e), multipl e meeting over time, unr tn ctcd opp 11urn t1c
lo inOu nee th e proce , po litical c mmitm ent to th
de

procc , dir ct c nn ction t

n makin g, 'llld upp rt by e p rt .

Th rati n le ri r pub li parti cipati n 111
cti n, ha

br

den d bey nd p lit i al, fun ti nal, and d mo rati

31

m ti v'1t io n

h i11tr du ti n

1 pment.

u taina 1 d

111 Jud

th ne d fi r publi p rt1 1pat1 n t pr rn

ntal1 n, r

ur

G II \\ 111g

parti 1J at1 n

bJe tiv

: the need fi r
have all

and e lu at1 n and learn111 g. 1 h

1111 nent fi r effi t1 e publ1

and rn1 ha 11e

ti 11 rur1her

Ir <let rrninat1 n ·rnd .

h lhtng a "

the I ubl1

Ir \ 1 1 n la1rne

b n mpln 11 d a 11111 rt nl

f

42.

reaffirm

ti n al

Thi
repr

rdn r, 1

r 1t "

LI

d

r at I a h 1ghlened m: arene

nd 1t 1111pl1 I 1nlegral1 n \\tth -

111 l

ultural di

f u tai11 bl

bJ

part1 1pat1 n 111 r~ . The

ti\e that r quire fi

u fir hr t

all n ' pa rt 1c 11 ·1t i n 1n

2.5 Fir t

ati on

Particip ati on in En ir nm ntal

m nt

ultural diver it:>, a a pnn irlc deri\·ed fr 111 u ta111abl
cultural

n ironment

f p ople and

con ervati n pr gram
environment i compri ed

human

development, ti cu e

tn e lo protect culture

n the

th

amc way that

trive to pr tect bio-di er ity (Merdeith,

92). Cultural

111

fall tho e a pe t of the physical envir nment that relate t

ciety and culture, in c mbination

ith the cultural in tituti n

communitie t gether and tie them to th ir un-ounding (King, 19
"a cu lturall y appropriate form

).

that h Id

ften, tem1

u h

of development" ( ardner, 19 9b, 342) and " ultural

impact " (King, 1998) are u cd in the literature.
ar co n id ring of the r le f cu lture in

uch t rm

reate c nfu i n

. Meredith (1992, [_ 7) tat

" ultur

only in the human mind , and

nl y where it ha manag d

bi I gical ne d

th r w rd , wh r it 'fit ' the re

r it individual , in

hen we
,i t

rn ct at lea t th
ur

tac" .

imil rl , King 1

tatc " ultur

, 1 l)

nv1r nm ntal 1mpa t ' but " it I th
f th

n 1r nm nt n

mp1ri al ,

hap

th

tern tint de fin
1cc-v r a.
pr

e

th at pr
pla e

metirn

r I

hi h ultur dep nd that an b a ffi t db

M r dith l 92, I 7 p lilt
ultur

it If a an ab tra ti n, 1 n t ubj

ut , " th en ir nm cnt hap

en\ 1r nm nt" an I t ge th r th e

t t

rn a urabl
han g "

th e ultur and th e

fr m1 a fun cti nrn g c -

a relat1 n hip th at ti c th e hum an p pulat1 n lo th env1r nm ent and

hu , if l r

ar mad fir ulturall

, an opp 11u11it

i crcat d t anal 7e and 111tcrprct th

ell a ti n may ha e

diffi r nl publi c l parti cipate in

11 th e cultu ra l alu c ,

cmpiri al impa t

cial 111 tituti 11 , and

alu ed

f ltv111g 0111mu111l! e (Kin g, 199 ).

Th
chara teri ti c

Fir t

ati 11

ft r t the

I

peo ple

or

011h

rn en ca arc d1 t1n gu1 shcd by l'v\

ha e Ii cd on th e land inee th

la t ice age, and seco nd th ey

hav deve loped a , ay of interactin g with th e nvironm ent 111 a ham10111 ou way. The
r lation ship that evol ved between First

ation ' peopl e and th e enviro nm ent led to th e

development of a traditional knowl edge ba e and an indi gen us world view .

hi

indi gen u world-view gave th em a different perception of th e environm ent, on in whi ch
environmental a se sm nt " i a way of thinkin g, rath r th an a pr ce " (M oha'v\k

oun cil

of kwesasne, 1994, 12).

An example of h w First Nation peopl e view th environm ent can be ee n b
om e f th ew rds hared by
n u tainabl c G restry :

hi e[ Roger Jimmi e f the Klu s! u pc pl eat a co nfe rence

th fur tra I v ith ur I an ,
I -r l1ant in ur r ad-I
111 th v al th
uld upp rt larg
mm n an 1rnal \\, c ate, al ng w I th
d
I g but nl
ele t1\el. I an
qu1rr I, h limb that trc ; ma he
r \,\ rd , w r p t d al I LI r r th e
nberg, I 2, 21 .
w r a J art fthi Ci re t.

pt fi r p rha
p nd nt and

mu hr
re all n
I n u
Ci r t.

hi p r pt i n

[ th

n v Ir n rn n t b ah n g In a I u It u re pc r c Iv

r value

n tur a being linked thr ugh a
e::-.pla1ning th ph

I al and natural w rid. Th \\

the human \v rid fr rn the ph
lav\

and b Ii f: Lll'1t Ci rm

the I asi

t m

ly, cparatc

1c p int,

n er

Gr

r

1 al and natural \\ rid, e. plaining phenomena 111 term

that are le ted thr ugh the a

r qualified data. Thi

umulati n

vie p int that the natural en ir nment can be manipulated in
human ( enc

humans and

lead

the·

r

rdcr to er e the need

ul tural In ti tut , 199 ).

he differ nee

rn \ orld

w

b tw en Fir t

ati n

and vvc tern

ocict1e

hi ghli ghts difference in culture, value , and knowledge, reinforcing the need for Fir t
ati n ' participati n in _.

d ci i n-making.

Lane (199 ) point

rndigcnou

intera tion with land and re

urce planning 111

difference

in cultur , value , and knowledge ha

tend d t

ut, e pen en cc

r

u tralia ha

shown that

marg1nali1

or ex luc.lc

ab riginal fr m the planning process.

h re ogrnti n f value and kn wledgc that
fav r prefi rr d envir nmental and
differ nt publi

c n 1111c

are Ill lud d 111

J4

cm ali n t W

1r um tan

tern

ritical \\h n

ulture

ct

ulturally

C 11

r t f dev I pm nt i

11 \\

r fr 111 trad I t1 nal t
).

a d

th

111

dcrn '" a

11

r life'

I h1 ti atcd 111 d m 11

11 r ar hai t th

11 iah- p ku and

hara t n, d a I rnn1t1,'c, irn I I , an I rc n

111G ri r tag 111 human ultural pr grc
ur

hi n fr m " th

ulam

ttil ' I )97,

nt , indig n LI life- t le , 111 t1tuti n , and

n ti n fd

11 thi

f nature hav

n n hara tcri1 d a th

d an I t1rn

and l c

JCW ·

fan "carl1 r an I

ti \'

11 I th1 ... c lllJ lctcly 1rrclc ant

' ( pp1ah - p ku and

ulam

ttil , I )97,

9).

In th

c '

r h1 ti at d rn

j

m t1m

' "111 t1tut1 nal11cd

tern

r re

urcc and

n, 1r nmcntal rnanag mcnt ha, c b 11 r un I d n t hnical and profc i nal d1
that tri e fi r rig r,
certa111 lirn1tati n

bje t1 1t

fai 1

rec gn 11c

al uc y tern

ad I r and

and , alu -neutral It . The c y tern

uch a re pc t fi r thcr kn

ledge and

iplinc

thro d, 1993). The reli an e up n t chnical and pr fe i nal di cip lin c ha given
"tradit1 nal env ironm ental a e ment pra ttttoner a measure f p wcr by virtue

f their

technical knowledge" (Lawrenc , 1997b, 92) . Their power "mu t be tempered by a
recogrntion that expert knowledg

rarely

1

management" (Lawrence, 1997b, 9_), There
co nventional

cience ha

limit

Ill

uffici cnt in analy i , prediction

and

a gr wing a knowlcdgmcnt that

ol ing enviro nm en tal problem

increa ing complex ity and magnitud e ( ppiah- poku , 1994).

"' hi ch arc

he re ognition

f

f limit

ha led t a summon for practiti ner in envir nm ental a e ment t "reje t the fal
di chot my betwc n e p rt and layper on, recogniz e th e alu

r I cal kn \\, ledge and

cx pcri cn c, and accept th e public as a I gitimat partn r" (Lawr nc , 1997b, 9_) . "Rural
p

pl , with their d tai le I interacti e I n wl dg

35

f th ir

n ir nm nt , arc

xpcrt 111

th ir

n rig ht b au

ut id r " ( tt , 1

r

p

e

m r infi m1ati n b ut th 1r n tr nm 11t than

- , 6) .

h pu h t a
that ha be n

th

uildin g u1

th

in

g1111111 g th ·1t all fi rm .

pl annin g th e 1

r kn \\ ledge ar

valu111g, and a tin g arc c n tru te I t
and th

xp rt

t hmqu

urnng \ ith111 'lll 1ntcll

pt I c I kn v. lcdg i al

fi eld

) 1al pr

tual

a e

th e 1970 .

h l·ir ar

c, ,,h er \\ a

f th1nk1n g,

111

parti ir ant , an I th at " th

r

1cn c

rnn g' a

th e

kn , lee.l g

arc n t a d1 ffi r nt fr m prac ti cal r a

in trumental rati nali t had laim d" (I lcale , 1997, 2 .

Th

rec gn i; ed 111

all C r c n 1derat1 n of kn wlcdge and va lu e 111 th

practi c .

ne

f the rn

ab ri ginal

ultur

t w

11 kn v. n a

alu e , and kn

th oroughl y explored th

I

ue

or

I dge wa th

111

anada'

Berg r inquiry. The

un undin g th e c n tructi n

pro idin g a fi rum for the integrati 11

rth th at

n 1dercd

erger 1nqu1 ry

r a n rth ern pipelin e by

f t hni cal and environm ental I

ue

ith V ry

per onali zed cu ltural and ocial concern ( ambl e, 197 ). Many peo pl e view th e B rge r
inquiry as a hi ghp int of an era in public pa11i cipation , rath er th an a b ginn111g, (Wi 111 r,
1996 ). Jud ge

erger took th e tim e not onl y to Ii ten, but t und er tand and ackno\\- ledge

what th e re ident
1977 ).

f th N rth wer

ay in g in re pon se to a pr po ed p1 peline ( Bea khu t,

akhust ( 1977 320) 11 te

ln the n rth there wa n que ti n f people' a ar ne of th ir inter t
nee the pr p al had be n e pl ain ed t th em in th eir , n languag and
by peop le they tru t d. Th re
uld, h \ e\ r, hav be n diffi ulti
111
getti ng th em t e pre it, e n at mm uni t h aring , had it 11 t b 11 C r
th e inquiry ' attempt t G 11 w the I cal pproach t di u ion and

ati n p
\ 1e \\

pl at th
'1

fF1r t

h ann g but he mad a lear de i 1 n at th b ginning t

Ii 1t a

~ 1b I

p

b

a d 1r t patii 1p t \\ uld b abl
r

ar h r , an I

r

indi g n u

t r pr

th e gr at t impa t b

th

vvht h had , pre eel

that gr UJ

nt th em l\ e thr ugh e I rt 'v\ ttn e e,

I ( amb 1 , I 9 7 ).

un

ulturc ' va lu

,

and bc l1 e1: ar d1

ial d narn1

e ment. M redith ( 1992, 126 )

a p1 ra t1 11

mu t b

mb di ed in an

h re indi g nou

11cur

v1 1

popul at1 n

11

be 1ncffec t1 vc if

li ke I

( 19 0) det m1111 cc.l th at E

entl , R

impact

impo 1ble

' pen n

th at \\ er t

th

ught t I r v1d ac.l cquat fundin g

1 1p l111 . l l al

ne fr rn th

rg r Ii t n, un Ir tand and a kn \\I c.l ge th e \t ""

t nl dtd Jud g

man

e a fi rmal and I gal

n-rnaking rath r than 11111

d

untcd 111 1ni r 11111 enta1·

c ncludin g th at " I cal

f d

alu c and

I pm nt", fir ' u tain abil1ty 1

arc di p

c cd, forcibl

di I catcd, or

di enfranchi ed".

In addition to the call fi r recogniti on and integration of cultural
kn wledge within
both indigenou

A , there ha al

and modern appr ache

limited in

t

en ironm ntal pro bl em

hin g ( pp ia- ·

a r ult of th e re ognition th at con ent1 nal

lving cnv1r nm ntal pr bl m

or increa ed magnitud

c mpl e ity ( ppiah- p ku, 1994). There i a wealth f literature ( ttc, 199~·
throyd, 199

entre for

and

been a move to create a kn wlcdge ba c th at bl end

p ku and Mu lam otti l, 1997). Thi
Ctencc

alu e

raditi nal Kn wled gc, 1997;

'J 7

and

'1c.ller an I

t vcn n, l 9 ; and

Fr man

kn wl dg ( ~K)

In

\alu

n Ju i n parti 1pati n

r

ru ial fi r t\\

Ftr t, the

g1 al

f tradi ti nal

1r t

at1 n

Jc I le

111

11 -nnk 1ng

~

th tr

ar dtffi r nt

and kn \de lg ar diffi r nt and th1 g1\C th 111 auth nt 111 dct n11in111g h
han gc

tern th

cnv1r nrncnt

that th n rn1attv g al
e

rn

n-rnak1ng. 1 he c

r rcpr

r ir t

nd, be au c

the

r

r th e limit

g t al kn wledge

1 n ct pr du

the be t p

1blc

n lu I n r 1nfi rec the nc d t

n urc

ntati n and part1 1pant innucncc arc crn pha i/cd 111 any

ati J1 partt ipati 11 tn
I

n Eva luation Framework for E

Polic Effec ti ve ne

amine the policy effcctivcnc

di cuss d in the introduction, thi the i
ation ' pa1iicipation in E
mea unng

c

1th nv1r nm ntal pr bl 111 , the c

h ul I b J med \\ 1th

p

rrnauon ba c G r E

aluati n pr

1n th

n c in d al1ng

nvcnll nal

2.6

mt gr t1 n

1th

'v\ill be 1rnpa t d b

Ill fi

n n1111g th

arb n,

nd

of mine de elopm nt in Briti h

policy effecti cne

of hr t

lumbia. Hi toricall y,

gained attention in the mid 19 O'

and

ntinue

today (for a more detailed di cus 1011 ee Wo d, 1995). H wcv r, there ha be n n
reliable quantificati n of ef~ ctivene
an

vera lI j uclgemen t ab ut any
t, pr grc

for

, and thi ha er at cl diffi ultie in r aching

y tern (Wo d, 199 ).

ha been made in the ar a

f

arc u eel for it mea urement.

38

Ith ugh th e difficulti

ffcctiven s d finition and riteria that

ffi ti
r

, \ it hi n th r al m

n

h th r it v\ rl

I 9

pr

dural, ub tant1

pro

durallr m

rh

and tran a ti\

the a htc\ cm nt

hi h th pr

t

f

ub tant1v

bJ

an b

u cd :

b effi ti

t1\e

( adlcr and

bjc t1 c at the lea t

rartl 1pat1 n p Ii

t accepted l rin iple

'v\

t and 111

rk fr m aproc ., clural a pct 1

uch a public n t1 ficati n

f meetin g ,

f appr priate c n ultati n technique . Jf it

to infor111at1 n, and u

accepted principle the polic work pr cedurally. r m a suhstan/1\ '
rk

participation pol1c ,

1

th e tent to which it meet e tabli hed

If it fail to attain th see tablished objecti e the poli y doe not
Finally, we can ay that: If the way in, hich an
appl 1ed (i.e. public notification of meeting

ork

urce provi 1011 .
ub tanti ely.

public parti ipation p !icy i

ne we k in ad ance, a c

t infi rmati n at

and u e of pecific con ultati n t chnique ) deli er th objective

(i .e.

rcpre cntati n f the pub lic wa attain d, public ducati n n the i ue and the pr
curred, and th
r

urce

C

dct rrn I ne the c, tent t

objective such as repr sentation of the public, public educati n, and re

local librarie

rk

ibl ( adlcr I 9 )) .

hi h 1t m

a pect, how the E

m thing

ntern that

and

tabl1 hed I uq

d liv r th

the

ll

v1 1 n , \ h r a t b cffe ti c

dural pnn ipl

f ac e

'v\

ad I r, I ( ) ).

(M r d n, I

transactn • Ir 1

111

F r }..ample, h \\ an

c nfi m1

three

ffi ti\ en

th minimum tim p

prov1 1 n

ar

a ure

. T

m, l

the e tent t

thcr

efett\11

d I nn 11 I

uh. twlfl\ ' ,fr

h

a intend d and meet the purp

m a ur

7).

i d fin d a

f

public had a ce

r

ur

) in a mann r that

uc h a time and m ney, then the p !icy w rk

39

tran a tivel .

n t 'v\ a teful

e

r

dural, ub t nti

h

b rnca urcd b th a1 pl1 at1 n [ an
). Kra
d

[ an

cl pm nt

7) al

t. al. ( 1

ti

frat11 ,

The r fer t th

fr rn ,

rk a th

a~ r 11 ·1t1 n , an i the bJect1\c

in a triangl

ha1 e.

r lat1 n hIJ

b t\,e nth p 11

"c re lat th 1mpli at1on
p 11

1r nm ntal m nit ring.

]1

. It d e th1

by fi

, th a1 pl1 at1 n (pra tic ), and the re ult
f pcrfi nnan

back t th p l1cy, pr cc

pplicati n of the " ffecti enc

Triangle" can al

adler ( 19c. 6,

y tern-wider

9) , 1d nt1fic

ie

ne an ther

nangl " illu trate an c ·iluat1 n

e p 11 y ffi ti en

policy evalu ation: (1)

11

f m nit rin g t

adju trnent can b made t 1mpr

en, 1ronmental a e ment.

ti enc. Tri ·rngl " in the ·

[[i

"

rfi nnan c)

fan

ffe t1v n

ad l r'

na d" \ h1 h r late th plan (p 11 y) ,

11111 larl , the " ffc t1\ ne

v rail

Tnangl " Figure 2. 1 fr 111

f

ti

rk fi r m a unng

th pr

fi r m a unng

11

nit ring

"

11

n cpl [th

th

LI

ffi ti\' 11

ti\

[[i

'

ffe ti en

, and tran

LI

1ng

cle
11

th

perfi rrnan e) .

dcvel pment and

ccur at di ffcrcnt le cl
three diffi rent le cl

f

f

; (2) dcci ion audit: and (3) c mp nent-

p cific e aluations.
_rs! m-11 ide r vie11'
1

eva lu ate a number of pr ce e o er a g1 en time penod and

indicate the overall re ult in term of the extent t which policy

r 111 tituti nal goal

were upp rted ( adler, 1996). For examp le, the evaluation of a number of ca e of l
frot11 different pr

.

.

1nces 111

anada o er a given time peri d , oul<l b a y t rn-,, ide

review. -< va lu ation prcvi u ly ompl ted at thi le el are the v ork
and th N rth

tlanti Treaty

rgani;,ati n ( 199 ).

D c 1s 10 11 audit evaluate the applicati n

r a numb r

f H Iii k ( 19 6)

f ca c ( u h a th

fa gi

valuati n
40

f

riti h

lumbi a'

pro

for a

11 U Ill b

\ I (\\i'

at th,

nt r and

d, 19

lark I

nadian

th

e . fh1
r

pr
111

an

nt na fi r

,, ·alual t011s

ur teJ -b 1

th cl u ed t a c

( 19 7)

xa1111n

effi ti

ne

c am111
part

mpl ten
puhlt

111 111t nn g a

111\

a

p'1rt1 cular

tage,

fan [

c

pr

an

mplian

un i I 19

nt R car h

tc1 c.

parat

am1 I , a a

dural

t n tab! ar th
111

e

and qualit
h cment

Jr
ma

f

rt Ian

mp 11 nt

f l: l

) and

n 19 3 .

1b

r a l1 iti

1gure 2. I h " ffccti

n

b re\ I C\ cd fi r u h th ing a
d

um cntat1 n, r ad qua y

I 9 9 ). ' i m ii a r Iy, K ra
and prop

c

a fnrn e\

PRACTI E

riang l " ( ad !er, I 96)

f an

'l , eparatc ex

ra

ppli ca ti o n o f
pro ce a nd
pro cedu re

ontributi on to
d cci ion m a kin g

1)

la, I ul b

PO I Y

PERFORM N E

a le,

ffi t1\ enc

deterrninatt n.

R ealization of
purpo

I

Ii i k1 c and

rt Ian ,

n ir nm ntal

f

aluati n

n

Mar d n, 19

7). M

'o m1 0 11 e111 . pe 1ft

pr

u h v rk ha b n d n

r f d j ffi r 11 t pr .

f

l/ cl. a I.

rk G r

ad lcr'

" ffe ti

11 b

ria11gl "

11

r a fram \\ rk fi r d t 1111111mg

d , cl pm nt

1gur 2. 1 .

he [i

fram \\ rk 111

1gurc 2 ...... ) 1

111 J 11c11t I C Ifi

ati 11

I arti 11 alt

ir t

d1 f[i rent a p

und d h

adlcr

r

part

xtent t

th

nted by th purp
The

fi cu

t mp lat

fi r the

t I\ C 11

at a

mp ncnt

C [[i

ar h and the [i undat,

111 that It eek
rl t,

t

r ffica

h

Ill

\\ hich th

the p 11

r

enter

at th

pra t1cc ),

t

arc b ff

cc.I fr 111

e) a J ect I adde I.

ormatn ·

(Jican · 1

a p

th

p It

n rrnatt\C g al , wh1 h arc

e( ) f thc p Ii y.

pand d fram v rk rcpre cnt

a

1rcular cffccti enc

cycle. The

yclc

n th a pe t of practic , performance, profi iency, an I purpo e, Ii nk ing them t
rall p licy ffcctivenc

the e tent to which the policy works from all four a pcct .

framew rk begins with th
ach

[ th

fi r 1111 n

pr

lurnh1a '.

pr fi 1en

policy by their re pectiv efficacy mea ur ment .
b

11

a ur th act1 It

h \\ well 1t \\ rks ) Pr c dural

frarnC\\ rk and a n rrnat1ve purp

d fin d a
repr

LI

and tran a ttv

(p rfi rrnan

ub ta11tiv

a

Jj

a ba i

e"\pand I frarn \\ rk Ill l--1gurc . . . ... . I la

de\ I prnc11t. Th
Liff

11

I

[ th pr cnt r

cl

pe ifi

u d a

practic of a policy and proceed

f the e a pects will b

111

a cl

rcnccted

tilizati n

f th

k-wi e direct, n.

discu ed to elaborate on how the frame ork can be

app lied .

Practice
I:: ami nation of th e prac tice in
what pr ccdu r
pr

Iv

finding ou t h v th e p lie

were u e I. The e tent t

du ral prin ipl

wa appli d

whi h the app li ati n adhere

fo r lh p Ii y pr vide a 111 a ur

4

f pr

r

a ccptcd

edural ffi ac . Fr rn th,

Figure 2.2

spect of Policy Effe ti vene

mea urement, adjustment are made t

the policy t

1rnpr

e h w it v ork

applicati ns . _, r xarnp le, if it wa fi und in the appli ati n ran

111 future

f LI b I i part i 'I at I 11

p Ii y that th pub li was given on ly e en day n tifi ati n and th pr

ed ural prin 1r I

pr

1m~ r

n t1fi ali

adju lm nl pr

p Ii

uld 1 d l

hi

pra Li

II

uld b lhal th

lh r ulting m a ur m nl

d

rib d

ing h \ it w uld,

nbin g m r

di ln' l

rl in

time fi r publ1

rk 111 futur appli ati n

Performan ._,
minali n [ p rfi rman
re ult

1n, I\

r the a1 1 11 at1 n (the pra t1 c)

tabl1 h d bj

tt\

fir th p It

m a ur ment I ad t p Ii

a h1cvcd

adju tment t 1111pr

·1pplication .

rep re

ntati n \\ a n t b ing met for an

. amm d t

h n th

xampl

ut \vhat

the re ult I a mea urc

poli

be

r

finding

if it \\a

bJe lives

b.1c t1vc arc c mpar d

r uh tantt\e crfi acy . 'Jh,

c the me t111g
[i und

that the

r bJ ct , c by future
bJccti

puhli

publi parti ipati n pr cc , the p Ii y w uld

det m11ne \vhat adju tmcnt

need to be mad

M cting of thi object1 e in future applicat1on would impr

111 ct th i

OJC tivc .

c h \,\, the policy \\ rk

from the perfon11ance a pect.

Proficiency
amination of proficiency involv s finding
achi ev in g

ut h w re

urce

bj ectives. Tran active efficacy i the extent to which th

incurred and th e minimal amount of tim e u ed in achie ing objectiv
the applicati n fa p Iicy u e time and money in a hicvin g obj
wa t fu l, the po licy d e not w rk pr fici ently.
n crvati

44

lea t

o t wa

F r example, Ir

tiv e in a manner that·

ltemati el , i [ r

ly the p Ii y w rk fr ma profi ien ya p t.

were u d 111

ur

are u d

Purpo

amm ti n

f th

rcalt/ d b th p Ii

u

u

finding

Ill

ti n ar a k d t d

arc r alt/ d, r ultmg 111 a m a urcrn nt

ut \ hat n rn1ati
the

rm1n

ffia

f n mnlt\

g al

nt t

hi h the

. lh,

lal

h \\ the p lie

g al fi r an

n rmatt \

fi u11d that th p It

a ht \

I

11

g al ,

t. F r e am1 I , if a

fr m a puq

I ublic parti ipati n I 11

v. rk fr m a purp

th p Ii

\\ rk

g al
I

adju tm nt whi h in futur a1 pit alt n r ult 111 th r aluat, n f the n m1all
nd thu

ar

i to Ir m tc u tai11ability, and it i

tabli hcd nt na that 1nd1catc th real11ati 11

thi s g al,

ea peel.

Overall Policy ffec til en e.
verall
th

ffecti enc

d tem1in d by th c tent t which the policy w rk fr 111

tandpoint of pra tice, p rfi 1111anc , pr ficien y, and purp

p !icy

e.

r e amp Ie,

If

a

ork well fr m all four a peel (met ace pted principle , a h,e ed e tabli h d

objective

attained objective

in a manner n t wa tcful

nonnative goal ) the policy ha overall effectivene
work from any of the e aspects it do
Thi

thesi

f re

urce , and r ali; d

ltemati ely, if the policy fail to

not ha e verall effecti ene

will not evaluate the poli y purpo e

paiitctpation in mine dev 101 m nt fi r Briti h

f

for Fir t

ati n

olumbia. Thi i du t limited time and

funding in c njunct i n with th

ubjective nature [ mea urem nt of no1111ativc cffi a y. ·

hcrefi re this the is wi 11 fi u

n practic , p rfi rman c, and pr fici n y in d term t11 i11g

a Ill a LI re

f

ra l I cffccti enc . Pro edura l prin ip l ,

4_

ub tantivc obje tiv

, and

rit n

u d t

ar

pr LI I 11

a

partJ 1pati n nd ffi tt

d n

n publi

lit ratur

d fr rn th

n

Pro ~dural Pri11 ·iple.

fi r publt

dural pnn 1pl

pr
fr 111 "Publi

n ultat1 n

u1d lin

R p rt: K

rn nt

pt1 n

and

and Pr
,,

div1d d int

i h I n (1

e ffi aC), Th five atcg n e ar

1.

uid111g prin ipl

•
•

•

2.

) and

fi e categ ne , are

- Th proc

lure fi r the
11, I)

ad !er, I 9 ) and up1 rtmg
rr v\ 111g fr m

part1c1pat1 n pr gram

L

111

sc rncnt

nv1r nrncntal

0 , the "lntemati nal

tudy

literature that refine the c pr

ad! r ( 19

pnrnar

pr

n ·
cdure

lural pnnc1ple ,

tabli hcd fi r u e 111 mea urcment
mp

arc den c I

f pr ceclural

ed f:

h uld be p n fair, and object1 c

n ult ab ut h wt con ult·
'
Inform people about how to become inv Iv d. Fa il1tate part1cipati n by
pro 1 ion of funding, per nnel, I gi tical upport for technical guidance,
legal ad ic , tran p rt and tra 1l ing c pense fi r pa111ci pant att ndance,
information, and training (Brennei and M' nigle, 1992; ere fi rd and
roft, 1993; and mith 1993 );
xp lain how re ult of consu ltation will be used in the d ci ion (Parenteau,
19

11 ficat1 n

•
t lea t 45 calendar day
• Thro ugh minimum f one new paper noti ; and
•
hr ugh meth od uch a letter t make awar th e mo t lik I affc t d .

46

t Infi rm ti n
•

•

•

4.

ai lab! , in

r gi nal I ibrari , that
n m th
a , l 77 , and that rnak th pr
r nn i and
rn gl 1 2 ,
Infi rrnat, n h uld be r 1rnmed1atc r le\ an e, l
and bn r, an I b
apJ r pnatc t th p pl
abil1t1 . ,
n n e, kn
lan guage, an I
re G rd and r rt 1 ) )· and
u Iture
n-making pr c
t be r p n 1v t part, 1rant ,nG rrnat1 n ·
a

n ultati n

•

•
•

ppr priat

hn1qu

I artrncnl hall h Id a m1111mum r nc publi c meetin g r open
\ ernm nt
h LI e·
t apJ r priate n ultat1 n t hrnqu (public m t111 g , rcn h u c , site
et . · nd
I lt
at1 11, and Ji rn1at of
eek publi input n pu Ii prcrcr 11 C Ji r timin g,
n ultati 11

5. R p rting

•

•

irect rep rting in wnl111g t all pa11icipant in c n ultati n, uron
announcement f deci ion on project by mini ter (Brenn 1 and M' on1glc,
1993 ); and
Rep 11 to 111clude review of con ultat1on proce and e planat1 n r h v.
re ults were or were not 111corporated mt final dee, 1 n (Kn pp and
aldbeck 1990).

The extent t which these pr cedura l principles are implem nt d in a given Fir t
partic,pati n proce

in E

British

A policy in that in tance.

olumbia'

ation

for min development determine th pro edural cfficac

47

1i r

ub ta nth

Obj

ub t nti
1nm111

tiv ~

ffi a

ri ti h

fi r

d l rn1 in d b

d\ lrmnl

[i II

htcratur

L gi lati ba i [i r public parti tpali n; and
Legal right and pp rtunt t l pai1t 1patc
(Lu a , 1977 · r nn I and
n1gl , 1992; and

ht h th

al1 n ' parti ipalt n
p Ii

1cm

th

a ht

nlt

aird ( I 9_) ·rnd , rn1th

ict . The
I) 4), an 1·

ting

milh, I 93) .

nlali n

Publi had equal ace
and pp rtunit l participate· and
Repre ntati n ntailed a full rang f valu and tnlere t on al ptc
(Bere ford and roft, 199 · Maclaren, 1995).

3. Participant earning and

•
•

tr l

n publi partt 11 alt n pr gram .

•
•

•

[i r

ncd' I luralt ti

Parl1c1pal1 n

•
•

nI

·1d

1.

R pr

c

"'t n l

are b tT \\Cd fr 111

wing ut tanli c b·c ti\

upp rt db th

lhc

111 a 'br

Live fi r a I arli iJ alt

p Ii

lumbia

nder tan ding

o [ the i uc and or the pro c

Public actively pai1icipated and wa well In fonned of issue ;
Public gained new ets of skills, ideas, and values; and
Public gained an understanding of the deci ion-making proce
(Lucas, 1977; Brennei and M' onigle, 1992· and Bere ford and

roft, 1 93).

4. Re ource Pr v1 1 n

•

•

lncqualilies that existed between parti ipant were balanced by re ur e pro\ 1 1 n;
and
onlinuity of participati n en ured by r urc pr
( rcnnei and M' niglc, 1992; B re [i rd and
; an I rnith, 199 _).

8

. Parti ipanl inOu n

r ubli auth rit in th pr

ar d fin d·

•

Th limit

•

Part1 ipant
n 1dcr d and u

I t a[ C t the de

d m
and

Cl\Cd b the publ1 and
r a n1ng b hind d I I n Kn I I and 'aldbc k, I 990 ,· Bcrc G rd
a l arcn ' I c 9
renn I and M' n1gle, I )92) .
ar nl au, 1

•

111 b Ill

ar

fr 111 input int

Th

,tent t

,, h1 h the c

parti 1pat1 n pr
riti h

Tra n. actil e

lh

pr

h

i 111 u l wa

r

bJc ·t1\ c

arc a h1c\ d b

a f, 1r l

al1 n '

the ub tanl1\C cffi acy fir

poli

riteria

ran a live effi acy for Briti h
111

that d m 11 tralc
n-mak111g pr
: an I

Gr m111 de,cl Im nl Jct nrnn

111

lumbia'

ub tant1, c

I 111 a \ a

olumbia'

mine development i det nnined by the

Joli y G r Fir t
tent t

ati 11 ' participation .

which the policy achie c

the

G Ilowing criteria ( ad! r, 1996):
1. Time Management

•
•
•

2.

Proce managed with ut undu delay r co t to proponent and ther
Timeline and chedul s nego tiated up-front
ompletion of proces in accordance with the e n gotiated tim line
chedu le

and

t Management

•
•

bjective were a hi eved at lea t co t a
nsultation t chnique(
bje ti v
were achi ed at a r a onabl
j ud gem nt

49

h wn by u e
t a

r the appr I riat

timated b

infom1ed

hi appr a h t m a uri ng tran a t1

r pr

i n ta d

effi

dur and p rfi rman

pcd in th literatur a th

tit i an 1111p 11ant

mp nent t

rall I Ii

cffc t1\cne

u ing the c

effe ti ene .
Pl Ii ati n f the frarn \\ rk figure~ --) ti r

pr

dural

prin 1J I ,

111

ur mcnt

f h

h

the

,

bj

nd

tran a t1 c

en teria,

al I w .

pra ti

pcrfi rman c, and pr fici n y.

mea ur m nt all w the dct 11111nat1 n

r p lie

cffc tivcnc

p lie

rk

ti \ ' e

fr rn

patii ipati
th

ub t nt1

p Ii

f 111 I 11 C de e [ p Ill C11 l I n
w rk

adju tment that

fr m

rt ti

ach a pe t effica

h , ]LI Ill b ta .

mca urem nt

ill aid in improving p Ii y effi ctiven

I

0

Ct llll 111 at J O 11
u ed t

fi r ir t

in mined \Cl pment in Briti h olumb1a in future applicati n .

Ji r

ir t

ation

f h W \I\ C11

Ji m1ulate policy

ati n ' participat, n

hapt r Thr
Meth d I gy and n ly is

hapt r Thr
Meth d l gy and naly i

- I

. M thodolo
fh

rk

1gur 2.2

rill h

lumb1a'

Cram
111

t

mm ndat1 n

3. 1 R

tud

ffi ti

ne

I ·1 a r u It

an b rnad l 1rn1 r ,

r th

th

pr p

fi r

Ir (

·111 n

d
,

p·1rti 1pal1 11

f ll1111e elev I pmcnl

a

hat

and

lamati n fth

pr

aluatI n

effi lt\ 11

p It

arch D ign

Th de 1gn fi r the re ar h I th ca e tud
ac

a d 1gn that ha the apa 1l
n

Li

n am ng

rnpan

pr
LIIT

n fi r th
Ii

d t rm Lil

d l 11111 ne what h ng
r

h

ar h d 1gn and 111 th d

r

b mg

appr a h

a

rn re variable

a e tudy all w

the u e

h

n be au c it i

f 1ntere t than the
f tnangulati n and

f j 11 fi 1111 at IO 11 \ ith Ill Ca e , W h IC h t 11 d

c nvergence of multiple

urce

validity.

al o appr priate

h ca e tudy

a

rnm dat rnan

amin d. The

, plicitl

h

en ure

hen the re earch de ign 1 focus ed

n

c nt rnporary i ue and eek to an wer que tion of "h w" or ''why" ( take , 1995 ).
In hort, the ca e tudy approach i mo t appropriate 111 1tuat1on where c pl rat ry or
de cnptive research on contemporary issue

in olve

variable

hich may not be

quantified or even id ntified (Yin, 1994 ).
The re earch que tion for thi

tudy are of a de criptive nature and fi cu on a

c ntemporary is ue, thereby validating the u e of the ca e tud de ign . Thi de ign \\ ill
con i t of three descriptive case in

lving Fir l

ca es wi ll invo lve Fir t Nations T ay Keh
Kerne

minc, the

hes latta p

pie fr rn th

ation and mine de cl prncnt. Th

ne and

akla pe pl

ar a

f th

fr m th area

Hu kl b tT

r th

mi nc, and th

pl fr m th Mt. Mi lh g n mm ar a figur

k' zdl i

th

p rali 11 ,

n tru lJ 11

it indi ating imilar

IP r g Id d p

ha\' I rph I
guid l lll

LI f

•

th

ha

1milar n 1r nm nt I lnzard ;

•

th

ar

at d m th

•

th e ar

limat1

am bi g

arn r-

at d Ill

1 11 ; and

att n ' trad1t1 11al l IT! t rI s.

kani Fir t

I en 11 c I

nn1 cts \\ Ith

that th en ir nm cntal a c m nl pr cc

h uld ha e

and Hu kl be IT lllllllllg p rat r ha C b th

Th K me

mmg 1 u

ir t

at1 11

addre

d during mm c

a

ha c be 11

a

n ba d 11 a num er f imi lariti

h

•

. l . h thr

11

th

pm nt.

cd und r th e ,\/111 ! c,· lop nt 11 1 A.s.s
1

En V t r o 11 m e111 al

f th e c min e d
s 111 ' Ill , l et and

m nt A t wh 11 pr claimed 111 19 5.

und er the en ironm ental a

ment pr

c l pm nl

ub equ nll y rn
t.

ere 1111t1 all y
ed int

th e

ill1 gan wa a c 'Cd

111vol in g th e Mw D ,, lop111 11! Ass ss nz e11t
1

A tin 1993 .

3.2 Meth od

Methods u ed to determine Fi r t

ation ' participation for each case

f en ir nm ental

a e ment are: a literatur r vi ew· p t-hoc anal y i ; and ob ervati n f Fir t
c mmurnty e ent
effecti v ne

and meetin gs.

ornparali e an aly i

u d t

for each ca e and the impact of the proclamati n

effecti vene

5_

f th

ati n

d te m1 in e p Ii
on poli

N.W.T .

-,.,

Kemess Mine

ALSBTA

Huckleberry
Mine

U..5A

•\
- - IIOAO

!

-..

•

•

- - W..WAY
V

CJl"'Eh "'1' ,-at ,.f"nn ~ MJ ~

F1gure 3 .1 Provincial map ill ustrating the locations of the mine development cases

54

.2.1 Lit ratur R VI w

tak n fr m

rtic l

11

pap r

f ..

re r cd j umal ,p rlarn1 ng l
parti I pall 11 Ill lh

11

1r nm nlal a

C

111m nt puhlicali n, and

g

magazm
r r

,

m nl pr

d t
~a h

C

l d l quc ti n dcriv I fr m the

a h a

ubj

h1 pr v1d

111fi m1ali n that i u d l d lcrn11n th p 11

f ir t

ur

al ual

ali 11

"' ir l

f 111G rmali n [i r

alual1 n framcv\ rk ( c ti n 2. ) .
fc ti en

[i r ca h

a c

ati 11 '[)'lrti 1pat1 n.

.2.2 Po t-Hoc

nal

anal

111 lud

al uali n

lru lured [i rrnal rnl rv1 w

[i r each

a . The m d

he p l-h

Int ra five-int rpretiv

po t-hoc

d cumentali n and u es 111ter 1ew t
pr

C

iding Gr th

di c

er

r

pr
f anal

a e ment
k beyond th

e

111 ol c

d cumcnlati n and
h en [i r the p t-h

rcv1c

r

pa l

data in a y tcmatic way, thu

of diffi rent p r pect1 e . The 1ntcract1ve-intcrprctat1\c

approach use a range of "objective' and "subjecti e" infom1ation in th as c sment of
how differing groups interact in working towards di f[i rent obj cti
and

erafin, 1995). Thi m de i pur u d in public polic and the

when literature or data i

and g al ( el

n

re earch . It i u d

carce, as well a when there are time and funding on traint .

Although the m de inv Ives in terview

d e not rely on e pert j udgmenl - 1l

enc unter pr blems in trying to identify the "right" per pe live fi r a ituati n (
Cl. al., 1992).

5

rafin

um ntati n r

h d

ir t

nd min d

ffi

dd1ti nal d

fr 111 th
f[i

t1v n

h a

rmal lilt r\l \\
Keh

n

th a

nd
m nt

ir

111\! h

t

a h

a , betw en

11

ir t

ati 11 ' ban I and

ther infi m1ati n that

Jud

u111 en tat 1 111
I r \ 1d

[i r

LI l Je

in fi rn1at1 n t

ted t que t I 11
determ 111

f th

at1 11 ' parll 1pat1 11 .
Ir

ntati v

at1 11

l

Hu klcberr , Kem

, and Mt.

he latta, T ay

from the

11 d an rn1t1al app 1111111 nt due t

famil

I ed

1th

tlltgan min de cl pm nts.

\ ith a r pre ntati\c fr m the Takla

mad and me age

len \ ed

the p 11

ak'a1dl1 b nd , a \\ 11 a g \ rnment ffi 1al \\h \\ere 111

pl nn d 111t rv1
h1 f an

f

II a b l\

\,\

um ntati 11 r

aluati n fram w rk

fi r

a

pr

riginal

re u1t d fr 111 th

rr p nd n

lud d
r

ati 11 ' band
mm nt

0
b

111

akc

illn

and did n t

. Th1rt

n ph

ur a th

nc all w re

ere left at th Band o fficc 111 th fi II wing fi ur ,, eek , 1n carch of

other appr pnate int rv1 we . In th

fi urth \\Cek an app mtmcnt wa

inter ie ee but thi

wa

ub quently

an

R pre ntati e that

re mtervi wed v ere a fi llov. ·

mad

with an

lied due to pcrcei eel time c n traint .

•

Leonard Thoma

ak azdli Band

•

Mike Robertson

heslatta Band enior Policy

hi fduring Mt. Milligan a

ment

d isor during Hu klcb rry

a e ment

•

rdon Piere

•

Alan Y ung

- T ay Key

cne Band

hief during K me

nvir nrnental Mining
an I J Iuckl bcn-y as e ment

56

a

rn nt

uncil; lnv l\cd with Kerne

•

fMin

- Mini tr

H tTl

J

· In

d

ith al I thr

ll1 tn

e m nt

•

\\ t k

- Rcgi nal

rm Ring ta I

- R gt nal

d

•

t r frnine and min ral r

tr

m nt

ti n \vCrc I nv d fr m th
ffi

t I\

11

3.2.3 Ob

r ir t

rva ti o n f

mmunity Eve nt

atJ

Jl

I

and e pr
It 1

dct m11nc p 11 y

r c rding

r bchavi r and c cnt

m a

n G r a tud . It i thr ugh b er ati n that th re car her learns ab ut

bcha I r and the meaning attached t th
purp

rl t

part) 1patJ 11.

c hni all , oh en ·a/1011 i the
ial ett1 ng ch

ffi

valuati n fram \

Gr a h a

LI r

f deeper valu

e beha I r . The a umpt1 n i that b hav1 r
and belief: (Mar hall and R

man , 19 9) .

11 acknowledged 111 the literature that cultural difference between Fir t

at1 n and We tern
and knowledge base

ur pean c mmunitie exi t and that thee re ult 111 differing value
iven thi acknowledgement, the ob ervation of Fir t

ation

community event and meetings m this study i not focu ed on the 1dcntificatton
individual behavi rs, their meanings, and
de cripti n

pre ed valu

f community character in regard t

bservati n at the

. Rather,

env1r nrnental an I re

in the
urce value .

event al o pro ided the opp rtunity for infi rmal que tionin g

Nak'azd li band member and repre cntativc

fr 111 the

hesc intcracti n aided in the de cription f their ca e .

57

f

arrier- ekani Tribal

Lill

f
ii.

r parati n fi r b
-cultural tr ining

n pr

I

C

an nvi r nm ntal a

m nt

tr di ti nal t rri t n

ur

rH

in lud d Pr fe
and

nn

am and
mmun1t

mbl , th
f K

and nr llm nl in

rfi

ided b th

ak' Ld]i

that fi

cl nmin d V I pm 11 t j 11 .. ir t

ur
gu

111\

LI

r at

hcd ,,1th Ir vid1n g
), K , 111 Vv ard

th r !Iarn
111a __, ri k

a a 11 -da

11t and m cling

all n'

ati n f ir t

I

n ( ak' 1dli

1r t

lud

ir t

an1 r-

at1

ati

11

ti

11

C

kan1 Tribal ' un 11),

·1ti n .

111

t111g

alt ndccl

111

the

arn r-

ka111

ribal

un ii Annual

ak'a/C.lli

and

nnual

en ral

neral

crnbl , and a meetin g

h trad1ti nal famil

land-u

ar a) h Ider fi r the tcn1t r c ntainmg the Mt.

mrnu111t

event

attended rn I uded a [i ur-day gathcn ng of Key h

Milligan Mine.

h Id er and el ler in a traditi nal tcrnt r c.1t

at1on

i er and

huch1 Lake an I a tw -

da gath nng f Ke oh h lder and eld r at Beav r Lake.

3.3

omparative

naly

al1dat1on of ho

Fir t

ati n ' participated 111 ach ca e ccurTcd by trian gulation

i nfom1ation deri ed from

ach meth d logy ( ee figur

3.2 ). The e re ult

f

were th en

ubj ct to comparative analysi . Thi i meant to determ111 three thing . The fir t I the
effecti vene

f the policy for Fir t

ations parti ipation in each ca e. The

impact that the proclamation of the
ation ' participation.
effective11e

for

irst

ha

had

n p lie

effe ti cne

nd la t, what re ommendati n can be made t
ation ' parti ipati 11 in the

deve l pmcnt.

5

u1Tent

pr

cond i th
G r Fir t

in rea e polic
e

fi r mine

Proc?
Do u111 entation

ri angu la ti n
ng lnf rrn ati n
\Vithin
a

L iterature
R eviett

Interviews

altdati n f Fir t

ati n ' partic1pat1 n thr ugh tnangL1lat1 n

omparatt e anal i in thi

tud

t\;

LI

ithin ca

method of c mpan on.

he meth d

of parall l demon tratwn of th ory i u ed t determi ne p ]icy effec ti venes for each
ca

and th e meth d of nw cro-ca u al anafrs,s i u ed t detcm1111e the impact th at the

proclamation of th
The method

ha had on policy effectivene s for Fir t

[ parallel demonstration is u ed primarily for comparing ca e tudi c t a

theory to dem nstrate it ability to place order on th
19 0) .

ati n ' participati n.

evidence ( k cpol and

mer,

imilarl y, Bonnell ( 19 0) u e th e term '' i!IL1strati e" wh n mak ing compan on

between case , on th e ne hand, and th eory on th other. Therefi re, in thi
ca e of mine developm nt are c mpared t th e th e ry - a di
c n emin g what principle and obje tiv e a publi participati n pr
Within th

m th d

f ma ro-ca u. al analy. i ·, l\

mpl yed: "Meth d f Agr ment" r "Meth d f

9

ba i

tud the thr e

cd in c ti n __() -

LI

e

hoLlld achi v .

1nl ti

i ffi ren e". "M th d f

de ign
gr

arc

mcnt,,

tri

ith

tabli h th t a

t

th h p
and I

itiv

th t ar

a

ar

au

rful m th d fi r
r

111

tabli h1n g

f th

tw

lamat1

f

th d

"

ntra t ncgali vc

"

neg ti

a c, the

m th d , th

latter I

th e 111 re

iat1 n. th an th

au al a

G rm cr

cffi ti en

f th

'wa

d l

cl t m11 ne th e

rri tl\ Cl1C

firF1rt

iffcrcn c" \\ a
ha had

f th

11

P Ii

llJ

11

u

\ a tak n a th phcn 111 11 11 t be
n 1d red a a cau al ag nt in

ob n ed that th re

ntra t

111

k

p I and .

d int

th

I mpa

al1

11

,

t that th e

parll Cirnt i 11 .

pl ain d and th pr clamal1 on

hang ing thi

ph cn m 11 n. It

parti cip ati n c ffecti enc s between th e

a e ed und r th e fin e l ,,·elopm -., nt . 1. s srn1ent
111

iffi r 11

mm n

111

pt that in th

imilar in all r
b th ·1b ent.

plained - ha

).

h

pr

f

'Meth d

11

ph n mcna and
p \

mm n ph n m na t b

ct. a c mp ar d t

case

th e ca c th at we re

. Fr m thi it v a determin ed what e ffec t th e pr c lamatJ 11

had ha 1 n policy effecti ene

for

ir t

a

ati n ' paiiicipati n in th e

f th

pr cc

fi r min de el pment.

Policy rec mmendati n

w re aJTi ved at u ing th e a e mc11t

effectivene s for all case , combined with th chan ge in
A proclamation to increase the policy effecti v ne
th e

procc

for min e deve lopm ent.

60

ffecti vene

for Fir t

f p l1 cy

a a re ult of th e

ation ' parti cipati n in

hapt r
ur
1r t at1 n ' Part1 1patI n
111 111c cv I pmcnt :
a c D cnpt1 n

61

4.0 lntr du cti n
m nt

n tr nm ntal
1d ntif , r d1 t, and

r 111111

th

and th diffi ulti
h1 t r

r

ent p Ii

n Jud

aluat

nt i intr du

[i r mmc d ,cl

hcng
1th

r a 111111

I \\tth a [i

ith irn1 a t pr di ti n.

1atcd

[i r Fir t

pm nt 111

u

ca h ca

rm tn de, I prncnt 1 ubJ

t d terrn111 p lie

rri ti

r mine d

British

elopment

olurnbia it is

t d t the anal

Ir

cl pment,
1r t

u

I

n

r
[

a re 1c
Th

hapter

hi h pr

id

e

alt n ' part1 ipati n

1 framcw rk ( igurc 2.2)

ne .

4.1 Min D ve lopm ent and
Ith ugh mine d

cd b a di

lurnbia and 111 lud

ntJ h

ha1 t r

n nv1r nm ntal impact

h1 i fi II

nt xtual ba kgr und 1nfi 111iat1 n. In the G 11 v in g ch pter,
fr m ca h a

al. In th1

ati n ' parti ipat1 n in the •

n 1ntr du t1 n

d t

LI

nv1r nmcntal 1mpa t

ct

a

f

th

r mm d

nviro nm ntal

m nt

oft n charact n7 d a a matter of interim land u e in

ubject to an environmental as e ment to reduce the n k

unfavorable environrn ntal impacts.

f

mine in thi conte t, is a place where there i a

di turbance to the ground by mechanical mean to exp lore for or to e tract c al min ral
bearing ub tance , placer mineral , r ck lime tone, earth clay, and or gravel (Briti h
olumbia Mine Act, 1997).

ploration or

traction includ

a tivitic

u ha dnll111 g,.

excavatio n, process ing, concentrating, wa le di po al of ores, and reclamati n ( cngupta,
1993). Mar h II (1982) divide mine development into thr e broad stage that inv Ive th
foll w in g a ti ities : pr -produ lion , production,
produ !1011 tage 1 when m

and po t-produ 11011.

Th

pre

t f the capi tal o ti in ULT d, [i r c, ral r ·1 on : the tim e

6

f th d p

I g fr m di

mu t

aluat all I t ntial

th

h produ twn tag

\\,

11 c1

hang

ubj

t t

tr

n rn

f the min

ar · th

I I n111n g

f Ir du ti n· and planning fi r r

lamati n

p rat1 n I p ri d.

ur in the gra I , quantit

han g

plan ar adj u t d a
a

I erati n

an tal c

rfi m1 d.

ur mu t b

nd

it t

he re 1 rn 111 cl an I th

111111 c

fth

re,

in t hn I g , man g rn nt, an I mark et
11

ti n and

al natur

an I ph

11 . Th e

n Ii t1

11trat1 n and th en tra n p rt d fi r furth r pr

re it clf 1
ing by

C

m lting an r finm g.
h p o.·t-produ ct,011 tag 111
f t mp rar

In ca c

th

Ur

111 llrn

clue t

I\

hut d \\11

nd re lamat1

11

f th

ItC.

lllll1

mark et nu tu ati n ) th e

ite

mainta111 ed and m nit re I until rn arket c nd1t1 n arc fav rabl c fi r re urnin g produ ct1 n.

Ir the ore i

hau t d pem1an ent clo ure and itc cleanup cc ur , rcc lamati n i

out and n ironrn ental m nit rin g c ntinu e t en ure th at all p

arn cl

ibl c effect ha c be n

m1t1 gated . Mit1 gat1 n pl annrn g and land r clarn ati on arc th e 111 a111 fi cu

r th e p t-

pr ducti n tag .
nvironmental impact
created by th

r suiting from these stage

rel a e of pollutant

rn vary mg qu antiti e

en ir nm ent, which may cau e immedi ate and

ibl

simplified fonn of the interaction betwee n th

vanou

envJr nm ent i illu trated in
f minin g ha
1111pa

111

reased

igure 4. 1.

o r mrn e de clopm ent arc

change

int

th e

urround ing

to th e land ape.

minin g ph a e

and th e

!though recogniti n of en ir nrn ental imp a t

ignificantl y in the la t tw

decade , th e ability to prcd1 t

ntinu e to be con train ed by e eral fa t r (M ar hall , 19 _ ancl

199 ):

6_

rap~r,

'T1
{JQ

C:
...,
(1)

.+:,.
~

.......

::;
,....

...,

(0

~
()

,....

0
::;

er
(0
,....
~

(0
(0

::;

INFlUENCINO FACTORS :

ECOSYSTEM PnOPERTIES

· ••h1ctlon melhod1
- loc1llon
• lopography
• cllm1le
. physical . chemic ii
redlologlcal neture ol
ore end gengue mlner•ls
- s,o,llt lor1 c onl r ol

· n•lu1e ol ecosystems end
se ns itiv it y to mlnlnO .ctlvity
111d 1cc omp1nylng
effluents

.

3

::;
::;

(JO

EHV1RONMEHTAl IMPACT ·

t:1

::r
~

U'l
(0
U'l

°'
~

~

0.

,....

::r
(0

""ASES OF MtHINO :

· .. ptoutlon
• de,,.lopmenl
· .. ,recllon
· benellclallon
· further procNaJng
· .t>andonmenl
· reclamallon

.
.

'

EFFECTS

--

(a J local
· 1utl1ce dt1turbanc:•
· d usl
• heal
• no ise
• ~lb11llon
• 1lr blul

(0

::;

8
.<..,

0

(0

::;
,....

~

~

U'l

::r
C)

--

,

\0

00

t0
.._,,.

TYPE OF MINES

- melalllc
· non -mel1lllc
· ene1gy -rel1I~

(bl l ocel. reg ional , global
· eu lld r, lf lue11te
· liq uid c lllir e11I ,
· ga,o o u, e lll uenlt
• r1d lo1cllvfty

'

-

-

· qullll1tl,,. changH In
ecMysletll chareclerltlkl
at lo<:el. te<jlon•I. end
gtobalacale

•

natur

m111111g 111 th d

f

pr d1 tmg th

•

p

di

Th

!Jmat 'lt a h mine 1tc I

di per al

u d

an furth r

nd h ITII

in th ph

ati n and t I graph

m111e

hara t n ti

fp llutant, an I th

p

pr 1p1tat1 n

•

fth u111qu n

au

u111qu

h min

l1ffcrcnt.

anable

mp und the difficultic

,1

er

it

u ha, tr ng wi nd and
in the I rcdi t1 n

f

fp llutant; and

uITcnt und r tand111g
m altcrat1 n
po ibl effe t

r h \\ th
n a I

c 111b1nati n f rel a cd p llutant

au

al, r gi nal and gl bal le cl - a well a the

n I ng t rm human and cc

y tcm health - 1 111 it 111fan

t ith landing th e e pr dictivc difficultie , envir nmental impact from mine
de

lopment are cla s1fi d a prunwy

ondarv, and t rtwrr ( cngupta, 19 3 ).

Pnmary Impact

The most common primary impacts of mining are air polluti n,
and urface di turbances.
p llutan ts.

M

ir polluti n I caused by liquid , oli L r ga cou pha

t common are em, 1 n fr m sme lter that r I a c air-b rn

whi ch affect plant and animal health . In
re-c nccntrat

ater polluti n,

riti h

ff- ile for meltin g ( I lart, 199 ).

65

lumbia m st metal mm

f

metal ,
hip th ir

Wat r p lluti n

n

111111111g

p r ti n u

larg

u uall

the main v

mm nl

ur

t r

[

u r i f th r i a r l a
quantitic

f

during th

f \,vat r during th

tran p 11

f rud

r

nt·1m1nant ar tnn p 11 It th re

p lluti n ma
tailing

al

pr <lu

and gr und ho k. Th

n I

di turban

111 veg talion, wildlifi,
Ith ugh primar

u h a

th

ntaminati n

a

lurr

m diurn) 1111ncral ·

al

f \: a tc luffy tailing ).

1ving cnvir nm nt ,a ,t run f. Water

dire t rem

al

I I turbancc cau c man

11 qu lit , and the

impact can

au

e au c
at r

a tc r

pr duc1ng a id dramag and ntraincd m tal that arc r I a cd t th
ur a

hang

ater

ur ,vh n ulphidc-l caring m,ncral ar pre cnt 111

n ,r nm nt.

a

at r.

m1111ng pr

ntaminant tran I 11 (I !art,

tran p rt thr ugh th "ben fi at1 n" J r c , and th di
uall ,

ntamin tcd

hang

I

f

ii

k

r

re Cl\ 111g

and

ub- oils

primary imp act

u h

ual land cap ( cngupta, 1993).
in the cc

y tern, many

r the

impact can b reduced or elirnrnated thr ugh 1111t1gat1on mea urc , provided they arc
addre

d during planning and pre-production tage of the mine dcvcl prnent.

vcn i r

the mitigation of primary impact i addre ed and planned for, a mining opcrati n \, ill
re ult in degradation that i vi ible and immediate. That i to say, there i

till a maj r

impact.

Se one/my and T, rtiary Impact

econdary and te11iary impact are 1mpa t that re ult fr m primar 1mpa
e amp le, if the

ii n a site i disturbed (primary impact) and rode , dep

iting

. For
ii in a

n arby trcam, fish habitat i affected ( c ndary impa t) . The impa t d fi h habitat ma

66

.

----.._

... ..... _. . . '. . . ,

, ' ........ _.......... . . ... ..__

'-, .
.....

, •

.......................

, .·.·. .::.·. .. .
;,

,. . . ..
~

'-_..,,

r--...,--t--~~~~~~--~

/

,.. ....
.

•,.
...

---~-- . ..
.

. ..

..

..

..

. •:-:...·:·.<: ::·.

Figure 4.2 The "Shadow Effect" for mining (Marshall, 1982)

67

th 11 affi t fi h

u lati 11

11th

fihfirfi

d p nd ent

vi ible n r imm dial and

uld th n

h1 h

1gur 4.2

Mar hall

u ual I

hard r t

pr di t than pnmar
I rn pa

ndat

2 . Th

t

nd far be

'

h1 ghl

ffi t,, fa

had

n I th 1111 ne it and 'ire

h

tent t

hi h

mnu 11 cc.I b

th

am unt

llllJ

ar

re n t

and t

n titut \\ hat I t rm d th

mm nl

m111e

n hr) and t 1i 1'Ir

m nt.

r rnpl

d

h

1mpa t)

1iiar

pl

ffi t

111111

gen rat

111fra tru tur

(r ad , rail , h u in g, \\ al r t rag , p v er I lant , and oth r fac iliti c ) that i de cl p d
fi r th

1th ugh th

mm

' had \\

ffec t" pr \ 1d

r u h d1ffi ult1

a e

111111

cau e

ngupt a, I 993 ).

impac t

olumbia, mrn c d \' I pm ent and it a

d und r th En\'ironm ental Asse sment A I (

Em ·,ronm ,1110/ A

f th

111 I reu1 ti n, g \ mm nt r gul at1 n ha e changed t rnakc perat r

m re r p n ibl fi r cc n Jar an It rll ar
riti h

pt I illu trati n

Ii ffi ult t pr di t.

ndar and t rti ar imp ac t , th b undari c ·1r

f

In

an a

e 'm en/ Act (

).

ciat d imp ac t arc pr cntl y

) and if tri ggered, the 'cmaclwn

]though th e

en ir nm ental deci i n-makin g 111 Bnti h

lumbia, th r

1

I

th e cu1Tent approa h fi r
a hi st ry

legi lation , dating from 1976, that att mpts to balance mine d

f p li ci

and

cl pm nt and th eir

a ociated environm ntal impact .

4.1.1 Hi tory o f E nv iro nm ental

se

m ent a nd M in e Deve lo pm e nt

The first official government reviews fi r min devel pment in Briti h
date from March 1976, wh en th e pr vincial

abinct'

n ir nm nt and Land

mmitl c publi hcd th e Guide/in ' S fo r 'oal l e1· ,fopm ent, in titutin g a
rev iew pr cc

for c al mining d v I pm cnt . F 11 \ in g th

6

lumb1 a

rnprchcns1\ c

initial gu1 lclin c , in 1979

r n rg

th Mini lr

M inc and

and

ur

In 19 4 the t\

tilul d a 1 arall 1 m la] mine

111

ini tr

dur

for

111

and

_, n 1r nm cnt and

and

r

ncrg

r · n ir nm ent and and Park

19 2).

I tu/ M111

ppro ,• ti of

P tr 1 um

ur

k min ral mining p rali n . It publi h d th Pr

fi r hard r
h!Cllll/17

etr l um R

D ,, lopn1 111

tr

rnbin d b th

wer

r v 1 \v pr

1111

1111111 tte t fi m1 th e /111 1 ,,,c/op111 11 1 Rev1 ,1· Pro ess

h1ch \ a

th pr

lamat, n f th

ugu t

fth

1111

,·elopm 111 Ass ss111 c111 JI ct in

!111 f

and impl m nt d a

mprchen i

manag ment with

n 1111

a eptabl

a t pr

,, lopm 111 A · sme11t ; / t

and t

hrn call

du r

pr

t

und 1111 nrng \ nture

f r

n l1 h

and

g al

th at pr rn ted

ul I int grate envir nm ental

that
a

urc

r I c I . Th

id e a re i

de\ cl pm nt. Th,

n rg , Mm e and Petr leum R

tabli heel by

fa il itatc cnvir nm entall y
I um b I a (Mini try

f

ini try f n 1r nrn ent Land and Park ,

199-) .
Ithou gh th e M111 e Developm ent A ses. me11t Act pr m tcd th e objec ti ve

en ironmentall
proc ss wer

acceptabl e and technical!
recogni zed.

or

und mming

xampl e,

entur , weakn

f

e 111 th e

oehl ( 1993 ), found th at alth ugh publi c

participation was mandatory in the M111 e Developm nt Asse ·nz ent Act. it fa iled to
pr vid e a publi c g ve rnm ental co n ultati on p !icy, th ereby leav in g th e de ign of publ ic
parti cipati n programs for indi vidual pr jec t to th

di crcti on o f th e goven1m ent and

proj ect pr p nent .

D ve/opm nt As ·e

imil ar weakn e cs in th e Min

identifi ed in th e E nergy Pro)

t R

vi iv Pro

111

nl Act \\

and th !'vfc~jor Pro) t Rev1e1 1· Proce: ._

whi h at th at tim e ombined with th e A1in ' 1 evelo1111e11t As e ,_·111 c11 r A t
ba i fi r cnvir nmental a c mcnt in Briti h

69

r

lumbia .

h re ult

f thi

form the
re

gnit1 on

th pr p

1 g1 lat d

tngl

'1

l fth Em iro11111 ntal

111 th

v\

n ir nm nt,

eakn

e

r

and

and Park

I11 add It I n t d \ I pm 11 t

r a I LI b I1

(Mini tr

f

P tr I um R

halleng

ur

,1

I

da

a pr p

he

).

I pm nt, that

fd

fi r al I t p

e

ting n 1r 11111 ntal a e m nt Ir
ini tr

and

n rg , Mine

f

and

2 .

r integrating

1r t

raced the

d \\ith th r land u

nd Park and M 1111

f ncrg ,
which

gni;e I that

ig111 fi ant fa t r in the al I all n r re

ne ded t b in

cha! I ngc, th

the

ati n ' I arti ipat1 n. The g v mmcnt re

ab riginal right and mt re t

th1

('/ (

ment pr

11 1r nm ntal a

uld tri

Ill

I}/

111t re t (

ini try

urce and

r n ir nmcnt, Land

inc and Petr leu111 Re

urcc , 1992). In re p n ct

a procla1111cd

0, 19)5, included

n Jun

pecific

4.1.2 Fir t ation ' Participati n: T h Min e Developm ent As ·es. m e11t Act a nd
the E n viro11111 e11tal A e m e11t Act

The Mine D vefopment A s

nz nl Act provided

pp rtunitie fi r Fir t

con ultation at all tage of the Mine De, elopment A e ment Proc
con ultation at the pre-application stage, dunng the review

at1 n '

Thi con i tcd of

ran applicati n, and dunng

an inquiry by an a ses ment panel ( ee Figure 4.3) .
At th pre-appli ati n and application pha e Fir t

ati n

w

re pr

idcd \\ ith the ·

pportunity t view the project pr spectus (d cu111ent of intent), and application, and
were a ked to ubmit
fi mrnlatc term

rnment on the project.

omment fr 111 th pro p tu w re u

r refer n e fi r the appli ati n.

u ed by the Management

mmittee l ma! ere

70

111ment from the appli at1 n \\ re

mmcndati n t the Mini t r . The

Pre.application
• prospectuJ reviewed by the public.,
aboriginal groups, local governments and
government agencies

• comment.a wed to set temu of reference
for an application

I
Application
.J

• reviewed by the public, aboriginal groups, t----"'lf~,-----------,
local govcmmcno and government
agencies

l
Ministers' Decision
Minister of Energy, Mines
and Petroleum Resources
and Min1Ster of Environment,
Lands and Parks

I

I

Assessment

Accept
Application

Panel

I

I

I

Modify
Application

Reject
Application

l

I
Mine
Development
Certificate

I
Permits, Licences
and Approvals

I
Mine Operation

Figure 4.3 Flowchart outlining Mine Development Assessment process (Mm1 try of
Energy, Mines and Petroleum Resources and Ministry of Environment, Land and
Parks, 1992)

71

nt t

urag

n

ar b th Manag m nt

n idcr d n

but ar d1
\,\ a

11 \\-Ith

ir t

th

f111 e I

n ultat1 n

ti 11

at1 n thr ugh

pr J

(M1n1 tr

arl

. In th

11lll11 tt

pr -app li ati n pha

rn th

v

nt that th M1n1 t
G r rurth r

m nt pan l

ithin th

t,

11 ' pa1i 1 ipat1

n

rrn al r i11 fi 11Tl lh anng

t-b -pr J ct ba i .

h 11

appl1 ati n I ha

n ultati n durin g th

\' lopm 111 A ses 111 111

n a pr J

n 1bl

that it

ati n

n ra il , alth ugh publ1 and Fir t

r t1 n r 111 natur .

mandat r

ir t

an inde1 end nt a

ppli at1 n

pr J
n ultall

ith

pr VI I n ri r addi ti nal

and in Jud

th

n ult

at1

ct d t 1111111 d publi

hi v a pr 111 t

de 1gn fi r 111v I cm nt I r gra m th at

r 11\ 1r nm nt , La nd and Park and Mini tr

11

and Fir t
th

gr un I

ere tail red t

r En rgy,

each

me and

P trol eurn R
Th
u e thr

di ffer fr rn th

A

1111e D ew!lopm ent As · ssm 111 A ·/ 111 th at th e

tage : th App/1 atw n. the Pro1ecl R 'f)Orl . and th e Pu hli c I f earuzg ( ec 1gure

4.4 ). Th e

built up n th e pro 1 i n fi r Fir t

D velopm ent As

m en!

ati n ' c n ult at1 n in th e Af111 e

ct in everal way ( n ir nm ntal

First, in ection 9.2d th e Act invite Fir t

ation t be member

The Proj ect

th E ecuti e

omm1ttee r establi bed b

cs mcnt

r a Project

ffi cc 199 ).
mmrttcc .

irector fi r th e pr ject and

composed of members from pro vincial agencic , federal departm ent , muni ip al
regional di tricts in vicinity of the proj ect, First
neighb rin g juri dicti n .
ommittee i
r

ation , and an y

d cribedin ectionlOofthe

r Briti h

ctthcpuq

ffi cc, 1995 ).

7~

olumbi a' ·

c ofth Project

to pr vidc t hnical and po li y advice, p rfi 1111 anal

mm endatt n c n emin g th e a c ment

r

[ th e pr j e t ( n 1r nm ental

and make
c ment

APPLICATION

Order

Ofaff PTojeci
Report Speclflcot1onS

Flrst Natloru

Speclflco11ons Review Period

Input

(15 - 30 Days)

PROJEcr REPORT

Nottflcat1on

First Nat1ons Consutaflon

a PTooonent
0 EA Office

PTojeci Report Review Penod
......-----~

(45 • 60 Dovll

Reject
Project

Mlnlst9fS'
Decision

Ofaff Publk:: Heorlng
Terms of Reference

Arst Nanons
N

__ __ 1---First Not1onS

.___

Input
....:;._

PTo)ect Approval
Certfficote

_,

Terms of Reference Review Period
(30 • 60 Davi)

PUBLIC HEARING

Hearing Report

Reject
Project

Cabinet

Declslon

Figure 4.4 Flowchart outlining First Nations' input into the Envir nmental
Process ( nvironmental Assessment ffice, 1995)

7

e m nt

nd, 111
tu di

th

t and rn an

mmurnti

.

h

f rnit1gat111g pr jc t i1111 a t
t

al

ha

th

nd1ti n and t 1111 that pr vid
right and

mrnu111t1

a t, th
at1
I

111 th

11

,·elopm 111 A

Fir t
pr J

1
j

at1

11

pr J

l Jr p

nent i r quir d t

1d nti f ab riginal right , an in fring m nt f th

u nd rt k
pr j

t th

f th

t1 n 22 and 2

( nv1r nm ntal

t pr \ 1d

pr t

t1 n and m nit nng
ffi e, I

e m nt

additi nal pr VI I 11 be

ha\

t al I three tagc
I 11 fi 1111 a ti

a

nd th

r gi try ( ection 61

f the

ct).

I

C

pr

fthcpr ce

n, and th1

f

n th

5

pr -appli ati 11 and appli all n pha e a
. ment Act.

f C mmcnt b

Fir t

rib

1111

Ill

the pr j cct

1r t

Prior to the

mmittcc and
f a

II applicati n , c mment , rec mmen lati n ,

ation to oc ur ( n ironmcntal

e ment

vie in g and

fficc,1995) .

tag

pr ponent

arc encouraged to u

part1c1pation techniques for con ultati n

ith Fir t

ation and arc rcquired to ubm1t an

outline for

ir t

ppltcatton

the

fac1!1tat d thr ugh the u

and de i ion mu t be placed in th rcg1 tr in a timely mann r that allo
comm nt b th

at1 n

rti fi ati n,

e t bli h, up n l r j

p tcntial t

fi r th

n u h right and "' ir t

pro-a tivc

ations' con ultation, and for information di tributi n, that i e aluated

and monitor d throughout the a e ment proce

by the Pr ject

mm1ttec. In

ubmittin g a project applicati n, at the fir t tage the pr poncnt mu t 111 ludc th
1dentJ fied by the consultation program and provide re p n e
c n ultation program 1s

ntinued thr ugh the applicati n r

uc

to the e i uc . The ·

iew t

addr

p tcntial

effects f th pr ject.
If the pr j ct

re~ n-ed to

nd

mmiltce (with Fir t

ati n' repr

ntati e) d

74

tag , th

Project Rep rt, the Pr JC t

clop rep rt I e 1fi ·1t1on an I 1m 1tc ·

ir t

ati n

m111uniti

t

ma b r qu1r d t 111 Iud

111

unng th r
ith

ir t

an
and

11\ Jr 11111

a ur

pr p

n ultati n

d fi r fu11h r

ati n t

re

ut landing

h r th

mcnt

nd1t1 n fi r the h anng

p i [I mca urc fi r

ir t

at1 n arc 111 It d t

nv1r nm ntal

Ill

ati n

c mm ntary fi rmat, aid d b dr

Ill

n ultati n

ndu

11

re

ther hand, pr

rde

The

t pr

ide

Fir t

with reprc entati 11

requirement

f th

pr p ne11t to u11de11akc

impact on

ir t

atron ' nght and c mmurnt1

atio11

11 I

t

)

).

la k d in it

c that c i tc I were limited t a

rctr n'lr), pr \I I n fi r in fi rm a I r [i m1al hcan ng .

, n th

ln the following

ti n .

mm 11 t n the term

ffi CC, l

11 t

pai1i ipati n. Th

h

require , and re pond to Fir t

ir t

rai ed during the ap1 Ii ati

ard , Fir t

1111 1 ,, lopm nt A

In umm r , th

ith

crth pr JC t t th third tag , a publi h aring b

1111

ntal

UC

pr p n nt

t r p rt th

pr J

t r p 11 th pr p n nt i rcq uir d t

I V.

pha . In a

mpi Iing th

111111 nt. In

pc die pr

tudie

fi r 1r t

at1on ' part1 1pati 11 .

n the Project
t

mmittcc, the

e aluat

and mitigate pr jcct

and a pr ce

de ig11 that monit r ,

ation ' participation at all tage

f the pr ce .

ection , the Mt. Milligan, Kerne , and Huckleberry 111111c

de elopment are described . The case detail includ a general \ er rew f mine location
and de cription , urrounding re ource alue and land u c . Then foll \\ a de cription of
the

procc s applied, potential cnvir nmental impacts and the nature of Fir t

participation in the

pr ce

fi r ea h mine de clopment.

75

all

n '

4.2 Mt. Milli an Min Pr j ct
4.2.1 Pr j ct L cation and D

Th Mt.
11

illigan pr J

t1

ription

1tuat d n

r v\ n land and i I at I a ppr

1ih

f

nn

rg

and 9 km 'vvC t

lumbia

igur 4 .

he

t.

d1 mantl , r

t 1111

1mat

al i t d ign,

illigan pr j

la1111 and , entuall at and n, an pen pit

and pr
appr

f Ma k nzic in n rth

fi urt

n

f

re per da . The

ar . Th pr J t v u Id pr

4.2.2 Re ourc

ntral

n ti h

n tru t,

rate,

pp r g ld mine that pr lu c
pc t d life

f thi

1d 6 0 j b fi r t

mine 1

year during

and La nd

Th Mt. Milligan proJ ct area lie w1th1n the Rarnb w
an important fi h re ruitm nt tributary fi r th
fi h pe 1c 1nd1g nou t the

and grizzly bear ar

reek v at r hcd,

ation Ri er y tern.

o date, twenty-one

am1vore

u h a bla k bear

not comm n to the project area but other pccie

wolve , and fi x are pre ent.

hi h i

ation River y tern ha e been identified . Wildlife pec1c

pre ent include ungulate such a rn o e and mule deer.

nt, a

km

j b during pcrat1 n.

c n tru ti n and

pr

i mat

mall fur-bearer

uch a lyn ,

uch a marten, mink, and beaver arc

ell a porcup111e . Veg talion in the higher sub-alpine elevation

r th

project area con ists of pruce and fir whi le at l wer elevati n there arc pruce, fir, and .
lodgc-p le pine.

rchae logical urvey indicate a low p tential

f hcri tag re

urce !or

th project area.
he pr je t area in th pa t ha b n u d b

utfitter

harv t and i c n idercd t have a high alu fi r trapping and hunt111 g.

76

r r guided hunt r
th th

Williston
Lake

MT. MILLIGAN
PROJECT

..
.
·······--···

~ ,' ,
..
~

./

Stuart ~- · •·• ,,
Lake

o

10

20

30

40

50 KILOMETRES

igure 4.5 Mt. Milligan Mine Development Project Location

77

k zd lt and M I d

a

r r at1 n. h ar a h
a

alu

[i r agri

ln

n v 1r nm ntal

cbnnr

nng

r

utlinin g th

mm1ttee. In

nti nent

pr cc

Id

Id

report fi r a Min e
th Mine D
In
proclaimed.

b

, Pi a er
min g th

lopm ent

that time th

th e

(pr -

Ill

m In c. a quir d

ntrolling har

Mt. Milli gan pr jec t. In

pril

f 1991 '

om e Jn c.) ubm1tt d a" tagc ne"

Proc
olumbi a 1L11e De, elopm e11t !1s.sessnz nt 11 ct wa
1

Mini ter of Energy Min e , and Petr leum Re ource

ubrnis ions for th e Mt. Milli gan proj ect fil e I und er th e Min

evelopment Review Proce
Developm ent As

t t

pcctu

ertifi cate [i r th e Mt. Milli gan pr jec t and o initi ated

ugu t of I 9 1 th e Briti h

accepted previous

111g

pnmary pr p nent and c ntinu ed th e

rp . (n \\ a ub 1di ar o r Pi a er

nt Re ie

t

il and a h rt gr

rp rat1 n ubm ittc I a pr

t. Milli gan pr~

ptemb r r 1
rp . th reb

Id

r c kin g r gul at r appr \ al fir th

ntincntal

r

m nt Pr c

nt1n ntal

90,

appli ati n pr p al)

ultur duet p

l w \ alu fi r r r ati n.

n and It ha a m d rat

4.2.

th ar a fi r hunti ng fi hing b rry pi king and

and u

a an acceptabl e Min e Proj ct Appli cati on fi r th

fw e

sment Act.

In N vemb er of I 992, owner hip of th e Mt. Milli gan De cl pmcnt hanged fro m
ntin enta]

Id

qJ . t

e11ifi ate und er th e Min
pr

for

Pia er D me Inc., wh

rec i ed a Mine

Develop1J1 e11t !1ssess1J1 e111 Act in

o cmb r or 1993. Th

ir t Nation ' paiiicipati n in th Mt. Milli gan pr j

7

\ el pm nt

t wa therefo r guid ed

b

th

Min

Pr

I c1 • /op111 111

imp

fr 111 th

k dra1nag

t.
, and fi

mrnilt

el Im nt R

111a11ag ment

fr m 111111

[ fi h nc

and aquati

id ntificd by th e Min

u cd

mg 1te111 . Mitigat1 n

re

bi -a

ur

G II

umu la ti 11 in aq uati

ar th

[

y tern

and air em 1 1 n r ulting fr m th e

ak a1d l1

un ii and the M Le d ake

4.2.4 Fir t

n th

ati n band identified a

pr J tar a a traditi nal t rrit n
ribal

Mu,

illigan pr J t \ r

m r ur

tn g n rati n fa ilit . Fir t

kani

mpl t d und r th

and

mntAt.

P t nti

a 1d r

initial l

and,

!aiming th

Mt. Milligan

h arc a part f the 'arner-

and .

ation ' Participati n

tag

n as

Fir t

ation

con ultall n proce

Proce

repre entati e . The

rnent (applicati n), Pia er
that wa

me Inc. ondu ted a

a 1 ted by Mine

proces G r Fir t

e elopmcnt R view

ati n ' participat1

f the

follow111g :

•

February 1990

the project pro pectu

di tribut d to the

arner- ekani Tribal

wa

ubmitted t

the g

en1ment and

ouncil along with a letter a king fi r their

commen ts - and a meeting if required .

•

ugu t 1990
Band

The

re eived c p1

arricr- ekan i Tribal

ouncil,

of the

re 1ew of th

v rnment'

ak'aLdli, and M L od Lak
pr pe tu . They were

a kcd G r th eir omment and giv nan opp rtunit to me t and di

79

u

the rep rt.

•

nd J nuar

mb r, 1

mb r nd

ntattvc met \,\,1th th
and M L d

arr1cr

and in th ir

ak

kani

mmu111t1e

n 1111

pp r1uniti e , and a

c pla111mg

mpl

m 11t

t

tud that the

appli ati 11 r p 1i. W rk h p w r al
Ip rtu111t1

1-

ntin ntal

nbal

un il and th

ak'a1d li

di

pr J ct d tail , c

n 1111

thr ugh

[ I

pril

u

d

and r qu

held v ithin _. ir t

r th

nc

tag

mrnunitic ,

ati n

nt plan an I p tcntial

the pr Jc t I

impa t .

•

•

p 11 h LI

[,

an I v ere 111 itcd .

II

- Pia er

me ln . h Id

Ma k n1i

and Prtn

rg

t

1nfi rrnatJ 11

ubm I tt d

1r t

at, 11

librarie

e I cal t \ n pn r t the pen hou c , fi r public a cc.

Ma

fth

Lage

1 91

and for r

I

1e

ir t

hich

for rev,

ne (applicati n) rep rt

ati 11

t. .lam

a al

'

pla cd Ill th

a rclca cd and cnt t f Ir t

publ1

ati n

and c mment.

ue of c ncem rai ed by Fir t

ation

and dunng the

Milligan project mcluded: conom1 opp rtuniti
the future,

Ill

F rt

a11dcrh

pnl 1

A pr

e s for th

, uncertainty of acid rock drainag

t
111

ver-hunting and poaching due t increa ed acce , trap-line compcn ati n,

and soc10-cc n m1c 1mpa t . Re oluti n

v ere

pre entcd b

the pr ponent and r

overnment and were carried forward and included a c ndit1011 fi r appro al of a Min
ev I pmcnt
n
erti ficatc .

erti ficate.
ember 3, 199 , th e Mt. Milligan pr j
he Mini tcr

f

nergy, Mine , and

n urr nee f th Mini ter f n 1ronm nt,

t wa granted
trolcum Re

Mine

eve] pm nt

ur

, \\ 1th the

an I , and Park , d tcrmincd - la d n the

0

full t hni al r

nd

ubli and b ri ginal

en 1r nm nt al 1mpa t

ad\ r

uld b

n ultati n pr gram - that th p tcntial
tin g J r gram

m nag d thr ugh

an I

l gi lat1 11 .
Ith ugh

Mt. Milli gan pr j
n m 1 rC'l
e

Ill

ppr

al

nt

la

r

t, th

m pan
n pr

11

ommittc
ert1 fi ate.

11\

mid

c.l

2 t p tp nc

n tru ti n fi r

Min

cl prn ent

rt1 fi at

a Pr JCC t

r th

rtcd th

lll C

C\ 1 pmcnt

<lat ' ha

n t pr

vem bcr

I9

rti fi ate II r th

I pm nt

e

lam ti 11

he pr J ct,

c rtifi cate \ a r n v., ed n

4.3 Km

In . v a grant cJ a M in c

111

In

5 th

1

, 11 r a I eri d

cede I but 1t

r fi

d

cl rm ent

year .

Min Proj ct

4.3.1 Proj c t Location and D e c ripti o n

Th e K me

uth Proje ti

00km north we t of Ma k nt:: 1e and
Regional

itu ated on

ro \ n land and is located appro im ately

70 km

e t

i tri ct (Fig ur 4.6). The Kern e

t. J hn in th e Peace Ri er

f Fo rt

outh proj ec t pro po al i t de ign, co n tru t,

operate, di mantle reclaim , and eventuall y abandon an open pit copp er/gold min

th at

produces and proce e 40,000 tonne p r day of ore, fo r fiftee n year . The pr j ect v\O ul d
pro id c 500 job during th e two year co n truct ion pha c and 350 job

durin g mine

op rat1 n .

4.3.2 R so urce and Land U

Th e I cmess proj c t area i
p c1

rec gni zed a

ha 1ng num cr u

in th e nearby Finlay River in Jud rainb w tr ut,

II

r our e . F1 h

ard n har, m o untai n

Chen~
i
Boke r

f

-~ECT

Stronsoy

Wore

(Post Producer)

• ALBERTA

Fort St.
John
Prince

~

Oeot'9-•

KEMESS SOUTH
~
PROJECT

~°

BRITI SH
COLU MBIA

~#
I
I

U.S.A.

I

Sloorw

~/

\

LEGEND
High way

..

-+--+-

•

Industrial Rood
Railway
0

992 8 C. Rail Extension

50

100
km

Proposed Connector Rood
Operating Mine
Mine Development Project

igure 4 .6 Kem ess Mine Developm ent Proj ect Location

82

150

hit fi h

r ti gra ling and burb t. Wi ldli fi

111

lf,

fur-b arer

arrn

and r d fi

nl. Rcg1

reg1 n ar c mp
hit

r th

f n rth rn r g1 n

b tt Ill

11 I t

d

[d

pr

r d traJ p r

lllC

r \ h1tc

J rimaril
idu u

heath r, h rb , m

hrub

ea

yn ,

J ruce and

area har e t mall

th

Ill

g tali

I.

h r

th

ub-alpin

I

111 r

fir.

he

ill

alp111 .

ar a

1n th

11

Ii mate

in luding birch and

and IL h n d mmate th

indicat that heritage p tent1al 1
h pr J

re

fi h r , m rtin, 111111k, and

u h a

hara t ri ti
allc

pr

u h

nt in Iude ungulat

u h a grizt l b ar, black b ar,

u and m untain g at .
ar al

pr

p

ub-al pin

hile red and

r hac I g

ur ey

I ~

e

t area in the pa t ha been u d b

utfitter fi r guided hunter harve t

and i c n id r d t hav a high aluc fi r trapping and hunting.
for agn ulture, due to climate and p

he area ha a low aluc
fi r utd

r recrcati n

uth gold/ opper pr ject wa

nd r

urce Inc. (40o/o

nd r

r oil , but ha a high alu

and opp rtunitie for tream and lake fi hing.

4.3.3 Environmental A se

ment Proce

In 1992 the proponent of the K mess
Re ource Ltd. (60°/o owner) and
being th

t. Philip Re

perat r/manager. In March of that year the pr poncnt

app lication proposal outlining the K m s

uth project t

M111

Kerne s

outh pr ject was ubmitt d by th

/J cvelopm 11/ Ass s n1 11! Act a it e

an pen pit min .

ubmitt d a pr -

the Mrne D \'el pmcnt

Asse ment Pr cess. In March of l 94 an appli ati n fi r a mined
fi r th

ner) with

I pment c rtificat

pr p nent and wa

led the I 0,0 0 l nn

per da

ubjc t t

the

thrc h I I for

n Jun
pr

the

' 1

nt1 h

Iurn bia Envu' 11 m 11 ta! A

laim d, r pla ing the Min

n appli

m nt Pr

ti n that , a und rg 111g a r

an app I 1 ti n [i r a pr j

t appr

al

m nt Pr

D'

J evelop111 111 As s. m 111

111

t a

rti fi at
ubm1

pm nt R

n, the Kerne

pting a pr j

und r the t I kn , n a "a

I r JC

t r p 11 fi r r

1c " The c

mm1ttc

a

a c Jt d a

nt1nuc the rev, \\ und r th

ct and

pr

1dc rec mm ndati n t

1r t r f th

c ment

fficc, up n

ln
hare

ugu t of 199 , R yal

f b th

proponent
Keme

n 1r nm nl 'll

f th

ndor Re

Pr je t

urcc

Inc . and Philip

ting

mmitt e t
the

ccut1

mplcti n.

ak Mine Inc . pur ha cd all th

outh Min

Kem

th

cpl d fi r

a

'l

1cv.

Mm

a

tr quir d that

h

, b c nt1nu d and c

l 1111 Ill

r

und r th

JC\\

t

111 17 {

Re

u I and ut landing

urce

e clopment pr Ject.

n

Inc., becoming the
pn I 11, 1996 the

outh ProJect rece1 ed a mine de elopment cet11fi ate from the Briti h olumbia

o emm nt, ince th Project

ommittee had concluded that Fir t

participation conducted under the Mine
proce , had fulfilled the requirem nt
The

A proce

for Fir t

ev lopment
f the

ation and publ,
t and under the

ct.

ation ' pa11icipat1on 111

riti h

lumbia for th

outh pr ject wa primarily guided by the Min De, , lopmenl A. es. 111c111 , 1ct .
As the Pr ject

rnmittee had fini hed its re iew of the tage one applicati n and did 11 t

meet again after the transiti 11 rder had been i ued, the
tail en I fth review pr

e

a onl

111

d in the

P t nti I imp
1111111tt

fi

and

t

K m

pr J t

n th

fi 11

111g : 1rnpa t

d

LI

tran p riati n and p

I ti

fi h fl

and

11

fr Ill

t

i Id lifi

arch a

gical 1mpa t · and 1mpa t

ir t

ati n

had t b id nti fi d during th

Jr

that the pr j ct

e

r c mm ndati n c n mmg c mp n ati n, mit1gat1 11, r a
Fir t

ati n identified a cla1m1ng the Kerne

t rnt ne ar the

I

arn r

kan1 I nl al

kani

ribal

1111111 tte

idan c of th

u Id mak
c 1mpa t

uth pr jcct ar a a traditi nal

un 11 and the Ka ka

a le

uncil, and

ir t

11

r 111g a r d itc ,

en . 1r t

c uld p t ntiall b 1mpa tcd in lud the Takla Lake and the T ay Ke y
an1 r

f

k lump;

r

lmpa t

LI

h a hunting, fi h111g. bcrr gath nn g and J re

LI

Pr ject

and vat r managcm nt;

fr m a 1 I r k dr 111ag
n ming

th

n tru ti n

th

· imp ct fr 111 the tailing p nd and wa

im1 at

at1 n

re id ntifi d b

fr m th

r e t nt, the

rt

all n

hich

enc Band

r the

Ware,

ak'aLdl1, and

McL od Lak Band

4 .3.4 Fir t

ation ' P a rticip a tion

The Project

ommittee that reviewed the Kerne

uth proJe t con i ted

f

repre ntati e , fr m federal and pro incial agencie , that continued n from th former
Mine

evelopment Review

co rdinate a comprehen i e
wh1ch con

•

ommittee.

n of the committee' re Jon ibilitie wa to

1r t

participation pr gram fi r th e

ation

proce ,

ted f the [i II wmg:

April 1992

th

pre-appli ati n report \ a

1d ntified a claiming th

di tribut cl to Fir t

at1 11

Band

projc t area a th 1r traditi 1nl t rnt r . F Jim\ 111g the

5

f

di tributi n
\ I pm nt

w1th1n th 1r
r qu

Jul

nt Pr

taff

111

111

and

tim

th

th

erg

the

Min

ith the band
pr

r

e , an I

pre ntal1 11 111

p 11 h U

G r th pr -app II ati n r p rt in

mithcr ,

rt

t. J m ,

11th pr p n n t and th c T 'l y K y

enc and

mmunit1c - an I the Land

rdi nat r

and F rt t. J hn .

ling v a h Id b tw

r the

neral Manager

ti

arner ckani

ribal

!aim

un ii, t pre cnt and discu

pr J

pring I 9

Mini tr

n ironm nt, Land

f

, and P tr I um Re

nerg , Min

and Park

met \ ith repre entative

r

urcc and Mini try
arr1er

ekani

ak'azdli and Tsay Key

enc

term of reference for aborig111al relat d studie fi r the a1 pli at, n

ere

uncil, including repre entative

Tribal

u

p nent h Id an

Jr

fr m

nt ti

r the pr p n nt met
t, di

and - in th ir r f

m

e

r pr

t

t thi

Pnn

are

an I th
th

r p rt

mmunit1

2
Ii

pr -app li ati n

ar and p 11 h LI

Ma k 11/1

•

e

t a r p n

rt

•

th

fr m the

fr m the

Band.

•

May 1993

di tributed for comment and revi w to all First
time conducted

ite tour

for th

ation group . The pr p nent at thi

hiefs of the T ay Key Dene,

akla Lak ,

ak'aLdli, and F 11 War Band

•

February 1994 tudies and thi
u e .

n independent c n ultant wa
pers n directly a ked th

his additional tudy i in re p n

h

n t condu t the ethn graph,

ab riginal people lo id ntify traditi nal
to a

urt clarifi ati n of aboriginal right ,

which places fidu 1ary resp n ibi lily n th gov rnment t idcnti Cy and tak
av id infringement on these right . Th

tudy i

6

tq

to

p cifi t th term of r lcrcn c Cor

th a

•

m nl nd i mutual!

and and th

taff f th Min

pnl

h pr p n nt

Jam

4

ndu t d a e
rl

and

pen h u

1111th r . Pri r l th

r th

l1branc

llng th

pp rtun1t

rn

e m nt Pr

ak , and

rt

ar

and

t f pen h u

ati n

fi r the r

ently

e rg , Ma k n;i , F rt

J hn Prin

l.

urban

nI

c pie

ent r .

f th appli ati n

he pr p n nt

t \vlth th 111 Ill th If

applt at1 n and the r qu1r d " rk c n erning
el J ment

ir t

m nt Pr

d appl1 ati n rep rt 111

the publ1
r qu

pt d b th pr p n nl th affi led

taff al

e

111 each

met

placed in

nta ted al I
Ii

llllllllllllle

b riginal im1 a t
i th the

r th ir c mmuniti

a

l.

and ,
u

the

tudie . Mine

Key

ne, Takla

u

the pr ject

di

appl1 at1 n.
t thi time th
the

a Ky

thn graphic interview

c ncem

nc

and adv1 ed that 1t w uld n t part1c1patc 111

u ed t

identify p tential aboriginal rights, due t

th y had w1 th the Pr vi nee'

ubsequentl

land claim

ettlement. The prop ncnt

p ned communication with the T ay Key

ene Band and kept them

advised a to the tatu of the project. The Takla Band and th F 11 Ware band agreed
to actively partic1pat in the abong111al impact tudy.

•

eptember 1995

the re ults of th aboriginal impact a e ment" a

concluded that the Takla Lake people demon trate the
traditional us

•

July 1995

ubmitt d and

tr nge t hi t rical and

f the pr ject area .

Takla Lake Band rcprc cntative

the pr p n nt, and pr vm ial re, 1 \\

agen y taff met in Vane uver and di cu cd i ue of
and had regarding th Kerne

uth pr j

7

n ern that the Takh Lake

t. The pr p n nt at th1

tim

ffcrc<l to

pr

id

n u <lat

n th

pr J

t t the T a

K

ntati\

id d pr

at th

n e111en

f the

ntati n

r the pr ·

t t th

en

and.

•

r 1

.. rt
d

•

and, 1ncluding h Ii

ar

ptcr night

r th pr J

t area and

d Lak

and

ripti n

\ mb r I c

pr p n nt m t \\tth

111

th ir

mm unity

ith th

pr p nent

fth p \\, r-1111.

regard mg Im I a

•

J r

a K

Januar

1

h

(n \\ R

al

ak) a th

till had c n cm \,\ith the pr jc t. The partic fail t meet,

ltlll

l1m1talt

11

du

p th m advi

pr p n nt k

I u

11

and rcquc ted a meeting

11

the part

[ th

d n the tatu

of on em ra1 cd b

Fir t

and, but the
f the K me

ation

an I rcquc t that the

pr JCCt.

during the

proccs

for th

Kerne

uth proje t includ d : in rea eds ttlernent of crown land re ulting fr m the power-line
con truction; lo s of m o e habitat to a ection of the power-line c nid r; cncroa hrncnt
of hunters and poaching of fi h and wildlife as a result of incr a ed acce ; cc nom1
opportunitie for contracted

ork 111 regards to the Kerne s

outh pr je t de el pment;

compcn ati n to trap-line holder ; uncertainty about the tailing dam c n tructi n; and
land claim .
Re oluti n

t

each of the e concern

pr p ncnt and were ac eptcd by

ir t

wer

pre entcd by the g

ati n , c cept fi r the i uc

111111

r th

nt and or

tailing dam

con tru tion raised by the T ay Key

enc, and land !aim

cttlcm nt rai cd b th Takh

ake and T ay Key

n eming land claim

ttl ment, the T a

en

and .

enc

pp

d t th d

·rnd. Th

akla

a

ak

pre cd th n ed fi r

nd

mm nt, but

it fr 111 th

n id r

and j t in additi n t tra1 -lin
r p n

t

fi rward a

nd1t1 n fi rap1 r val

In Mar h [ 1

th

th

ue ra1

Pr

,a 'Aclla th
uc ra1

t rm

and relat d tud1e , th

Therefore the Pr J ct

rti fi ate.

Mine

c

pmcnt

enc

and withdrew fr rn th final cthn graphic

ir t

at1 n and public pa111cipati n

fulfilled the requirement

n April 11, 1996 the Kerne

ct.

ct and under the

ertificate fom1 the Briti h

In

cbruary

f 1997 the Tsay Ke

lumbia

uprcme

ourt to reject the Mine De

olumbia

outh Pr je

Dene Band filed a petition a king th
I pment

111 rehtion t

Ke

au c the Ir jc t
en

had n \Cr

the t rnt r , the mine \\Ottld

and' right and pra ti e , ith ut Ir

9

nll h

crtifi ate that wa i

almo t entire ly within their traditional t rritory and the T a

dcstr y r impair the

A proce s had

o emment.

uth project. The p tition claimed that b

ea ed to a c1i their rights and pncti

enc

allon ' c n em .

sse m nt

of the

m nt

t d and ubmittcd by the prop ncnt during

omm1ltee determrned that

pril of 1996 for the Kerne

c

d

the 1994 a pl1cati n and any thcr

rail review and a e ment of Fir t

evelopment

rried

pr p nent and

conducted und r the Mine Devel pment

rece1 ed a Mine

ntra t

ommittcc fi It that the intere l of the T ay Key

Pr ject

c n idere I in the o

by th

f th

an 111g during th r VIC\

Ith ugh th T a K

fi r

nclu I d that the pr p nent ha I ad Ir

f rcfi ren e

d a further 111fi rmall n \\a c II

ith the

ul I ati f their c mp n ali n nc d . In

vel I m nt

111

mmittee

d thr ugh th

94 and 19

wer

fa

haring

f

re mad

mmitrnent

nu

[r

m1 n ati n fi r the area f th min

that a I a kag

j

mp n ati n, \

th

[i nn

111

iding om1 n ati n for the

h

damag

nd

1 \\ cd and tak n int

r

m nt r

a
R

al

ak.

pr vincial

h
11 Jr

r th

K 111

tudi

, and d

v a inn LI 11

and

!aim d that the

l, \\ 1th

ert1 ficat th

h

LI 11 t.

pr

nmcnt la

C

laim d that th

p ti ti n al

nvi r nm ntal

db an infi 1mal deal b tween th Pr

rnent la

!um ia g

riti h

emm nt

in c and

b fa t-tra king the en ir nm nta l a e

ut the required pub Ii

n t1 c,

n

lated it

nt

111

n ultati n, c mprchcn i

larat1 n re nn1 t r1ntcrc t.
car

ft r t

c urt

a

uld b

t pp d until u h tim a thci r right

nt d th pr J

a

K

r tryrng t g t th
nc

urt t

and and the Pr

u pend the M inc

e cl pm nt

rnc1al go crnmcnt came t an out

f

ttlcm nt 111\ h lll g a land \Vap and m netary cttlemcnt.

4.4 Huckleb rry Min e D v lopm nt
4.4.1 Proj ect Loc ation a nd De cription

he Huckleberry project 1

ituated on

olumbia appro imately

6 km southwe t of Hou t n (Figure 4.7).

Briti h

Huckleberry project proposal i

rown land and i

ated in we t central
he

to de ign, construct, operate, di mantle, reclaim, and

eventually abandon a copper mine that employ two open pit . The mine would produce
and proce

13,500 tonne p r day of re for a period of eighteen year and th re ultin g

copper concentrate would be trucked t Hou ton for rurth r tran p rtati n to a \ e t
p rt [i r v r ea export or eastward t a

anadian melter. The pr ject \

220 j b during the c n tructi n pha c, which v ulu la t eight
J

O and 200 J b during the Ii re f the mine .

90

a t

uld pr \'id

n month , and b t\\

n

fl<ITlHOAS(

N.W.T

b

,@,:

I

l'OKl'
1111.D

'

)

J
"

I

()
()

ALBERTA

ro

"?'
7...

BR Ill SH

H UCKLEBERRi'
PROJECT

U.SA

- -

LEGEND
- - - ROAD
- - - RALWAY
~

OPEN P1T OQAPHYRY MINES A1'0 PROvEC TS

Figure 4.7 Huckleberry Mine Development Project Location

91

4.4.2 R

and L and

urc

Th I Iu kl b IT pr J ct ar a li
f th

hal

anab l

nw,

lim

ulp111 , red- 1d d h1n r, and

Re rv 1r.
t d

ar a 111 lud

arn1

u h

b ar r

u h a

quirrcl,

arb

r

n trc m th

un gul ate

k

nta111 n

r k

mart n fi h r, b a\ er, and

uth ern r d-ba k d

p

pr ent 111 th

c, mul e d er, and rn untain

b ar, c

le and I n

and

uch a rainb w tr ut

u ker. Wildlifi

m

aht a r a h

fi h p 1c du e L their ii

ntain fi h p 1c

ng- n

uch a

bla k b ar, gru1I

ater bed that 0 d th

ithin a

arc pr cnt.

ca cl, al ng with

anb u.
mall fur-

n w h c hare, reel

le, and a number f di ffcrcnt bird pcc ic re id c in th e

proJe t ar a.
eg tat1 n 111 th e pr J
ree pec1

of th

wher a th

ub-a lp111

t ar a I d1 1dcd 111t a ub-b rea l and a ub -al p1n

ub -b r al 7 ne in lud e
1

I

nc.

pruce lodge-p le pin e, and ub-alpin c fir,

ne in clud e sub-alpine fir, lodge-pole pin e, and mountain ald er.

um r u pl ant pec 1e are pre ent in th

ub -boreal l ne, the ub -alpin c 1one and th e

non -for ted wetland s.
The project area ha been us d m th e pa t by outfitter for guid ed harve t
prim aril y of m

e and bl ack bear. Reco rds indicate th at marten, wease l, and bea

be n the main pec ic trapped in th e area . ore try alu

r have

are poo r du e to te p I pc

and thin soi l and agri cultural potenti al is limited du e to a co I clim at and poo r
Rec reational u e has a mod erate p tenti al fi r ac ti viti e

uch a

ampin g, b ating, port

fi hin g, and nature stud y, whil e ar haco log ical alu e are rat d low \\ ithin th
area.

9

ii .

l r jc t

m ntPr

4.4. 3 . . nv tr nm ntal

In J nuat

19

th

pr

p tu fi r th Hu kl b n

In

cptemt r I

4 th

pr p n nt
pr J

an I

pr J

d d th

th r h Id

Prin

t n Minin g

pr

a

ubJ

t t

th

Min

ubmi tt d a

n ent Pr

el pm nt

f (! \ <:l op111 e11/ Ass SS /11

1111

1

r 10 0 t nn e pr da

11 rati n amalgamated

firm llu kl brr

n Jun

t , ith th

rp rati n,

ncnt ul mitt d a Ir -a pJ Ii ati n t th e Min e

h.>.J'Vuu mcnt Pr cc

J pant

Pnn ct n Minin g

laim d, repl a ing th e Mm e

nll

h

Ill

I pm nt

A { a th

f re min ed. Jn March f 199

rp rati fl

ith Mit ubi hi Materi al

inc In . an I fi led a Pr j e t

3 , 19 5 the

e

r

ppli ati n with th e Min e

lumb1 a /: 11 \'1ro 11111 e11 1a ! 11.ss 'ssm enl !let wa

e clopm ent

e mcnt Pr ces . h

ct rcquir d th at

an applic ati n that i und ergo ing a rev iew und er the Mll1 e D ,, !opm ent As e sm nl Act
1m111 ed1 atel befi r Jun 30, 1995, be co ntinu ed and c mpl eted und er th e ne
appli cati n for a I roj ct appr

al ce rtifi cate. On th e ba 1

evelopment A e rn ent Proce s ubmi

ct a an

f re iew in g th e Mine

ion , the Huckl eberry JXOJ ct was accepted fo r

rev1 w und er th e tep kn own a "accepting a project r port fo r re iew", fo ll wing a
imil ar proces to the Kern e s projec t.
n

ecemb er 22, 1995, Hu ckleberry Min e In c. rece1v d a Projc t

crtifi c te under th e En vironm ental JL s s. men/ Act ti r th e Hu ck! berr
Pr Jec t

mmittee co n lud ed th at th e rev ic

procc

111

pr j ec t and that all c nce rn s ra1 cd during th e r v1cv
addre ed.

en

ppr val .

proj

I cd an ex t n ive r vi '"

t. The

r th

had bee n a lc qu atcl)-

riti h
pr J

lumbia'

thcr fi re

\va

pr

har d b tw

h

£ 11\1/ro nm ntal

A

17 {

pr

th

t Rep ti re

Lil t

guid

fr rn thi

P

nt1 a l 1rn1 a
and fi

m1111tl

n th

fi h habitat · 1mpa t fr m th
nc rn111 g

and 11111 a t

ir t

ati n ' patii ipati n in th Hu kl berry

n th

1w

1 ,,, 101 m en/ A s s m nt

Ju, ,

,, l op111 nt

tag

E 11vLro111J1 e11tal A

and th

1r t

and th

s1J1 nt Act

rnpl eti n .
pr j ct

l lu kl berr

1d ntifi I by th

fi 11 \ 111 g: 1mpa t fr 111 a id r
n tru t1 n

I

A s 'S, 1J1 nt A t guid ed th

tag thr ugh l

rr 111 th
d

u

I.

[i r

k lrainag

ra p rt I ad- ut fac ility

ati n ' 1 uc .

fi h1n g berry ga therin g, and th e I re en at1 n

ir t

ati n ' intere t

r a r I ite

nth

Pr j

impacts t
w

a t;

u h a huntin g,

ere rec gni1 ed a bein g

p t ntiall 1mpa led fr m th pr JCCt and th ere fi re needed t be 1d nll fi cd durin g th e
pr ce .
ation

ir t
tetTit n

Vv ere the

hi e f: , and th e
Hai la Fir t

id enti fi d a
h

latta

la1m1ng th e Hu kl berry proj ect area a traditi nal

arn er

ati n, th e

ee Tahi Buhn/ kin Tye (Frog

ffi ce

r th e Wet' uwct'en II creditary

Ian) . T he

r man

akc

and and th e

ation were id entifi ed in regard to potenti al econd ary and terti ary impac t

from the proj ec t.

4.4.4 Fir t N ation Pa rti cipation

accepted fi r pr ject re\ te\\

und er the

ct pro id ed fo r th e c tabli hm nt

r a Proje t

As th e Huck! berry proj ect wa
£ m ,1ro 11m 11/a /

A 'S ss111 111 A I, th e

01111111 tt ee that al lowed for

o f pr

111 ia l governm ent mrn1 tnc

an I

age nc ic , [i dera l govcrnm nt rcpr entati c , muni cipal an I rcg1 1n l g \ cmm nt

94

nl Li

fr m Lh

inil

f Lhc pr j

L, and repr

Band 1dcnt1ficd a b 111g p tcntiall 1m 1
part
p 11 h U C

111

fit

J

area . h fi ll \ 111g

Lh pr J t.

arti 1pati n pr gram ri r -- ir t

ab riginal

mmuniti

ir L ali n

fi r

nlali

ali n th

and h ted fi Id t ur

nl \\ re held \\ ith Fir t

f th

ati n and I r

nd u Led

pr p ncnt

I r p ed I r JC

id d Lh

rlunity fi r

Pl

input.
•

Januar

19

Th c I r p n nt u b111 itt d a p r J t pr pe tLI ·rn d c nt

p t ntiall affc Led

1r t

and , a king fi r

at1 n

pI

t alI

mment and the pp rtL1nity t

m ct \\1th th m .

•

ar h 1993

pr p n nt 111 t \\ 1th

p n red pen h LI c 111
of the proj

•

urn

ake, H u t n, and

111 Burn

Lake and

mithcr t di cu

the rclca c

t pro pectu .

pt mber 19 4 - In re pon e
pro p tu ,

heslatta r pre entati

the i ue

ra1 ed during Lh

review of the

h1ch wa relea ed 111 January, 1993, the pr p n nt made chang

Lo th

development plan and ubrnitted a pre-application report. The wa forwarded L all
Fir t

ati ns, followed by a I ller requesting c mment and meeting

in th 1r

communities to di cu s the infi rmallon .
•

o ember 1994

proponent met with

he lalla representative in their

and p n red open hou e in Burn Lake HoL1st n, and
thi Lim were ffered a seat on the Mine De clopment R

mither . rh
tC\\

mmunity
h lat ta at .

mmi tte , i r they

w1 hcd, even though thi right wa not yet legi lat d.
•

March 1995

pr ponent held an

p n h LI

hcadquarl r

f the W t 'suwel' n to di

9'i

LI

111 M ri ct \\ n, the admi111 trat1, c
th

pr je 'l. Th

Proj

mm1ttc ,

luding

in

u

111 rg1ng 1 LI

.

t, t

a
an

\\ a

•

ati n

d1

pr J

•

ir t

LI\

m m er

th

G rth

rth

pr je t.

t thi time the Pr je t R p rt

uc

urn

1111th r an I Tc1Tacc.

111

I 1c I la

i t n a, a \\ CII a

d 111 th e
111

nl

th e W t' U\\ et'e n pre cnt.

atellit

Fir t

r p

I en h u

m1th r t pre cnt and di cu

Th e Pr ject Rep 11 rev iew period end ed.
ati n , and the publi c

ere

111

c ment

n tr nm ntal

r th e pr j cc t

The pr p n nt h tee! a t ur

urn Lake Jlou ton and

ommittee

t rep rt and identif

r th

u

L1bm1tt d b th e pr p ncnt and

I 95

f the

and repr entativ

t regi tr

Jul

f the pr j

tatu

he latta

er t furth r d1

199

th

The I r p n nt 111 t with

omm1ttee, \\ith

•

111111g ub111i 1 n

ffi

Jun

had it fir t m eting t r

1t ri

Lil

I I u t n,

itc G r th e Pr jec t
\ ere al

held 111

th e Projc t Rep rt.
omm cnt fr m th e Pr ject

ubmittcd and

mpil ed

111

a

do um ent that wa placed in th e ProJect Reg1 try.
•

ugu t 1995
di cu

proponent met with rep re entati e of th e Fr g

urn Lake to

th e proj ect. Addition al c mm ent on th e pr j ect report were ubm ittcd by

th e Wet's uwet' en and di cu sed at th e
•

Ian in

cpt mber 1995

ugu t ProJ ect omm1ttec meetin g

pro ponent met \,\ ith repre cntati vc

and Wet' uwet'en Band in th eir re pec ti c co mmuniti
rep rt tcp fo r th Proj ect

ommittce was ct fo r

f

h latta and Frog

Ian

. Th rec mm end atio n and

pt mbcr 1 but n t all t hn i al

and ub tanti ve po licy i ues had been reso l cl . Th re G re, a mini tcri al rd cr \\ a
a quired, givin g a G 11y fi v da y xt n ion, till

96

t bcr 30.

•

pr p n nt m t v ith f pr
Van

r.

LI

h

and tradit1 nal u
r I rt

fth

r

rt ba d

d1

11

LI

I

utlin d p tc11tial impa t that the pr j

p

LI

t

furth r d la

111

re

lving i

an thcr C'\l n I n \\a granted II r re

uhmitted a ultural

w t, LI

ith th

11

t v ul I ha
at th

LI

and in

t uw t'en

t, n Her ditar

t, LI

ffi

[ th

ntati e

pl . ~l he

t'cn J

Wet' uw t'en

11th

mmitt c leve l

Pr jc t

rnrnen lat1 n and r p rt111g, till N vcmhcr

~7
•

emb r I )
Pnn

pr p n 11t met

e rgc. Pr jc t

ith r pr c11tati ve

mmitlcc re

f the

r man

akc

and in

rnmendati 11 and r p rt1ng wa grantc I a

third C\'.t n i n, until Januar I , I 99(L

mber 13, 199 , th Pr Ject

n
H

ever, the

mmittt;e appr vccl th Hu klcberry pr JCCt.

upp rt II r project appro al wa

11 t unanim u among all committee

member . Fon1ial repre entat1ves of th Federal, Pro i11cial, and Local government that
at a activ member , including the Frog
the Project

lan Fir t

ation, upp rtcd the c nclu I n

ommitt e's repo1i. Other members simply monitored the review and mo t f

the e mernb r , 111cluding the Hai la Fir t

ation, took n

cert, ficati n. The Office of the Wet 'su\\ t' n Hereditary
Nati n oppo ed the certification whil
omments. The

he latta

been adclrcs cl to thci r

positi n

hicf: and the

11 proJc t

h lat ta

arncr

the Broman Lake Band fatlcd

pro\ 1dc

arrier Nation ind1 ated that their te hni al con

rn had n t

ati faction and al o rai

functi ning f th review pr cc
I uc

111

cl

it elf.

c n ern rai cd by the

he latta in Jud d:

97

n cm

with re pc t t

th

•

at r quality,

trapping hunting, fi hing

u h a

a111mal and fi h habitat. b rry and 111 di inal I !ant pi kin g and I iritua lity.

•

11\tr nm ntal

u

I

tru tur , i1111 act
qualit

n

u h a
f th

the
r

rn , a 1d r

afi t

of th

rri I r, im1 a t

k dra111ag

tailing

imp un lment and

Lher

f th p rt I ad - ut ra ility

ater

im1 a t , impa t t

trap -line

and impact t

\\ ildltfc.

•

I UC relatmg t culture and heritage

Ill

ludin g impa t L traditi nal a ti iLi

and

archae I gt al alu e .

•

11

1111

C

ncern

uch a

c1111 I

mcnl pp 1iuni t1c ,

and

mp n at1on for I

ln re p n

th e nc d fi r trainin g and trainin g a c smcnt,

nl rac l1ng Pl rtu111ti e , re

c of tradit1 nal fo d

th e c c nce rn

nu c harin g, and miti gati on

urce .

th e prop nent and/or g vernm ent propo cd re

whi ch were acc ept d by om e Fir L ati on . 1Iowe er, man y o f th e re
deemed inad quat by th e

luti n

luL1 on were

h slatta and Wet's uwet'en and led th em t take th e p

1t1 on

of non- upport for th e proj ec t.
Ithou gh the pro po ed re

lution fail ed to ati f y th e conce rn

f th

he latta

and Wet' uwet 'en, re o I uti on made by th e proponent were carri ed fo 1vvard and in c Jue.I cl
mb cr _2, 1995,

f approval for th e Pr j ect

ppr val

ertifi catc.

Hu ckl eberry Min es Inc . rcce1 d a Pr Jec t

ppro al

erti ficat e und r th e En \ 'tro 11111 e11tal

Asse ·sm enl !let fi r th e I Iu kl berry proj c t.

h

r th e Wet' uwct' en Herc litary

ed th

a conditions

akc

and had

hi cf:

Pf

n crn r gar lin g th la k or

C) l

he latta

arn r

n D

ati n and th e

rti c

pr J t app ro \ al \\hi lc th e Br man

n ultation, a , \\ ell a the prop

al t u ,

th r

d right-

Th Fr g
pr J

r-\

Ian

fi r th cl tri tran m1 i n line.

hi h run thr ugh th tr r

UJ I rt d th

t and th I l ai Ia ir t

ati n t

r th

th r rn

Pr j

rnrn1ttec c n Jud d, a ed

n\ ir nm ntal re\ 1 \.\ and I ubl1

and

and ab riginal

x1 ting I gt lati n and thr ugh th
Pr j

ppr \ al

t

rtifi at .

om1111tment

n

that any

uld be managed thr ugh

and r qu1rement

1dentifi d in the

mber I , 199 , I lu klebcrry Mines Inc . accepte I
tipulated 111 th Pr j ct

ppr val

et1ifi ale.

Alth ugh the I lu klebcJT)- pr 1cct rec t\'ed a Pr Jecl

ppro\.al

'e11ificat

th requir 111 nt and c rnrnitrn nt a

lumbia g \' 111111 nt, the

Britt h

proJ ct r tained th
arch

n a full technica l

n ultati n I r gram

ad\ er e en\ 1r nm ntal 1rn1 a t that re ult I from the pr J

to

it i n n th

t.

11

th

kn p

r 19 6, the

I

rra Legal

he latta

'arr1er

at,

111

pp

iti n to th

efen e Fund in preparation fi r legal pr ceeding . In

he latta made their intentJ n formal,

tating that they w re going

hallenge the Huckleberry pr Ject appr val before the

ourt. Th

11,

frorn

nti h

lumbia

upremc

filed a la\\ uit eeking to put a halt to the project on the gr und that it v\a

n their traditi nal t rritory and ubject to a land claim . They al o belie ed that there
were too many out tanding i ues t gi e the project approval.

u h 1s uc included the

tructural afety of the 111111e, ri k or c ntam1nation to fi h-bearing \.\.at r, and human
health concern . They fu11her claimed that the s cial and economic
had been ignored, in ignificant

mpen ation had been paid to the

to th

he latta

h latta fi r the u e

f their land and that the prop nent had provided inad quate infi rmati n fi r impa t
predict,
the

~

11 . During the en

pr

e

uing m nth art r the

he latta filed their hrn uit. la1111 that

had been fa t-lra ked ·1 a re ult or g v rnmcnt an I 111du tt")- r re s urc

C)l)

re mad b lh
ar

f

judg 111 nt. In th
judg

h latt and th r pp n nt t th

u1i pr
nd th

ed1ng

the

riti h

11

infi 111iat1 n and

kl b rry I r ~e t.
upr m

fter alm

l

u1i made a final

h latta fai I d t have th Hu kleberry pr je t halted but the

rul d that the pr p n nt failed

predi ti 11

lumbia

LI

rta1n wildlifi
n ult v- 1th the

I

LI

pr
h

ide ad quate infi rmati n

pr p n nt

a

rd cred t

[i r

impa t

pr vide thi

he latta 1n a meaningful and tirn ly mann er in regard

tothe1rc n cm .

100

hapt r Fiv
nal y i

101

5.0 lntr du ction

hi

hapt r anal

[ th

C

th thr

a

t. Mi ll igan, K 111

fi LI r.

ppli at1 11

ca h

a C

r

[th

ir t

ffc t1

11

frame

part1c I pati

ub tan ti\ , tnn a t1\ , and

v rail p Ii

pnman I

ati

11

,

parti ipati n in the E

an I JI ucklebelT 111111 d

at1 11

Ir

t

[

r gulat d b

the

rk pr
pr

11

pr

e

el pm nt de crib d Ill

haptcr

ntcd in

id

ti

11 2.

a mca ur rnent

cffe t1 enc . The

t.

( igurc 2.2) t
[

pr ccdural,

ill1 gan and Kerne

ftn e D }v I pm 111 Ass 'ss ment A ct and the

Huck I b rr pr jcct r \ IC\\ \\ a r gulatcd b th e

/111 C' I

'\ C'l op111 C'11f Asscssm 111 Act and
1

7

the Em·1ro11me111ul • b . C'S.\ l}I C'III Act . Ther fi re. a c mparat1\

analyst ,

r the cffica y

m a urcment bet\\ c n and am ng th e c ca c all \\S th e dctcr111111 ·1ti 11 or th impact
the pr

lamati n of th

for Fir t

ati n ' part1c1pat1011 in Bnt1 h

Re
Fir t

£11v1ro11111 11/a/ Assessm nt Act

mmenJalion

t

1mpr v

n the cffcct1vcnc

r.

fE

p !icy

ffccti vcn

for

lurnbia.

Brit1 h

olumbia'

E

p lie

ati n ' pa1iic1pat1on 111 111111 de eloprnent arc d1 cu ed in the final chapter \\ ith

concluding remark .

5.1 Procedural Po licy Effecti ve ne
Notification
A letter, followed by a meeting 111 the Fir t

rr

at1on

c mmunity , h n th

p ctu wa r I a ed. gave n tificatio11 111 prcparati 11 for participati n 111 all
ticc gi en fir "' ir t Nation t prc1 arc fir parti ipati n wa \ cll 111 c\.

pr ~ ct

a c .

Cf'orty-fi\c

day a it enc mpa scd the maj r part of th projc t re IC\ penod r r ·di a , - at I a ·t
three r m re year . 11 we er, i r .

1cv

d a a pr

101

that trivc

tO\\ ard

a,, . . i tmg

and

p rt 11

b

( EK , the pnn ipled fi 11 -fi
ak'a1d li
d

mrnun1t

um nt d. Th

\\ h rn fi \\

da

ledg ba

p ak

rp rati ng traditi na l

ha r mained

n t1fi alt n time mu t dep nd n th e tent t
h \\ mu h time 1 r qu1r d t

11

r

Id r ,

f

rnc rp rate T K, the am unt

f

n tifi ati n ma

n t be uffi i nt.

Ile t and d

b er ati

g1 al kn

ral and i p

herefi re if E

ngli h.

c I g1 al l n w l dg

al d that er littl traditi n I e

nt re

kn

111

hi h T ~K I cum ntali n i a ailat le r

ument the inG rmati n.

ce . to i11for111atio11
Infi m1at1 n 111 all thr
and

em

proJ

the Fir t

ati n

the Pr Ject

ca e \\a pro,1dcd dir

t the pr j
and

ir t

at1 n . In the Mt. Milligan

pcctu and application were dt tnbuted dire lly to

ffice and they al

mm I ttce

do ument rele ant t

t pr

tly t

had the right t req uc t any do ument ·1t

\el. The project pro pectu

project applicati n, and

ther

the project review were al o hou ed ll1 I cal librarie , thereb y

providing an alternate mean of acce ing th infom1ati n.
First

ati n acce ed infom1ation in the Huckleb rry project by the ame mean

a the other two ca e , and they al o had acce

all the int rnal di

u ion

and

deliberati ns of the re iew, ince they at a member of the Project C mmitt e. In all
case the maj rity of document

re e1ved by Fir t Nati n and h u cd 111 the publ1

librarie wcr writt n in a highly le hnical fi rm . II \ v r, th pr
e ecut1 c summary wer

written

111

ati n ' r vie

tu ·md appli alt n

a n n-te hnical fi rm. The pr r n nt and or

g vernment, meeting rep ated ly thr ugh ut the re ic\ pr
ari ing fr m Fir t

p

, ·1ddre . eel any quc tion

r the pr jc t pr p tu ·md applt ati n \\ 1th l--1r: t

!OJ

all n in th tr
an qu

h

m rnb r

r th
nd

tin g

r J

t

111

it d

mmitt

, al

attend

pr

attain d. lnfi miati n h uld be
appr pn tc t th I

ha I a
ub-

u

e plain, and an
t,

ir t

the te hni al

mmittee

ati n , itting
f th I"'

p iii

rking gr up

r

hich their

111

J

r in fi rm alt n d

n t n ce an ly mean that a cc s i

r imm diatc r

an e be attracti e and bri f, and be

le ' abtl1t1e , e, p nen

, kn

ledge, language, and culture. It 1

tt nab I \\ h th r the 1nfi rmatt n pr v1dcd

en t na. ln all ca

tr t

pr \ ided wa

chnt al and hard t

g

re h Id t di

Lt n c u Id b an \\ ered.
H \\ \ er, th

qu

m

ti n regardrng th 1nfi rrnati n. In the Hu kl b rry pr j

am mb

qu

mmun1ti

t

at1

11

und r tandable fi 1111 " - the pr Jecl pr

native language for Fir t
community meeting

in [i rm at i n \ a

ummari1ed

p ctu and e ccuti ve ummary .

the e

r lllli nnatt n
11

an "ca ily

int
I o, a

rdin g t

em to be littl need to provide any 1nforn1at1on in th e

ati 11 a their "primary language i

revealed that th1

ngli h".

b ervatt n f

assumptt 11 1 not valid. F r example, Elders

poke b th language and the majority

ngli h. Middle-aged ommuntt

r the y ungcr gencratJ n poke only

. . ngli h. Al I cornmuni ty meetings were conducted In b th
language. Therefi re, providing infi rmati 11 in the

indi idual wh

ngl 1 h and the natt\

ngli h la11guag for th Mt. Milli gan

pr ject wa 11 t appropriate, c 11 1dering these di !Tcre11
c mm unity. Furthermore, fi r th

c nfi rrned t

under land . In dcfen c, ace rd ing

primarily p ak their native language and a few peak
member

ati n

e\.pre ed the Vtew that the maJ nl

mment r p ndent, techni al

governrn nt re pondent there

ir t

in lan guage u ·1g \\ 1th in the

e la11guag i ~n )I1' h it may be Cal c

t as ume that th ir ral ability i mat h d by th ir r ading ·1bilit . If inlc rmat1on a' c

10

ur G r Fir t
p

pl

ati n 111 ..

it mu t b Ir

id d in a [i rn1 that i a1 pr priate to th

' languag an I th tr rcad111g abiliti

011 11/tatio11 t

h11iq11 es

Meth I u d t

111,·

111, h cd

h.

Fir t

num r u

alt n 111 the Mt. Milligan K me , and Hu klcbcrry
ting

111

111

at1 11 '

tr t

mmunitie , in luding

pre entat1 n b the pr p n nt and r g v mm nt u ing i ual aid
m d I , ph n
mmun1ti

all

. Th

, nttcn c rr p n I 11

, fi Id trip , and

u ha picture and
p n h u e

in I al

h 1 c f on ultat1 n tcchn1quc u d [i r Fir t

ation

parti ipation,

a w II a the t11111ng an I I cat1 n f meeting , wa agreeable t

ir t

ati n and the

g ven1111 nt and / r pr p nent.
ati n a m mbcr
and dtr ct ac e

dditt nail , the I Ju cklcberry pr jc t 111 ludcd

n the ProJect

to all di cu

I

omm1tt

, ther by pr

idmg them with 1mmcd1ate

n of the project re ie, .

ot ith tanding the fact that the numerou
agreed t by Fir t

ir t

meeting

and pre entatton

w re

meth d t be f

al1011 ' represental! e , they did not c n 1d r th

their cho1c . Rath r, they perce1 ed them a the government' choice f h w con ultati n
hould occur. For example, resp ndent e pre ed iew such a "

hey didn't Ii ten to

us ... they jut came and talked for twent minutes and nothin g cl c" . "If the had c met
u at the beginning we could have told them h , , e wanted to be con ulted". ''The
governm ent ch
, we

e the ways of con ulting ... we were nc er a ked ho

to b

uld have liked the pr pon nt to come in and it d ,,n to di

Thercfi re , it appear that th ch ice

r on ultati n tcchniqu

n t have been appr priatc or prcfcrr d by ir t Nation .

in the f

u

n ultcd . lf
th proJ

t".

pro ~ c md

R ep orting

In all a C a dr rt
ht

mm nl.

r th

draft

R

f th

al t n ' part1 1pati n pr
and r

luti n t th eir

[i r

r p rt.

h rep rt

and the r a

rn . In th

l lu 11 berr

.. ir t

utlin d all i uc th at w re dt

ning u d in d t rm111ati n

r pr J

u

th e

her r re, c n td ri ng th d1ff rc nc

ak ' aLdli commun1t , 1t

inform ed Fir t

ati n a t ho

11

ati
f th

11

i w and
the

ir t.

pr

c ,

r the

m

Pr j

d at th e Pr j ct

t

Ill Ill i tt C

mmittec I

cl

t appro al.
n fi r

tt ntt n mu t b dra\\ n t th fa t th at th e Rea
nglt h.

[i r r

ati n durin g th

ir t

nc rn rai ed

rnrnittcc partt tp at d in the r vi \,\, and fi rmul ati

Pr J

ati n

R
' th

11

1r t

nt t

a

written in

In language u age th at we re b er cd in

qu e tt nab le wheth er th e pr vi i n

f thi s d curn cnt ·

their input affec ted th e dec i i n makin g proc

Guiding prin ciple - Ope1111 e , Fair11 e , and Objectivity

There are ome ground for con cern about wheth er ir t
the

ati on ' part1 cip ati n 111

f th e Mt. Milli gan, Kemess, and IIu ckl eberry proj ect we re condu cted 111 an

A

open, fa ir, and bj ecti ve mann er. Recogni zin g that each one orth

e criteri a, if

amin ed

in depth , co uld repre ent a single tud y in it elf, th e fo li o\ in g di cu io n i directed
tow ards general trait of th e three ca e , whi ch rai e d ubt a to th eir adh erence t the e
criteri a.
Fir t, in all three ca c

ir t

ati on fe lt th e had littl

dcc i i 11

th at were made in the

pr cc . F r

p1111 n

uch a " th re wa n' t any

mmun i ati on a th

106

r n

innu n e \ r th

ampl e, intct-Yic \\ e
(g

c pre

cd

crnm cnt and proi oncnt)

didn ' t Ii t n t
th min and \\

u ... e

nt1all

the

am

G It that n matt r

hat

\\ Cr JU t an aft 11h ught. .. the g
nd dirt

qui k

pr

agr cmcnt \\ ith u " .

and th
hi

th e pr

c

arc n t

pr

d t

neg tiatc an 1111pa t

r n t ha in g innu nee

f ha 111g . r cc tati n

mpat1 bl w 1th th e

'" uld l

anted

emm nt and l r p nent g t t g th cr t make it a

1th r

r lan f h \ th e r ult

ir t

uld be u cd in

f le i i n-makin g p

ay, th e pr cc
f

ben fit

er the de i i n-rnakin g

r n t und r tan Ii ng how th ir pa11 i ipat i 11

r 1t c uld be a re ult

pr \1U , c n\ e, and

" . " h t wn

uld g ah ad". " W had n input

aid it

pr p n nt r fu

p r pti n

u Id be a r u It

n I talk d, n thin g el

er that

app ar t have fail e It

at1 n ' r arti cip ati 11 in th e

u ed t affec t dec 1 1 n-mak 111g.
alth ugh th

part1 cip at1 n tec hniqu e

Huckl eberry pr j cL wer agreed up n by all parti e

u cd fir th e Mt. Milli gan and .
Fir t

ati n indi atcd th at th ey

ou Id ha e prcfi rred th e tim e pent by th e pr pon cnt and/or governm ent t be I ngcr
Rath r th an th

iterati ve on -day m

panned e era! day or longer.
way

t

ting th ey w uld have pre fi rred a proce

th at

ccordin g to one re pond ent "Th e go c111me11t cho c the

talk with u , th ey ne er a ked h w we wanted to be c 11 ultcd".

noth er

111terv iewee comm nted th at " If th ey had come and at do wn with u at th e tart w c uld
ha e to ld th em how v e wanted to be c n ult ed. They need tog t to kn \\ u
by

pendin g tim e in our co mmunity."

·1

ap

pie

ne Fir t Nati on ' re pond cnt fe lt that "The ·

g vernm nt and/or th e pr p nent h uld ha e pent tim in the pr j ct area vv 1th fa rrn! 1
memb er parti ipatin g in traditi nal ac ti viti e a part Cth pr

"

t\ ith t·rn ding the

fa ct that First Nati n a epted th e parti ip ati n tec hniqu e u cd, it appea r that

I 07

me

pr fi IT d _. ir t

ti n ' meth d
11

app ar t n t hav b

ir t

n u ll d ab ut h

hird, in th l lu kl b rr pr J

that u1 l 11 d th
th "d1\ 1d and

c

t.

that th pr p nent gave.

11e re p ndent, the pr p n nt e entiall y u d
111mu111ty t g t upp rt r r th pr j

nqu r technique\\ 1thin ur

"Th pr p n nt made J r mi

n ult d.

t b

t, all gati n

rd111g t

ati n , in th e a e ,

f j b and b ne fit t

t, cau ing c nn1 t bet, een

t" .

me r ur pe pie t gain supp rt

mmunity member . Wlr1t d

we have n w?

mp! ) m nt and n benefit ·me.I \\ und that ne d time t heal". Thi "divide nd
c nqu r t

hn1que"

rv d t

at1 n

mmu111t

memb r , rath r than bu ild1 ng con en u , thereby aggravating F1 rst ·

ati n

rnmu111t

hootmg at

n an ther with gun

onni t.

preferential treatm nt wa p
ation

rurth r difference

cc rding t

pin1 n between and am ng Fir t

one govemm nt re pondent "They were

ver whether the mine hould go in". ll appear that

ibly prevalent in the oth r proje t a well.

intervie ee knew of rnstances

here "pe ple

( from companies) if they up ported the project".
re p ndent Celt that "there wa
go emment becaus the

in

a lot

ne Fir t

ere g1 en money 111 the pa t

!so within the Huckleberry proj e t, ne

f manipulation by the pr ponent and th

he latta and Wet, uwet n Pr j eel

m1111ttce member t

ka

stand that was 111 opposition to the project''.
The e traits rai e doubt a t

whether the

obje ti e; however, all three ca e did fa ilitatc Fir t
degree . The Mt. Milligan _.
participati n, wherea

proce

pr

e e w re op n, fair, and

at, 11 ' parti ipat1 n to ,a1)111 g

pr v1ded th

the llu ]deb rry "

l 08

proc

in Ca ' il1tat111 g
pr

id d th

m

t. In th "'

1t.

Mi ll igan

ir t

ati n gained a

1n

fi r th

1rnpl 111 ntat1 n

mrnti n and fund

d n

t

ir

at1 n ,

n th ir

mm urn t1

te hni al re 1c

ir t
pr

n m1

upp rt,

tudy, wh ich wa
e

pr

1dcd Fir t

I c p 11 c , i11fi m1ati n, funding fi r thir I

all n \\ r pr

, in add1tI n t ha 111g p

pr

Kem

and p r nnel fi r te hn i al

l-l u k I berry

Kcme

f a

Th

at1 11 with funding fi r tran p rt and tra
part

p r nne l fi r t hnical

l

upp rt and guidan

idcd with the am

1t1 n

n the Pr jcct

re

. In th

urccs a in th

ommittec.

ll/lllllGI )'

In ummary, Fir t

at1 n ' parll 1pati n 111 the -:

and Hu klcb rT

pr ject

Ho

adhered t

procc

the principle

v r, 111 c n idering notifi ati n trm

adju tment

fi r th Mt. Milligan, Kem
or nollficatwn . and r portll7g .
mu t be made t

all w Fir t

ation to prepar for participation i r T K i to be inc rp rated . The rcpor1ing of re ult
mu t al o tak

111to account that the information should be appropriate t

language and abilitie .
the

II of the case di played characten ti

that question h w well

proce es met the principles of access lo L11(ormation . con ·ultatwn I ch111qu .

and op nn es ·. .fcurness and ohjectivity. Real ac e

ha e been a hie cd due t

to infonnation docs not appear t

the fact that the information wa

n t a1 propriatc t

people ' abilitie and lan guage and th con ultation technique empl
t be prefi rr cl by Fir t Nation , even though th y agreed to them.
a c smcnt, u ha the findin g that Fir t
and in tancc where pr ponent
r

the people '

n n u

am ng

the

cd d n t appear ·

ther feature of th c

ati n limit of auth rit \\Cr n t d fined,
upp rt d dr vi ion I at her than th bu lid rng

r the proj

ir t Nati n , brin g

int

109

que tr n th

p nne , hrmc , <md

bj

[ th

ti it

part1 q at1 n 111

ar fi un I t ha

ffi cti

f th I r

n pr

Th influ n

fi r ,rt

th

alt 11

1r t

,rt

Ith ugh th,

t.

at,

11

,

lamati n f th

p 11i iI ati n appear t be minimal.

r

add I lt ll

ati n

m rnbcr t th

lnnge cl c n t 1nflu n

en urc that

infi rmati n, tc hnical per

1111

th

n

cdural p 11 y ffi cti enc

r the pr

r u It

the J r edural r Ii y
ed t

lamati 11

a

fi r the Hu kl b ny

mmittc

pp

ati n '

rri cti

nc

fi r

the Mt. Mi ll igan and

ati n r pr entativ

arc pr vidcd with

It aid in th under Landing f infi rmati n, and a r I in

r th

rep rttng or the r ult

ir t

11

Pr J t

partJ 1pat1 n in the Hucklcb ny - a

Km

f Fir t

f the

r th

pr Ject re ,c .

hi

d c , h

c er, pr mote the

fa Jlitat1 n [ p rtt ipati n 111 tri 111g toward an p n, fair, and bjc tive proce .

5.2

ub tantive Poli cy Effec ti ve ne

Participation Beyond Voting

In the Mt. Milligan project the proponent wa directed by go emment p !icy t en ure
that

ir t

ation participated in the

for

ir t

ation ' pa11icipation.

proJ ct, in that

ir t

A proce

he Kerne

however there wa no leg1 lated right

pr ject was v ry imilar to the Mt. Milligan

ations participation in the _.

proce

\\ a

government po Iicy unti I uch ti me a it was moved into the
the tran iti n order,

irst

upp rted

. Up n th

ati ns had a lcgi lated right to it n the Pr j

111 1 by
uan C oCmm1ttcc.

l lowcvcr, Fir t Nati n never real iLed thi right, b au e the i r j

t a1 pli , ti n (proJ ct

rep rt) had been reviewed pri r t the i uancc of the tran 1tion

rder and the Pro_1c ' l

' mmittc had e ncludcd it rn ct111g . The I uanc

110

r the tran 1t1on rdcr mt th, l· \ .\

fi r the Hu kl

rr pr je t, n the th r h nd,

h1 enabl d 1r t

curred pri r t the pr j

it a member

li1e th ir I g1 lat d right t

ati n t r

t rep 11 re 1c

r th

mmitt

R pre, 'J 11tatio11

The
}[ u

bj

kJ t

r r'pr , se111011011 \\a

lJ\C

thr ugh vari u m an . Initially,

IT

affi t d b

th

pr J

and that h

r the [:

n ct

r id nti fied thr ugh

t \

Huck! b rry

and

that c ulcl be p tcntially

r land

am I nati n

claim map .

he

at the

pr cc .

uch a

p rti ipate

and

Mt. Milligan, Kerne , and

t be 111\ h d wer m t \ 1th, in their rcspc tivc comrnunitic
umcr u

w rk h p , p n hou e and field trip
th

a h1ev d in th

pro e

meeting
\v

In addition t

pr v1ded Fir t

and c n ultation technique

re u eel, and the c pr v1clcd the pportunity
the numerou
at1 n the nght t

rr

c n ultat1 n technique , the
it n the Pr JCCt

omm1ttee

. In fact, pnor to the tran iti n order b 111g

a ter th pr ject wa tran itioncd into the

mmitte ), the

h latta

However, 1t mu t b noted that, 111 all ca e , p tentially affected Fir t

ation

ued (I gi Iating Fir t

ation repre entation

arrier Nation were invited to 1t on th ProJcct

n the Project
ommittec.

were not identified and gi en the opp 11unity to participate at the b gi nnin g
process.

or example, in the Mt. Milli gan pr jcct durin g the initial tage

r th

f th I ro c ,·

ne resp ndent exp re scd th

view that the prop nent

h u Id have providccl th

pp rtunity fi r Key h h Ider

(familie

u d th

part1 1patc al ng with the rCJ re entati

wh

for the

111

tradit1 nail
ancl .

r r je t area) t

In th

K m

the

initial!

and

i hing t parti ipat

p t nt1 11 b tng arfi t d b th

lll l 11

and th

Takh

ak

that p int Ill ti 111

arn r

k Ill

ribal

furth r

11 111

and.

th

ka111 Tribal

ak

'111d did n t ha\

pr

. It mu t al

th

pr

c

LI Id

r pr

that the g

arr1 r

b t\\ e 11 th

1I

LI 11

the

' Lill

1 u

th

g

ti and the

e

n1rn

nt a

er th T ay Key

11

d that the

and . J l

a n't until

ak

gni ;, d that th r wa

a plit

·rnd .

th

Taki a

f th

E

akla

partic1pat

Ill

ak

ming land

la1m .

c

re.lin g t

them \\1th r pr

ntat1 n in the pr

g vernm ent,

Dene and pr vide

c .

pr ject, idcntificati n of potentially affi ctcd Fir t

occurr d through the ame proce

or checking with land claim s map

a

project . Hove er, it wa not until later in the pro e

Milligan and 1 emc

ntati n in

en terminated th ir repr

ccurrcd, att 1111 t were ma I t tnclude the T ay Kc

lan and

hu

the ear ly tagc

\ n art r th1

rn the Huck! betT

g

rnm nl under t

kla

rnment r

ay

had c n

th

nt the

pp till Ill ly t

be n t d that th

du

1d ntifi d by th

and

in

all n
the Mt.

that the Frog

roman Lak Band came forward, \\ere identified asp tentiall being affected,

and gained representation .
1th ugh
the Frog

ak'aLdli Keyoh hold rs and repre en tativ

fi r the Tak la Lake Band,

Ian, and the Br man Lake Band did not 1nit1all

have the oppo1iunity t

paiiicipate in the

JA proce e , it d c

n t appear that thci r rep re

compr mi ed as th ey were 111 lud ed lat r 111 the pr
and

and / r

repre enlati n, th

and
g

member

appear n t

ha

e

Ith ugh lat r additi n
c mp r mi ed

ernm nl and/ r pr p ncnt h uld n t rel y L n thi

11

ntati n \\ a

Fir t

r

at1 n

pr) cuurc 111

ru tur

pr

r pr

ntat1 n 1

e ,

ut

h u 1d m ak

IT

t and

mpl t .

ntat1 n n t nl
part I iI at
Ith ugh

but aI

ir t

Fir t
11

ntai I that

that th Ir

all n app ar t

qu c t1 nab] ~ \\h ct h r th Ir v i w

e tra

ir t

rri rt

n urc th t

t

alt n ha

ati n '

th a..,..,,-i.,. ., and pp rtunity

alu e and int re t ar
ha

ir t

n id red 111 th

had rep re ntati n in th

and \ alu e , ere c n ici er I.

pr
p1111 n

pr

e .

e

it i

pre

d by

ati 11 re p 11d ent , u h a " \ c had rcprc ntati n but what i th e pp rtunit
alu

i pl a

11

ur c nc rn ?", " ur c mm nt

o eITul d" and " the ignored all
intcr t ,, er taken 111t ac

ur input', que lt n

ir

n cnv1r 11111 nta l i uc were
heth cr Fir t

ati n ' va lu

and

un t In th e de 1 ion-mak Ing pr cc .

Participant L earn in a an d Under tanding

[n all three ca e

ir t

at1 011 ac ti ve ly parti cip at d in th e

f th e T a Key Dene who with drew fr rn th e Kern e

wa

proce , with the excepti on

pr ~ ct.

an 111 rease m their knowledge and under tanding

nc re u It o r parti ipaling
f th e

procc . Th e

g vern111 ent continuall y u eel a portabl e di pl ay durin g meeting held in Fir t
co111111unit1 e to reitera te and ex pl ain th
ati on

tagcs of th e

ga ined new sets or kill s, idea , or valu e

que tionabl . The onl y indi cator of ga inin g new alu e
apprec iati n f th e 111 netary alu e r go ld and
rea

11111 g

that dri cs th e elev I pment

A pr ce . Wh ether or n t Fir t
a

a re ult of parti cip ating 1

a th at Fir t

pp r, th ercb

ati n attai nt: d an

min g t und r tand the

r min . In re p ct t ga111111g n ""

and id ea thi s tucl y wa unabl t make a detcrmi1nti n.

lU

ati n

f k.1 II

r It app
a I ar under landing

LI ti

Ill

urn mar

C

uffi r nt in pr

them ch c

r that
fth

ati n

u

fth

ir t

ati n

I

G r the

hni al

mm nted tint Fir t

I

rar

ll

atr n

!11

ab ut th

nl

Fir t

alt n

an th r.

urth rm r , '\;

(th

pr

C

e , fi r th Mt. Mi lli gan and K me
n that th

cd th
V

r th

lumc

pr J t rep rt/applicati

th

n

k-nam d th t chn1 al

lum

inG rm

mm nt int rv1cwc

g

"plant- tand ", a that i
nc

n t p f

g vcrnrncnt) h vc a hard time trying t c plain it (the
atron , I t alone under tand rt ur elvc ".
at1 n appear to be t

111 fom1at1

n pr v1d d t

abilitie

and language, along \ ith government'

and obtained an und r landing

f the i uc

yond these characteristic , each

111

i en that the

technical, inappropriate t their
difficulty
ir t

conv y111g the infi rmation, it i que tionablc \ heth r

procc e .

er

11

f the infi rmati n they required t

pr jcct

d b

pe tu and

pr

an find G r them when they arc ta kcd

t chn1cal rnfi miat1 n) t Frr t
1r t

ell infi rm d, n r did th y btain

re n t

,ding an und r landing

ab ut th

u

ir t

under landing and

Ill

ati n were well info1111ed

the Mt. Milligan and Kerne s

A procc

po e ed add I t1onal tra1 t that

cast doubt n whether or not Fir t Nations were infom1cd and obtained an under tandrng
of the i ue .
In the Mt. Milligan project, Fir t

ation e pre cd th

that th

IC\\

pr

did not increa e their understanding or the envir nmental impa t of th mmc.
t one interviewee " they put n a meeting 111 our
and benefit

r the mine and didn't talk ab ut th

C

rding.

and h·1Il but onl

talk d ab ut J b

11111 a t ".

rdmg to the

am

re I ndcnt a r quest wa ma le to the propon nt to t ur x1 tmg mine 01 rations that
were

imilar t

th

pr p

d Mt. Milligan proJ

114

o the

uld .__gam a greater
~

und r tand1 ng

f th

and fun ti n

11

f n

p n pit m 111

t g t an i I a fv.hat it v uld b lik , but it ne

111111

r happen d".

ir t

ti n app arcd t ha

had a b tt r und er landin g

Km

pr J

t,

mpar d t

illi g n pr j ct.

b au

f th e tc hni al level

r lat d t

I

u

dam and it

ffi
1

111111

u

\ a r tri t d in t\

t d, "e en if Fir t

be th e ca e
pr

e er, it appear

ay . ir t, it wa di c

th e pr p nent wa

ubmi tted b

c , whi h

111

that th ir

ered th at

mpl ete

r

me

f p

r

r di ffi rent inform ati n requirements bet een th e

l ,,·el op111 e111 As e sm enl Act and th

re p nd nt ugg

app ar

ntcd th at " v c till have i uc with the tailin g

cnv1r 11111 nt I f 1t break ". I I

ma_ have be n a re ul t

hi

f the i ue fi r th

a k d, thr ugh ut th

n th

f th e in fi rnnti n th at \ a

M111

f qu c ti n th

n re I nd ent

und r land 111g f th

qual1t . Thi

th e Mt.

th er

anted to e

"

F,11, ·tro nm ental A · ·ess111 e11t Act. Yet, a

nc

ati n had th e powe r and capac ity to und er tand

the I ue , they didn ' t ha e uffi cicnt infi miation t determine impact from th e proj ct".
cond, during th e latter tage o f th e Kern e

pr ce

it app ear th at th e proponent

withh eld info1111ati n. Th w ithholding of infi n11 ation 111fluenced th e potential ability of
First

ations to predict potential impacts of th e proj ect and compromi ed their ability to

und er tand th e iss ues .
Fir t

all on

in vo l ed with th e Hu kl cberry proj ect, \,\ hen c mp ared to Fir t

ations in th e Mt. Milli gan and Kern e

proj ec t , app ea r t hav ga in ed an cv n gr atcr ·

under landin g of th e is ue , consid erin g th te hni cal I el of th e quc ti n th e a kcd
t pre cnt ccl a Jr bl m

irnil ar to the

ubm1 ttcd by

ncn t \ \ tl

durin g th e

pr cc

Th e IIu kl cbcrry pr j

Kcmc

pr J

t 111 th at

om

i11 LI ffi

nt ror impact pr di li on. 11 \i v r , Fir t

o r th e inr rm ati 11

11 'i

at1on

at a

Pr J

omm 1ttcc

I 11 fi 1111

d , l U t th

d fi ien i

I

I

n uin g infi m1ati n rcqu

H ~ v r \ h th r

r n t th ir under landing

f 1tt1ng n the Pr J

1111111ttc i qu

arned that th g

a

LI

w

und r landing

f th

ur th r by

i uc wa increa cd a a

ernm nt I ugly and

rding t

pen I

nc

ir t

ati n

ab ut th

111

ur

wn

111

and
ncy t

g t an

he tim frame \ ere comprc cd and we needed m re time

r 111 r 111 ncy t rC\'IC\\ the 111f r111at1 n" . In thi ca , the
15 0,000 t fund th e er 1 e

proce

ati fy the

t pr di ti n to

ti nablc.

part1 i1 at d", but "we had t

r the i uc .

Thi r inforc

nly

u

int r IC C "
th

p rti ipat d in th

d fi i n ie .

and in th r - rganizall n that enabl d imp

larifingt h

re ult

al

in fi 1111 d f the

ti

c re di r

he latta LI

d in e

e

of

r du at1ng them elve ab ut the proces and the i uc

the pre 1ou di cu 1011 of 1101,{tcatwn and ac

lo LIi ornza l ton.

Ir the

ation to prepare fi r participati n,

fail t pro idc th neces ary time for Fir t

and the information I rovided i inappropriate to their abilitic , then the level of re ourcc
pro ided

b c me

a limiting

fact r in

rncrea ing Fir t

ation ' leamrng and

understanding.

R e ource Provi ion
proce

Resource were provided at a minimal leve l for the Mt. Milligan
greater degrees for the Kerne

and Hu ck leberry

pr

e

. Fir t

and t .

at1on parti ipat111g

in the Mt. Milligan project were pr vid d \ ith fund fr m th pr p n nt to implement a
.

.

OCIO-e on 1111
r qu

tud y or their

ted, fi r te hni cal a

mm uni ti

tan e. A

and al

v ith g \ cmm

rding t the gov mm nt, Fir t

116

at, n 1m h d

in th K m
t chrn

nd Hu kl b n

al

er

111 addit1 n

ind I nd ent t

hn1

Ia

Ith ugh r

ur

Milli gan pr J

t t

th

I

imilarl
pr

f[i r d g

nne l Ci r

fi r tra cl e p n

id ed fund

and

tan
pr v1 1 n 111 r a d in th

K me

I 1111 n th at in b th th

e111rn nt p r

and I-lu kl b rr

Kern e

111d p nd nt tcc hn1 al a 1 tan

pr j e t

and Huck! bctT
\: a

c

ir t

I r jc t

111 uffi icnt.

- fr rn th

ati n e pre

Mt.
d the

th e le

f fundin g Ci r

n

intcrvi ewec " c

rdin g t

nl

given

2 , 00 fi r third paii

0

f

wn 111 nc .

c nc ded m re rn ney to learn ab ut the 1mpa t ".

n th r fa t r th at c ntribute

th e per cived lac k o f upport i th e n cd fi r tim e.

\: r

cc rd1n g t

ur

te hn1 al rev iew and we end ed up

nc re I nd nt " c needed more rn ncy r 111 re tim e" . If Fir t
f n t1fi catt n tim e, and

pr vid ed with minimal am unt
appropriate t

th eir abiliti e

ati n arc

ith infi rrn ati n whi ch i not

and language, they require fundin g to prepare fo r

pat11 cip ati n, o th at th ey can 1nc rea e th eir lea1111ng and und er landin g
th e proc

pendin g

f th e i uc and

and thu influ ence the dec1 10n th at are mad e.

Participant /11flu e11 ce

Fir t

ati on , in all th ree ca e of

, rccc i cd writt en feedb ac k fr rn th e pro

accordin g to gove rnm ent re pond cnts, in clud ed r
I o, accordin g to g vernm ent re p nd ent , Fir t

luti on

t

th eir vo 1 ed

\~ hi h,
n cm ..

ati n had an 1nflu n c on th e d 1gn

f th e proj ct in way th at tri ed t av id or miti gate imp a t t ab ri gin al ri ght . F r
e am1 le, ac
path t a

re.lin g t

id m

ne r I ond cnt , " th pro p n nt hang c.l th pro ] o cd p \\ cr-l!rn.:

e habitat th at Fir t

ati n id entifi ed" . In th I lu kl cb 1-r f

117

pro , --

n r p nd nt
aided in impr
h r

Km
\\ a

re
LI

,h w \ r

ti

n g t1at1

g vemm nt" .

111

d ubta

arfi

11 \VI th

Ir t

ati

proc

. Thi

authority in th

r the pr
r the pr

and Ill

e

111 the

" be au

"there

internal to the

c , 1t did n t appear that the Iim it or

ir t

discus ed pre i u ly,

ir t

wa

pm1 n that th y fi It that they had n

inOucn e

mrncnt leads l the quc ti n of whether or not the limit

ver th

r Fir t

at ion

proce

is very imple. In the ca

that the

h1ch Fir t

all n can

rown wn the land, Fir t

ati n input and inCTu nee i directed to issues that involve impacts to Fir t
right

and communitie .

"what we are tryin g t d

sscntially, as another go
I

balance the mineral ri ght of coq rati n with Fir t

ituation where their ab riginal right
1 a pr ce s that strives t
lf-dcterminat1 n and equity and

innu 11 emu t

ati n '

mm nt resp nd nt commented,

aboriginal ri ght ". Within this ont xt it appear that Fir t
t

A

pr ces e were con eyed and adequately defined.

ccording to one government respondent, the conte t 111
111 n uence the

'l

ati n

a that app ared t dern n trate h w their input wa

\vcrc defined in the I r cc .

at1 n c, pre ed the

[ parti ipant 111jlu II

ati n received written reedback that pr vided them with

1 n-mak111g pr

th

at1 n ' auth nt

11

mmitt

t

r J

mment d that "Fir t

C

pr JC t had Ii tlle innuen

Ith ugh Fir t

t

\ h ther the bj

amp! ,

lull n t their c n rn 111 a
Cd t

n th

,,
ed .

and llu kl b IT
n

ati n parti ipati n

ing th ng rt \ hi h th pr J

d. . r

hi

a

I

mm nted th t " ir t

111

r their

rp rat

ation ' 111Ducnc i re tn t d

mrnunitie arc p tcnt1all

n ept

u h a

ill have t rn vc b

IL

1mpa ted .

ultural div r it ,

ial ju t1cc, th degree t \\ hi 'h Fir t

pand. In thi event, E

at1 n

'

ial

attl n htl\ c

ond a balan 111g or n~ht

that th

r

granted and i tr ing t h n r. If ir t

nh

innu 11 C Ill th
d fin d.
re

1 i n-rnaking pr

ith n
n

t cau

rn

ir t

ati n ar G recd t a ept pr p

ha e n p wer t

all n ' part1 ipat1 n Ill the . .

pr jcct a h1 \ d th

Huck! berr

pr

e

hJ

not d that in al I ca

t1ve

fi r Fir t

port, LJW!ton h yond , •otrng. repre

d

ntc t th m th r than in a

pr

fi r the Mt.

illigan and

[ rcsourc ) pro, ·t ·ion and rcpres 11/atio n . The
[

at1 n ' paii1c1pati n a hie cd the objective
nlalton . and resource pro1 ·1s1011 . l lowe

the achi verncnt

f resow·

er, 1t mu t be

JHO\ 'LS1011 and r(!pr )se11tatw11 i

weak.

ation did receive re ource ; h wever, they appear to have lacked ufficicnt tim

for pr parat1on and were

upplicd with an inappropriate G rn1 of information.

Repre entation occuned in that Fir t

ation ' repre entatt ' C

pre entation , but according t First Nations' respondents "n
concern "

t

thi

point 111 ti me it appear

ati n ' pa11icipation attained the objective
and 1t i unclear wh thcr the limit

f Fir t

that none

119

and

aluc v a pla ed on

ur

proce e

1r t

fi r

f parttctpant I an1111g and under. twulrng
alt n 'authorit

pr cc c fi r Fir t Nati n ' paiii ipation arc fi und t

cffcct1vcnc .

attended m etlllg

[ th

ex t nt they actually influen ed the clcci i n-making pr
the

mu t be cl arly

ry

In umrnai

Fir t

th

f th ir auth rit

limit

[

[Im\ .

11111 m a

Kem

th

finiti n f auth rit , ir t

lut1 n t th 1r
urt

e

ati n ar t have thi kind

\\Ct-c defined and t \\hat
Or th
ha

C r a On

, none Of

ub tant1\

pol1 )

h

pr

lamati

r the

11

ir t

ati n ' pa11i 1pat1 n 111 thr

n th

Pr J

mmitt

gni ti n b

the re

mm1tt

ma

wa

ati fi e th

.. ir t

en

influenced

ati n

: Fir t,

ub tan ti e p licy
g1 latin g

ir t

ffe tiv nes

ati n repre ntati n

bj e ti e f participcztwn h y ond voting; e

that th ey ha

uragc p t nt1 all

a legal ri ght

affe tee! , n n-id cnti fi ecl

for

nd,

it on th

Proj c t

ati n

c me

ir t

0 n" ard , th ereb a1d1ng in th e a h1 ev ment of repre. nfatw n; and third , th e in clu I n f
ir t

ati n

n th e Pr j

infi 1111ati n. Thi

t

mmitte

may aid 111 pr

kcci

th em infi rm ed ab ut change

iding a learnin g forum th at stri ve

t ward

111
th e

a hi e\ ement or par/1 ,pant !ean1111g and 1111c!erstanc!wg o rb th th e i ue and th e
pr cc .

5.3 Tran acti ve Policy Effec ti ve ne
Tim e Managem ent

First

ati on ' parti cipati on in the EA proce

fo r th e Mt. Mill iga n project wa managed

without undue delay or costs to the propon ents or other . Any delay

or co t that

occurred during the proce s were not attributed to Fir t Nati on ' parti cipati on 111 th e
proce s but we re a res ult of th e pro ponent taking tim e to fini h tudi

and prepare

reports fo r th e proj ec t rev iew. Howe er, th e Mt. Milli gan

did not ha\ e

pr cc

establi sh d tim elines for projec t rev iew.
imil arl y, the Kern e
but conve rse ly, wa

pro e s fa il ed t ha e e tab Ii hed tim line for r \ 1e\\,

managed Ill a manner th at au eel undu ~ d la
ol d with th e Kem

r C t

the

proponent or oth er . Fir t Nati n

111

g vemmenl fail ed t inti rm th em

f what e m lo hav b en a "fo t tra ' k111g" or the

120

~A

!ai m d that th

d

11 -111

king pr

app ar t

e
ha\

during th

latt r

hni al rcvi \

h1 h th pr

tran 111 ncd 111t th e E

ha I n

[ fi rt - fi e da
rnfi mnti n th at wa

the r v1 \\ .

nc fe lt that the

in urr d additi nal c

timclinc

d, th e Pr j ect

c ntribut d

th at may have al

hi

he latta

arn cr

th

l rep rt

r qu1r d thr

mmitt

ca h, to c mplctc th eir rep 1i.

e ten I n inc lud e th e fact th at th e

t a a

initia lly, but after b in g

ubmitt I b th pr p nent wa in uffi cicnt fi r re

th r va ri abl e

had been

r 11 \\ d legi lated ti mc lin c fi r the pr j

. th pr cc

t1m cl1nc were fi II

Ith ugh th

rcv1 ""

th

cau e th

pr je t rev1e

a rnanag d.

1Iu kl b IT

Th

f th

a J e

b en ru h d, and th

g1 n in uffi i nt fund t h Ip\ ith t
r ult [ th rnann r 111

tag

wa

be au c

I in g i uc

f

need fi r th e c

ati on ch c an advcr aria! tan c

again t th

Hu kl eberry proJ

t, whi ch may have

, ha i ng

ir t

at1on

n th e ProJ ct

mmittce furth r contributed to a large and cumber

me

it

au ed delay .

w rk1n g gro up , whi ch \Va diffi cult to manage.
!though th e management of First

at1on s' parti ip ati n on th e Pr Jec t

omm1ttee may have contributed to th e need for th e cxtcn I n to compl ete th pr JCCt
rev iew, th e proponent e pcri ence<l no undu e delay or c
intervicv\icc, th e co ntributi on Fir t

ati on

c ordin g to

ts.

mrn itt e le, cl

pr vid ed at th e ProJec t

" improved th e proj ec t des ign, whi h in th e I ng run may have

aved th

appro imate ly ten rnilli n doll ar ". I lowevc r, the I gi lated tim clin c

f th

a co rdin g t
we re forced

Fir t

ati on , c ntributed t

pend

an I fund

in

lcg i lat d ti me!inc for th pr j c t w r

undu

o t t

th e

nc

he latta. Th

pr p nent ·

h latta

rd cr to re I w the t ' lrn1 al inlormal1 l n, a th
r tn ti c.

I I

o t M anagem nt
Th

re u It

f tht

tud

th a hi

111 nt

f bj

at I a t

t and \ a

111 urred b

the g

1ndi at that it i que ti nab!
111 II thre ca e

tt

nab le.

ir t

r m I art1 1pat1 n 111 the

pr c

heth r r n t th c
pr gram for

1r t

at1 n

ed fr In l\

ati n ; and. c

wa

te hrnque

ed, but 1t I

ir t

ti

C

ir t

pr

e

f the

ati n re ulting

e111111ent and/or pr pon nt t

I art1c1pati n 111 th

a

11 In _,

p r p

t incu1Ted by

incurred by th g

d1 cu c I pre 1 u ly,

que t1 nablc .
empl

ati n ' I arti ipati

f ir t

an b

t 111anag 111 nt in

nrn1 nt and/ r pr p n nt re ulting fr m impl m ntati n

pa111 1pat1 n Ir gram fi r

th

hether pr j

ndu t

were minimal

ations accepted the con ultati n

unclear whether the e techrnquc

\N

re their preferred

h

. If th t chnique empl yed were not their preferred choice, the co t of achieving

th

bject1ve could p tent1ally ha e been le

fi r the g vemmcnt. In the Kerne

according to go emment official , lea t o t
m ney wa

required to try and get the

a n t achieved becau e e tra time and

say Key

withdrawal from the ethn graphic tudy .

E ,

ene to participate, following th ir

dditi nal cost were incurred t infom1

member , as their repre entatives fail d to

onvey infi 1111at1011 pre ent d b

and
the

government and/ r prop nent during meeting con erning the project.
ccording to the gov mment re pondent , cost in urr d b Fir t
three ca cs were minimal, as they went to
I er

nnel for techni al a istan e and, in th

furni hcd fund
a

for travel c. p n e

re.ling t Fir t Nati n , the

ir t

t that the

, pro\ 1d d

ation ' c mm uni ti

ca c

and third part

at1011 in all .

f Kem

an i Ilu kl bcJTy,

te h111cal re\ IC\\

.

I lo\, , ~r,

mcu1T d a a r ult or part1 1pat1ng in the

r n t rni111m I.

Km

d the

ir t

ati n that parti ipated in th Huck l b rry and

iew that th am unt

v a inad quat fi r th m t I arti ipat in the pr
all

d G r parti 11 ati

th

" Thi

had t

great!

c

g1

, th

e aggeratcd their

e\.pcn kd l parl1cip ·1t 111 th man

m

1t nthePr)Je

ub tantial and had an a

th ca

mm1tt e , a

c uld have

that th 1r l1t1gat1 n c

me a

,,cr-c co t the

f tim that

a

e c uld learn ab ut
time that

ir t

ati n

ting and, e I e ially in the Hu kleberry ca , t
·t atta h I t

d

,,

i l. In

p nthalfamillion

ne, ne re p nd nt c mmcnted that "

fthe

111 Ii tigati n

hilc an ther re p ndent expre ed the
incurred a a re ult

1ew

f parti 1pating in the

fi r the I l uckl bcrr proJ cl.

procc

ation in all three ca. e incurred n n-m netary o t . F r c ample, in th

ir t
Mt. Milligan -.
of cottage

proces , the

by

ut icier

ak'azdli First

ati n ob erved an increa e tn the building

within their traditional territory

c mmencement of the project.
the

n the am unt

and fund

LI

tan e

f funding G r t hn ical a

Ill

ant1c1pat1on of the

ccording to ne interviewee, thi increa e in buildmg on

ation Lakes cau ed ''concern and tre s within our community and

p ciall to th

Keyoh holder that u c the area for traditional acllvitie " .
EA pro c , the Tsay Key

ne re ailed th impact

fa large dam

government con tructed three decade

ago, whi h !lo ded

omc

In the Kerne
that th

traditi nal te1Titory . The pro pect

f another large pr JC t that

their traditi nal territ ry aused oncem and tre
break it will ruin

nc

ould p tentially affc t

, ithin the ommunit . "If that dam

ur river and th 11 we have n th111g,"

dditi nally, th T ay Key

r th 1r

]aim I that in th

11

111ten 1c,, c ommcntcd

latt r tagc th

pr C

' ' \\ tL

fa t-tra k d

au ing additi nal tr

. "We

rried, a it I

g 111 g 111 and th r \va n thin g v\ e c uld d ab ut it'
ln th
at1 n '

Hu k I b rr

mmun1t1

w re agam t 1t.

, 1r t

c

m Fir t

111mu111t1

111

n and within

nni l bet

ir t

pr j ct an I th r

rd1n g t intcrvi \ c , th e "pr p ncnt upp rtcd thi divi i n am ng
\ er th pr jc t area an I pr fercntial trcatm nt

at, n

gr up ".

hi

lvcd, a

rdmg t

nc r p nd nt, a the pr p ncnt u cd "th di id c

nqu r tcc hniqu \\1thin

pr 1111

\ a

as

mment d.

e

ati n \ r in upp rt or th

at1 n b1 pr \ 1d1ng h li e ptcr trip

rt '1i n FI r t

and

, a

th r

ked like th min

11 n i l

au cd unn c

ary

fi r th e

tr

ur c mmunit t get upp rt fir th e proj ect.

fJo b and bcnc nt

omc or our pc pi e t

ga in

hey mad

upp 11 fi r the project,

cau mg c nn1 ct bet\v en ommunity membe r ".
Th d gr e t whi ch a h r th e ca c
Mt. Milli gan, Keme
co t I d1 fll cult t

ati n ' parti cipati n 111

fi r th e

and Hu ckl cbcJTy proj ec t ac hi eved th e bj e ti e at a rea onabl e

d tem1111 e.

ith facilit ating Fir t

r First

ordin g to go emm ent intervi ew , th

ati ons' parti cipati on in all three ca

given th e fact that 111 the Kerne

enc'

t a oc 1ated

on id ercd rea onabl c,

proj ec t th e costs were increa ed. Thi

as ociated I robl em with th e Tsay Key
communi cati on between Fir t

wa

c

wa du

withdrawa l and th e perce i cd la k

at ion ' rep re entati vc

C

and th cir Band rn mber

However, ace rding to irst Nati on , th co t th ey in urred, both fro m a time mon y and
c rnrnunity tre s/c nCTi t per pec ti ve, \ ere n t rea onabl .
Rea ons [i r th e difference

r opinion bctv c n th e g , . rnm cnt an i

ir t

at1 on

n wh eth er th e o t were rc·1 onabl c ma l c du t th gov mm nt bc111g uml\\ arc or
th e c c

ts t

first Na ti n . II we

r, a ord111g to int rv1' \\ , Fir t

at1 n tried tt

ml

th g

en1ment

mmunit
m n tar

ar

tr

urnng b th rr m a finan ial and a

tI

t rm ,

h r a

emm 11t

ir t

ith n n-quantifiabl

ffi ial

ati 11

m1 n nt

t nded t

tri tly in

ts

t n t nly in 111 netary te1111 but al

u ha

tr

and C nnict.

II Ill Ill {tr)'

In

u 111 m ar , F I r t

K m

a t i n ' part 1 1pat I n 111 the

pr

r th

e e

Mt. Milligan,

, and Huckleberry project did not achie c the obje tivc r tun manag m 11/ . he

Mt. Milligan _..

pr

e

av ided d la

up-front t1mcl1nc . 1milar to

t the pr p nent and ther , but failed t pr vid

fr nt tim line , but due to what appear

undu co t ( tre ) t
hand, Vva

ir t

pr cc

failed t pr vide up -

to be fa t-tracking in it

later tage , cau ed .

t. Milligan, the Kerne

ati n a a re ult. The Huckleberry

pr ce , n the ther

ubJected t a leg1 lated ttmelinc, which duet c mpre ed timeframe
xperience undue co t , a they had t

1r t I ation

u e Band Cund

cau ed

fi r techrncal

ass1 tance
ation ' participation in all three ca es of

Fir t

fail d to attain the bjccti e

at the lea t co t, becau e it i unknown wh ther participation techniques pr Cerred by
Fir t

ation c uld have co t le

and the c

t incurred b Fir t

ation (time, rn ne 1 ,

and stre ) do not appear t have been minirni1ed . Wh th r r not th c
the

bjectivc

que ti nablc .
be rca

for Fir t

ati ns' participati n in th

The m 11 tary co t to the g

b

\\ a rca onablc 1

ernmcnt/pr p 11 nt, in thi pr

c , app ar

and n n-m n tar

o t 111 urr d t 1 f-< 1r t

nab! . Th r G r , due t the un

rta111t ' Ill .1chi "'\ 111g k.1, t

nab le . However, th

Nati n app ar to b unr a

pro cc

r ·1 hi \ 1nu ·

monetar

t and th fa t that r a
all n ' partJ I pat1 n ar

[i und t

n n

f th

·rnd

t manag m nt ·111 ca
Th

crG Ctl\ enc

pr

pr

lamat1 n

l um b I a. l I \\

ha e a hi

[i r Fir t

f I Fir t

111

bj e Li e f

t managem nl.
f time

ati n ' parti ipati n a hie ed the bjecti c

r the

alt 11

th

d th

[i r First

pr ce

failed t ha e tran a ti el Ii y effcctivene .
did

infiuen c th

11

pa1iic1pal1 11 Ill

r, it mu t b

legi lated timelinc

a n t attain d n ne f the

nab le c t

r min

de cl pm nt in

n t cl that the pr clamati n

Hu klcbcrr

tran active

r the

J

licy
rili h

did initiate

pr cc , which provided ce1iainty G r Fir t
Ith ugh the timcline pr vie.led certainty r the

pace

r th proce

pr J

t v. 1th111 th

[i r the

he latta, they di I n t p

c tlm lmc and

c

the apab iliti e to re icw the

ere [i r cc.l t 111 ur undue c

l .

5.4 0 erall Policy Effectivene

F1gur

. I pr vie.le

a

ummary or procedural,

effecti ene s [i r th three case tudic .

ub tantive, and tran a ti c policy

f the three case

f Fir l

ation ' partic1pat1 n

in the

A proce e of the Mt. Milligan Kcrness, and Huckleberry project , not

[i und

to have

verall policy effectivcne . Thi

re ult , \\hich indicate that all the

.

.

rca 011mg 1 based

a c failed t a hieve pr

n th

ne v. a
prC\'IOLI

c lural, ub tanti\e, and

tran active policy efficacy.
H wever, although there were no

pro lamati n or the
effect1vcncs

a e

or o cra ll p Ii

cffc tivene

the

re ulted in gain t v arc.I the a h1 vcmcnt of , crall r II

[i r Fir l Nation

' participati n in "

A innuenced Fir t Nati n 'part1 ipati n in the

I 6

· entiall _, the I ro lamat1on
Ill a llllllll

r

!'\\a) ,

r the

MT. MIi I

KLEB 1 RRY

T DY

ET DY

Pro cedural
tifi ati 11

ye

ye

ye

C

11

11

11

n

11

11

y

ye

ye

quc ti nable

quc tionablc

que ti nabl e

In ri rnn t 1 11

n ultat1 11
h11 iqu
R p rti11g
air, nd
r-

-

Sub tanti ve
Part1 1pat1 n
nd oting
Repre entation

t----

Parti cipant
L am1ng and
nder landin g
'R.e ourc Pr vi 1011
Participant
Influ ence

11

-

---+--

-

-----!----------!

11

-

---- -

---

ye

ye

ye

ye

11

n

no

y

ye

ye

no

no

n

11

11

no

no

n

no

Trans active
Ti me M anagcment
t Management

igurc 5. l

ummary of Pr

cdura l,. ub tanti

, and Tran a ti

Poli

rri

ti\ enc

ir t, th I gi lating f timelin
pr

m arc f th d

c

ati n

infi rmed and made ir t

1 n-making pa

Pr j c t

1111111tt

n-makin g had be n fa t-

at1 n were given a legi lat d right to it on

fi r the Hu kl b rry

n ' part1 1pat1 n at the Pr jc l

mm1ttcc leve l pr vi d d infi m1ati n and tec hni cal

hi ma hm c aid d in their learning and under landin g f th e infi rmati n that

u p rt .

d alt v. 1th the

Ir cc

and the proJect it elf, and gave

ir t

at1on a role in th e

f the re ult of th pr JC t review. La t, the inclu ion o f Fir t

r porting
Pr j ct

pro e s ir t

of th e pr

nd , and 111 r imp 11antly, ir t

all

wh r a in the Kem

p n nc d trc , b au c th e felt a if th deci

tra k d in th lat r tag

th

ati n in the Hu kl berry

ati n on th e

0111 1111ttcc r r the Hucklebcn-y proJcct ai ded in th e rig ur wit h which th e project

was re icwed, re ultin g in de 1gn impro vement and pos 1bly long tcrn1 cos t a ing to
th proponent.
Jt mu t be noted that, in thi . tudy, th e use of the analysi framework (Figure 2.2)

can be appli ed to disprove, but not confi1111, overall policy effect ivcne . If, for c. ample,
all three cases of Fir t Nations' participation had been found to po cs efficacy fr m the
three perspect1v s examined, overal l cffective ne s cou ld not be c tabli hed, du t a la k
of analy I

from a purpose per pee ti\ e. However, 111 th1

tud , ccrtai n ob en at1 n

sugges t that, from a purpose perspective, effica y w uld n t have been att ain d. Fir t,
th re appear to be littl e ev idence to ugge t that the government r pr p nent acquired
tradition al eco logica l knowledge (T K) with the purpo e of ombining it v. ith c,p rt
kn w ledge to improve th e deci ion -making proce . R·1th r, it appear that TFK \\ a on!)
a cc ed and c mbin cd in situati n

where it aid d

111

m.oiding mfnn gcrncnt on

a

riginal ri ght .

nd , th g

a1 I car

t

emm nt ' d finiti n f

dri v n by a fear

ab ri gin al ri ght . Fr rn a purp

ir t

ati n ' influ nee in th

f litigati n, if infringement o cur

e per pec ti e, th e go

rnm ent

n

h uld d n c it

m ti at, 11 t pr

1dc p ,vcr in de i i n-mal mg t Fir t

ati n t pr mole u h thin g

a

m1111 at1 n, ultu ra l di er it , equity and

cial ju ti c ( ardner, 19 9).

1al

If d

Th r fi r , th

b er\ alt n

uggc t th at at a purp

attain ed .

I 9

c per pc li ve cffi ca y would 11 l be

IX

n lu I n

and
Rec mmcndat1 n

6.

n lu ion and R c mm ndati n

Thi

tLI I ha

h v. n that th

11\Jr 11111 11tal a e me11t

patil 1pat1 11111 th Mt. Millig·rn, K 111c
lu111bia w r

ri ti h
ub tant1, c

rri

n t cffc ti

and tran a ti

II thr

ca c

failed

ir t

r mined

ati 11

cl J m nt in

a hi vc pr

cdura l,

effi a y and th reby fai led to met

verall p Ii y

rri ell\, en

wa

r the ca c ,

lamat,on

f the Environ111e11tal Assessm ~111 Act re ultcd

ti\ enc
lth ugh

\,

rail p Ii

d1 f[i r n c 111 !,cat that the pr
111 ga111
pr

and Hu kl b rry a

r

t ,,ard

the achi ,em 11t

r

11 t a hi vcd fi r any

vendl p Ii y effectivcne .

lanntion of th E11, ·1nJ111nc111al. l.ssess111e111 , l et innuenc ·d Fir t

m the

cc

nv1 ronm ntal a

pro 1d111g definite proce
member

f the Proje t

ProJect

omrnitte

b

cntiall y, the

ation 'paiiicipation

pr v1ding legislated tirneline

t1meframc - and the legi lated right fi r ir t
omrnittec. The right for First Nation t

- thereby

ation to it a

it a member of the

provided them \ 1th additional information, acce

additl nal

t chnical uppo1i, a r le in writing th pr ject report revie , and a greater opportunity t
influence the decision-making proce
However, thi study fi uncl that
for Fir t

rill h

ation ' participation in rn111

overall cffectivenc

olurnbia' environmental a e ment r oli

development mu t cv he further

Recommendations arc arrived at u ing th

pre nt a

p !icy cffcctivcnc s fi r all ca cs, ombin d with the change in rri ti, en

a h!C\ e
Ill

nt or

a a r ult of

the pr clarnation f the £11\11ro11111e11tal Assess111c111 A I
It lllll t be 11 t U that at the
d

prncnt 1n

ri l1 h

11 Cl

f' th, ' tud certain thcr ca.

lurnbia, invol ing hr t

131

' l f F.\

or 111111 "'

at, n , ,,ere 111 pr grc . ll ,,c,cr,

th r u It

f th

dat , n

11 .

f the

n c n lud ed. If tudi d in the futur

t - ha b

th Tule quah

pr vid

furth r In ight 111t

the inn uen e

r the pr

lamati n

all n

parti iJ ati n 111

r 111111

1 pment

111

tran iti n d int the

fr 111 th1

exam in d 111 th1
•

f thi , 1t i po ibl that

ma

tuc.l

bJ

tucl , th

qu

ti\c.

[i II v 111g rec

ert ·11n trait

r th

pr c

edural effecti enc

t.

n th

ca e

it mu t b open, fair,
tudied ra1 e

pr CC e

in fact achie ed the e criteria. Fir t, it wa

[i und

I to provide, c nvcy, and clan fy how the re ult

ations' partici pati n in the pr cc
, Fir t

it wa ·

rec 111111 nd ati n re ulting

di played within the

that the go cmmcnt/prop n nt n

making.

lurnbia, a

mmenclati n ar made :

a hie e pr

ll n ab ut \\hethcr th

[ Fir t

m

ir t

n

been 1111ple111cnt d. I I wever, ba cd

In ord r fi r th
and

f the

riti h

hi r

hief pr ject may

at an earl i r tage than th Huckleberry pr j

n I I rati n

[n

u Ie eq u h

- th

a

wi 11 be u cd t

affect the de

ati ns mu t be informed ab ut h wt become invol ed, o that

they can provide thi 1nnuen e.
econd, First

ations must be asked what participati n technique they prcfi r,

rather than what techrnque are a ceptable. Ju t becau e me ting and pre entat1on
take place in Fir t

ation 'c mmunitie and, arc accepted by Fir t

ation , thi d c

n t mean that the c te hniques arc the preferred ch i c fi r · 1r t

at, n . Th1ru, the

g vernmcn t need t find a way t m1111m11e p t ntial fi r prcfcrent1al tr atm "'nt

gr up

[ Fir t Nati n by the pr p ncnt. Thi . tend t

r 1r ·t

at1 n gr up , rather than a con en us, in rca ing the

re ult fpart1 ipating in the E

pro e .

I_-

r at

·1 di\ i ion

to First

f

l cl\\ . . '11

at1on a a

a t the finding
I pl 111g th
th1

lllC

n

a unabl

pr

h u Id b

Ir vid

taken a tentati

and pr liminary.

bje ti ity i a c mpl

, and

an 111 -depth mea urern nt

d d t d tem11ne wh th r the

criteria

matter, and

f the e, further

re ati fi d and t pr vi le·

mmendat1 n .

Th r ult al

E

tud

r penne , faim

riteria

tud

additi nal r

f thi

h w that, if pr c dural p Iic effi cti en

i to be attain d the

mu t pr v1d tnfi rmat1 n that I appr priate t th ab1litie and lan guage

f FJr t

at1 11 , 111

p ri I

f n ti fi ati n

rder t

a h1eve the g al

uld b

infi rmati n bject1ve 1t i al

re

[ ac e

infi 1111ati n.

re-c amined. In order t

Io, the

real1,1,e the acccs

to

mmcndcd that, pri r to the commen ement of an

pr cc , the g \·e111111 nt and or proponent h uld detcm1me 'v hat form (written
ral, the 1 nguagc to be u d., and th amount of e planat1 n t include) 1 111

r

uitabl to the Fir t
mov

at1on ' community 111v lvcd . If Brit1 h

olu111b1a'

t \.\ard accepting and incorp rating TEK, the amount

mu t depend on the availability

pr

C

f n tification time

r this ource and, h w mu h time i required to

collect and docum nt the mfonnation .
•

In order for the

A process to achie e sub tantive policy effect1v ne , the

g vemment/prop nent mu t addrc

need

Ill

regard t

repre entati n, parti ipant

learning and understanding and part1 ipant influence. When potentially affc t d Fir t
ati ns people arc identified via land claim

map , or

me forward rcque tm g

repre entation, it mu t be verified tint the

in fact ar r pre nt111g th

band

pt

th m in th1 ~ r le. fht

an be

mpli at d, inc there xi t three potential repr

ntat1vc y terns !or Ftr, t

at1011 --

that the govcrnm nt/proponenl

.1

133

ir

t

at, n ·

th

ri al
and · a

hi h

(K

h hold r) ha
it

Ill

mdl\ 1dual fr m the
al

thr

mu t be a

and· and a traditi nal land t nur

y tern

u cd a

pc i fi

tra t

ati n

diffi r nt

nt

f land fi r traditi nal

rcpr entati n

nc mpa

en ure proper rcpr entati n. It wa

ati n h Id the p r epti n that n valu

p1ni n . In

11 t n I b I h

r m r

that u ually r pr

ru ial that Fir t

b n d that Fir t
n cm and

ne

p litical b d

un ii that r pr

a fam Ii

\\ h r

a ti

un il

rd r fi r rcpre c11tati 11 t be a hi e cd,

1cal I part1 1pat1 ng In the pr

pla ed
ir t

n th ir

ati n mu t

e , but th Ir c nccrn and

p1111 n

pt d a b ing legitimat .

In the attarnment

f participant learning and under tanding, the g vernment

and r pr p n nt mu t pr v1d more 1nfi rmati n that 1s appr pnalc to the abi liti c
Fir t

ati n . The application an I pr Ject report e ecut1 c

uffi ient, if Fir t

ummary ar

f
n t·

ation arc l gain an under landing of the i ue of th e project.

I ng with the pr vi i n of m re infi rmat1 n that implifie technic 1 matter , the
level

f participant funding mu t be increa ed in rclati n to the tcchrn al capabil1t

Fir t

ation , to allow the hiring of 111dependcnt technical per onn I. Thi

criti al when fixed timeline fi r the procc
n th

Project

arc legi lat d.

Ith ugh

ommittec - wh1 h ma

learn - th y cannot uti Ii?e thi

pp rt unity t

ir t

ati n

pr v1d

g vcmrn nt technical a i tancc, infi rm them of the i u , and nhan

t

\\Otild

ue . The pro ision of funding i c en mor

further their under landing of th

have a nghl to sit

f

their b n fit if th

their abiltt),
do not h ·1\ c

adequate information and aclcquat part1 cq ant Cunding.

n cming the a 'hlC\ Crn nt

r part1c1pant inOuen e, the go

Fir t

rnmcnt mu st dcfin

·111011 '

limits

)r

auth rit

th rw1

pr
n t

nl

ir t

i11 be fi recd to a c pt th

1th ut ha lll g an mnu 11

11 it .

d finin g th limit

ati n ' uth rit . It al

n e 111g, and

[ ir t

larif in g h w th

r ult

n-making, and h , th ey can b

d

If

pr
d 1\ r 1t ,

111
o 1al

riti h

rd r fi r the

1n

f

ir t

me 111

lumb1a i

lcg1 lated t1m 1111c 111 the

n

itat

require
pr vidin g,

ati n ' parti ipati n will affect.
cd t

crt th ir auth rity 111 th e

mc rp rate concept
and

u h a

ultural

ir t

ati n '

1al JU ti e,

to ac hi c c tran active p 11 y c ffcc tivcnc

th

uc dealing with ti rn and c t management. The u c f
pr

may provide certa inty for Fir t

ation a t

f the J r cc . HO\ ever, 1f provi I d re ourcc , u h as funding, arc n t

th e pa

adequ ate t compcn ate for the la k of technical knowledge th at Fir t
p

n-making

n I it current I v I.

..

go ,,cmrncnt mu t addrc

d

hi ving parti ipant inCTuen

If- d tcm1111 at1 n an I cq u1t

innu nc mu t c,1 and be
•

ati n

c , Fir t

ation may

at1on wi ll 111 ur undue co t 111 trymg to part1 1pate wi thin the c
proce s 1

co nt111u c within e I ting

legi lated timeline , the technical capabi lity of Fir t

ati n must b e aluat d to

Jegi lated ti melin e . Therefore if the

determin e what leve l f funding h uld be pr vicl ccl in ord er to a oid undue c
First

to

ati ns.
Whether r not the co t of First

leas t co t, or rea
The c st

f Fir t

m nctary c

nabl e o t, the g

ation ' parti ipat1on 111 the

ernmen t mu st r -d fine 1t definition

ation ' participati n in th

L t

F 1r t Nat 1 n, . h r t

I

the

f co t

it 1 n t lim1t d t

111 urrcd by the government pr p n nt, but mu t aL

mon etary and n 11-111011 tary

pro c

the

111 'ludc the

at 1 11 , ' mc nct a I) o st s ncnl

t b m1111m 1z d e
rt

u

ubJ

ti

d.

mmunit

ir t

ur m nt

and

nablc. Jfth

nab ] adequat

ati n ar dirfi ult t det 1111inc

mp Ii at, ng · al uati

111 mea

trc

nd fund ar u ed t

t i dep nd nt n tim management, a wa

n-111 n tar

, th r fore

thi inherent difficult

r a

h re

hni al infi m1ati n. Thi

pre\1 u I d1

u h a

a

in

r, alth ugh there

r n n-m netary

ne an ay that

nni t, if n t minimi/ed, cann

be

nd uctcd in way that pr m t

and C nni t, it

tre

n i lered

1 una c ptabl

Inc nclu 1 n, ir

ir l

m111 dcvclopm nl 111 Bnti h

r the thre

ca

ati n

lu111b1a c ntinuc t be applied in a imtlar manner t tint

c amined, th

n 1ronmcntal a c ment pr

pa111c1pation will fail to b effecti e. ir l
that provide acce

and

pa11i ipation 111 en ironmental a e ment for

e

fi r Fir t

ati n require not only the choic

ati n '

r method

pporturnty for their participati n they al o require mean

u h

a limits of authority, adequate funding and under tandable and appropriate infi 1111at1on
that allow th m to tak advantage of the opportunities to influence the dec1 1 n-makm g
process. As one respondent commented "In theor the
ir t

cl pr vidc the opp rtun1ty ror

ation to participate, but in reality th ey need the re ource to take ad antage

pp rtu nit y".

13(

r th

it ratur

it d

ppi ah- p I u, . I 4. 1 h rcti al n ntati n r -. n ir nm ntal
c ment in
anad a: ppli ati n t th Third
rid . -- n ir nmcnt . 22(3): 103- 110.
ku . and Mulam
mcnt. The a
111

. l 97. lndi gen u In tituti n and -- 11 ir nm cntal
hana. n 1r 11111 ntal Managem 11t. 2 1(2): 15)- 17 1.

tc111 , .R. 19 9. La Id r r iti1 cn Parti ip ati n. J urnal
1at1 n. _ 5( 4 ):~ 16---

tt '

r

rn cncan

Jannin g

1992 . I nd1 gcn u L

al Kn \,\, I dgc a a K to L al Leve l c cl pm cnt :
P ibtlit1
n traint , and I lann1n g I sue .
111 Tcc hn I gy and
ial
hang ,
. 20. I v a tatc rn vc r tty Re arch und ati n. me , I a .

eakhu t, . 1977. Th e erg r lnquir . In In v lve mcnt and nvir nm nt : V lum c 2 .
nfe rcnce n Publi c Pa11icipati n, anff, Alb e11a,
Pr
din g f th c
ct bc r 4- 7, 1977 .
. adl cr. The Envir nm ent
un ii r lberta.
lb rta.
eatti

erythin g You Iready Kn w b ut l But
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ere ford , P. and r ft . 199
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ac Mill an Publi her , cw Y rk.
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Practi cal

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uid c for

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Bonnel, V .E. 1980. Th e
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ompari on in Hi t ri cal
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nig l M . 1 92 . Pub li Participati n:

mp nent

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Hu ll , ueb c.

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14J