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Nesika: The Voice of B.C. Indians -- Vol. 2 No. 2 (March 1973 - Special Issue)
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Nesika: The Voice of B.C. Indians -- Vol. 2 No. 2 (March 1973 - Special Issue)
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1.06-01.02 Nesika: The Voice of BC Indians
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Page Two N E—E S |-K A March, 1973 Colonial policy recognized Native Title (Continued from Page 1) lands, arid the Act did not provide compensation. ACTUAL TREATMENT If the claim based on native title is denied because of extinction, what were the circumstances of extinction? In the few cases where lands were surrendered by treaty or agreement, some form of compensation was given. Was that compensation fair and enough? The extinction of title for the remainder of B.C. Lands — if, indeed, title has been extinguished — was not done by negotiation nor compensated for. Reserves were set aside from time to time for exclusive use of Indians, but the title is vested in the Crown, and our people’s right of occupancy and use of remaining lands have been effectively denied. Was that treatment and lack of compensation fair and adequate? _ RECOGNITION IN 1943 & 1960 Native title has been recognized as recently as 1943 and 1960 by statutes. We refer to Chapter 19 of the Statutes of Canada, 1943-44, and to Chapter 187 of the Revised Statutes of British Columbia, 1960. These: reciprocal Acts concern an agreement on the development of mineral claims on Indian Reserves in the Province. Each of these Acts contains the Agreement. of 1943 itself.in which the following. provision is found: ‘Whereas -from. time ‘to time Treaties have been made with the Indians -for:: the: surrender: “for various considerations of their personal and usufructuaty rights to territories now- included ‘in ‘the Province of British Columbia, such considerations including the setting apart for the exclusive use of the Indians of certain definite areas of land known as. Indian Reserves . The fact is that’ most of the Reserves in B.C. were not set up by treaties, that payment under treaties were not meaningful, and that there was no payment for the taking over of rights of Indians to their territories. But the important point in these statutes is that as late as 1943 the Govenment and Parliament of Canada recognized that there had been native title, and that title had given the Indians ‘‘personal and usufructuray rights to territories ...in British Columbia.” OTHER RECOGNITIONS Native title has been recognized in other jurisdictions; Spain-as a colonial power, Great. Britain. in North America .and her. other colonies, the United States. . Authorities argue strongly that native title is a doctrine of International Law and, therefore, that there is a presumption that Canadian law corresponds to International Law. ; It is surely too late for Canada "now to expressly deny native title, or to pay lip service to the concept and imply that-it is not practical to -determine claims. on existance of native title. _ SUMMARY OF BASIS OF CLAIM A claim is hereby presented to the Government of Canada on the following basis: (a) That Indians of BC. had “ native title to the lands formerly. used or occupied. by them; Since the arrival of the first ‘white settlers, our people were progressively and are now totally denied the rights which native title conferred. as to the lands, and .are- progressively being deprived of-the rights to hunt and fish over these lands; {c) That this denial — deprivation of rights has been done . without. agreement and without compensation, and only in very few cases by agreement but with nominal compensation; (b) ‘should feel that; and - (d). That the Government of Canada must now accept the validity of our claim based on native title and agree with our people on suitable terms for settlement. Placing and Timing of Claim The Union has decided to present the claim to the Government of Canada for the following reasins, among others: 1.. The actions .which have resulted in the present situation of Indians which in turn give rise to this claim were acts of state; the remedy can only be by further acts of state. 2. The land claim of Indians of B.C. is, apart from the matter of hunting and fishing rights, primarily for compensation — not for a declaration of present title. The claim arises out of actions of different authorities responsible for the general system of land tenure and land grant — the Hudson’s Bay Company, ~ the Colonial Administration, and the Provincial Government. The Federal Government has the constitutional responsibility for Indian Affairs, and, therefore, the responsibility for dealing with their claims. If the Federal Government ‘in -accepting Indian claim; it may claim for contribution against the Provincial Government, this should not delay dealing: with the-claim. A DIFFERENT FOOTING The claim hereby, presented i is on a ‘quite a different footing from. that of.the Nishga. Tribe... ._ Our Submission. is that. Indians did have native title before white settlers came; that whatever may be the present situation about the ~ title, Indians of B.C. have been and are; now. effectively denied occupancy and use of land and deprived of. benefits. of that title without or with nominal compensation. ; As has been stated, the claim here is for compensation — not for return or declaration of present title: / ON ITS MERITS Further, the claim here presented needs dealing with on its merits. These merits will not be affected by the outcome of the Nisgha Case. Our claim for compensation is based on denial of rights. inherent in native title. If the Supreme Court of Canada will hold that title exists, our claim for loss must be dealt with, unless the Government decides to return the province to the Indians. Tf the Court will hold that title no longer exists, this does not deny its past existence; claim for compensation stands. , Statement of the Claim - Briefly, the basic claim is this: (a): That Indians had and enjoyed benefits of native title to lands making up B.C., such as personal and usufructuary rights including use and exploitation of land and adjacent waters. That Indians, lost their rights conferred by native. title through different ways — by simple proclamation, adverse occupation, legal enactment, imposition of the legal system which turned: B.C. into Crown lands. : That under early treaties or ‘agreements for Indian surrender of their rights were “paid” in kind. For example, under treaties for land surrender in the Victoria area, a cash payment of two pounds ten shillings per man was Stated. What the Indians actually got were three Hudson’s Bay Company blankets; each blanket was 17 Shillings wholesale. (b) (ce) Except Tréaty No. 8, nothing was | paid to Indians for the rest of the lands comprising B.C. (d) That, besides other rights of native title, B.C. Indians enjoyed full rights to hunt and to fish all over the province; that Indians were assured in treaties or agreements of freedom to hunt and fish over unoccupied lands; that their right to hunt have been largely denied or eroded by game laws: or by. measures: like the Migratory Birds Convention; that their right to fish, specially salmon or kokanee, is increasingly pressured and attacked. BASIS OF COMPENSATION (e) That these rights were of real value; compensation or adjustment. should be made now as follows: G) Land , (including minerals and timber ) , Although difficult, valuation can be done in terms of money. Since restoring rights of occupancy and use is not practical, the only just and right course is to compensate for. what has been taken. (ii) Guarantee of Continued Hunting Rights , Indians have never consented to the taking away of hunting rights, nor -agreed -to international.treaties or other - laws limiting hunting rights. Thus the claim is for the return of rights; where impossible, the claim is for compensation. (iii) Fishing Rights The BNA Act gives full jurisdiction to the Parliament of Canada. This jurisdiction is . limited. .by such measures as ~ thes International Salmon and Halibut Conventions. Because -of this, some negotiation-may ‘be needed for restoration. of full rights of Indians. to fish. Subject ‘to such. possible negotiation: and to compensation. where restoration of rights to: fish is impossible (e.g., fishery has been destroyed), the claim is for preservation of the rights and return of the rights where these have been abolished. LAND ADJUSTMENT , FOR INDIVIDUAL CLAIMS This' Claim ._— basically~ for compensation and seemingly practical to deal with generally by - money award — does not prejudice certain current or potential. individual claims for adjustment of Reserve boundaries or extents. Some of these claims are referred: to in, this: Submission. in the part on Riparian. or Foreshore Rights. Other. claims concern adjustment of the McBride- McKenna. Commission settlement, Reserves .that were not enough to accommodate the people when set up, others. Such claims will also have to be settled — some under the part of this Claim on Foreshore Rights; some by a continuing Claims Commission, others by negotiation with the involved parties or - authorities. Extent of the Claim 1. GEOGRAPHICAL The Claim stands on the position that native title extended to all territory now part of B.C. Native title, though a well known concept, is not the same as the title system we know today. Generally, native title is based. on use. and occupancy and has been defined in Canada as ‘“‘a personal and usufructuary right. ay These features of native title and required proof of native title before the US. Indian Claims Commission sometimes lead to the idea that. claim. based on native title only affects areas in actual and habitual use in a literal’sense: ~ But claims before the U.S. Claims Commission are derived from U.S. law statute and not from _ common or Internation law. Thus, in Canada, we do not DANES this limitation: “Oh, let ’em stay for a while. What possible harm can they do?” SOLID GROUNDS The claim to all territory of B.C. stands on solid grounds. First, the argument based on the nature of Indian life prior to tthe coming of settlers and setting-up the Reserve system. Second, the argument based on alaleresie or decisions of authorities. FIRST GROUND © Originally, Indians in B.C. made their living from some cultivation ‘of the soil and mainly from natural products of forest, land and water. _ They. had identifiable. areas of settlements as well as much larger . areas for timber making, berry- picking, hunting, .and. fishing. Precise boundaries of tribal regions are not easily found. today, but research show that such areas embraced the whole Province. Further, the tribes within those areas.used unoccupied,. remote or . mountainous parts in a very real sense. Very dependent upon the balance of nature in very practical ways, the tribes used all physical features of. land: and water that made up that balance. SECOND-GROUND The following expert opinions or decisions support the position that native title covered all territory in B.C.: (a) Anthropologist Wilson Duff has spent 20 years studying Indians of ‘B.C. and: has concluded: “It is not correct to say-that the Indians did not :‘own’ the land but only roamed over the face of it and “‘used’ it.The patterns. of ownership and utilization which they imposed upon the lands and waters were different from those recognized by our system. of law, but were nonetheless clearly defined and cqulastig respected. _ Even if they didn’t subi and cultivate the land, they did recognize ownership: of _ plots used for village sites, fishing places, berry and root patches, _and similar purposes. Even if ' they didn’t subject the forests to wholesale logging, they did establish.ownership of tracts used for hunting, trapping and food-gathering. Even: if. they didn’t sink mine shafts into the mountains, they did own peaks and valleys of mountain. goat hunting and as sources of 1 raw materials. Except inaccessible areas which are not utilized even today, every part of the Province \ was formerly within the owned and recognized territory of one or other of the Indian tribes.” (b = Though. statute limits. Indian claims before the U.S. Claims - Commission to lands ‘‘actually in their use. and‘ occupation,” the. U.S. Court of Claims has for barren. and - given wide meaning of the extent of Indian title. ALASKA NATIVE CLAIM In Tlingit and Haida Indians of Alaska v. the U.S., on the question of Indian title and extent of that. title, the Court held that the Indians have a claim and concluded: “We do not mean to depart ...from the rule... that Indian title . . ..must be shown by proof of actual use and occupancy from time immemorial. But as is obvious from a study of the many cases involving proof of Indian title... that where the Indians have proved that they used and occupied a definable area of land, the barren, inaccessible or useless areas encompassed within such: overall tract. and controlled and dominated by the owners of that surrounding land, as well as the barren mountain peaks recognized by all as the borders of the area of land, have not been eliminated from the area of total ownership but rather have been assigned no value in the making of an. award, if any, to the-Indians.” U.S. FIELD COMMITTEE (c) The Federal Field Committee noted on its report ‘‘Alaska Natives and the Land,” October 1968 that: “The Alaska Native. land claims are primarily based upon ‘aboriginal use and occupancy’ — and the. ‘rights’? associated ‘with this use. Understanding of ‘aboriginal use and occupancy’ in both an historic and a current | context is of primary importance.” The Committee found, among others, the following: - “The aborisined Alaska Native completely used _ the biological resources of the land, interior and contiguous waters in general balance with . their sustained ‘human | carrying capacity and this use was only limited in scope and amount by- technology. “In their use of the biclozical community for livelihood the Native people ‘occupied’ the land in the sense of being on and over virtually all of it in pursuit: of their subsistence, but ‘they did ~ not ‘occupy’ the land in any agrarian or. legal ‘sense as understood by- Anglo-American jurisprudence.” 2. SPECIFIC EXTENT (a) Surface Rights — Claim for compensation includes claim for loss of use of surface. rights including timber, hunting and fishing, water, riparian and. off- shore rights. - - (b) Mineral Rights — Claim includes compensation for minerals. Rights of occupancy and use included right to exploit minerals. Only when a system of (Continued on Page 3) Page Four N E S FT K A Total award for one claim to benefit all (Continued from Page 3) Superintendent General of Indian Affairs on April 23, 1924. ~ QUIETING TITLES ACT These foreshore or riparian rights have been lessened or. abolished in many instances by actions of the Federal and Provincial. Governments and by their agencies. These rights should now be restored to and preserved for the Indians by the Federal Government by -any measure needed, for example: by purchase, -negoliation or action under the Quieting Titles Act. restoration is not possible, adequate compensation must be paid for benefits denied. Individual cases and remedies may vary, but these instances are so widespread and their results so far-reaching -in loss to Bands concerned; thus the Claim on foreshore or riparian rights is part of the general Land Claim. CONTROVERSY SINCE 1871, There has been controversy over ownership of foreshore rights since B.C. entered Confederation in 1871. Under a Terms of Union clause: “... the charge of the Indians and the trusteeship and management of the land reserved fer their use and benefit shall be assumed by the Dominion Government ... and in the case of disagreement between the two governments respecting the quantity of such tracts of land to be so granted, the matter shall be referred to the decision of the Secretary of State for the Colonies.”’ The actual transfer was not completed till 1938 because a dispute came up at once about the quantity of land to be transferred by the Province. ‘But in 1924 an agreement was reached on “Public Harbours’”’ in ‘B.C. by the Dominion and Provincial Governments. ORDERS-IN-CO Each similar (Dominion, P.C. 941; Provincial, O/C 507) on this agreement. Each Order-in-Council provided “that the ‘ownership of ‘all other ungranted foreshore of tidal or non-tidal waters and lands covered with water in British Columbia .. . belong to and are vested in the Province.”’ : Thus, in 1938, when lands set aside as Reserves were actually transferred to the Dominion Government by Provincial Order- in-Council 1036 (which is completely silent on the disposition of foreshore rights), the Province presumed that ownership of the UNCIL Government passed foreshore remains with’ the Provincial. Crown. Unless the foreshore was specified in the grant setting up the Reserve, the Indians would only “have access and use over the foreshore. POSITION OF PROVINCE Despite Provincial Government’s assurances that Indians would have the sema riparian rights as any landowner or occupier of land, these rights have been constantly lessened and abolished by that Government. Order-in-Council 1036 reserves to the Province the right to enter upon any of the lands transferred for the: use and benefit of the Indians to the Government, as follows: ‘s .. for making roads, canals, bridges, towing paths of other works of public utility. or convenience; so nevertheless the land so resumed shall not - exceed one-twentieth part of the lands aforesaid...” This allows the Provincial Government to expropriate Where: Orders-inCouncil. Dominion. without compensation up to five percent of Reserve land. This clause has been. abused in several instances. TSAWWASSEN BAND In 1959, for example, some 7.682 acres of the Tsawwassen Band Reserve land -was taken for an access road to a new ferry slip. Another 0.13 acres was taken for a highway turnabout including a 33- foot right of way bordering on part of the Reserve’s foreshore. : The Band thus lost access to this foreshore. The same. attitude. is the Provincial Government’s view on an accretion- to land forming a Reserve fronting on water. That. Government, by virtue of the 1924 Agreement, argues that if it owns the foreshore, then the transfer of Reserves in 1938 did not include the foreshore. Thus it claims that accretion is to the foreshore, not to the Reserve. THE COMMON LAW VIEW This position is opposite to the common law view of accretion as set in Attorney-General of B.C. v. Neilson. In this case, the Supreme Court of Canada decided that accretion — a gradual and unseen growth of land out of the sea or river — belongs to the owner of the land next to and touching upon the water. Thus, in common law, accreted lands would go to the Dominion Government for the use and benefit of Indians as owners of lands next to and touching upon the water. The Provincial position has in certain cases denied the Indians the chance to develop” accreted lands. MUSQUEAM BAND In July 1969, for example, the Musqueam Band claimed some 377 acres of tidal flats as accreted land and asked that these lands be added to the Reserve. The Federal Government refused because, among other reasons, it adopted the Provincial Government’s position that the foreshores were not included when the lands were transferred to the Federal Government in 1938. This position of the Provincial Government, apparently accepted by the Federal Government are wholly opposite to these Government’s position Reserves were set aside when B.C. entered Confederation. Therefore, the Land Claims “cannot be considered settled until this matter is satisfactorily dealt with. . Use of Proceeds of Settlement Because of the very large sums resulting from awards, we must think of who should benefit, and how benefits should be shared. There are two choices: 1. That each case, where a Reserve was set up or a Treaty or Agreement ended, be treated entirely separately and that the award be reserved exclusively for the use of the Band or Indians concerned; 2. That, while each case forms a separate claim in detail, the total awards be regarded as received under one general claim in behalf of, and be used for the equal benefit of, all Indians of B.C. tesa their Bands. ABASIC APPROACH Prof. Lysyk has summarized the basic approach in his paper on the proposed Alaska Native Settlement: ‘ “The current measures can be said to reflect the general philosophy expressed in the Federal Field Committee reports that the land claims Jegislation should not only when - serve as a means of settling the legal and moral claims, but should be seen alse as an opportunity to provide a ‘foundation for social and economic advancement for the natives. * “The stated policy objectives, apart from achieving a fair and just settlement of ‘native. claims, include maximum participation. by natives in decisions affecting their rights and property, the vesting in them as rapidly as feasible of control. over the lands and moneys provided under the legislation, and the accomplishment of . these objectives without establishing permanent racially defined institutions or rights, without creating a reservation system or lengthy wardship or trusteeship, and without additional tax exeipplonee or priviliges. “The rights of natives as citizens of the United States and Alaska would’ be undiminished.”’ Subject to certain points, we submit that these policy objectives are suitable guidelines for the use and administration of proceeds of the settlement of our. Claim. AGENERAL CLAIM — Accordingly, we submit that method 2 be accepted and followed. The following should be considered under this method: ) It is difficult to determine the present descendants or successors in title of the Indians involved with the treaties or establishments of many years ago; thus it would be hard to ensure. possible or fair distribution of proceeds. to individual families or bands. (2) General principles. must be laid down for the terms. of reference. Yet there are many individual reserves and settlements; and circumstances’ differ. If awards were handled separately, unfairness and injustices may happen. (3) Compensation will be awarded on the basis of land in occupancy or use at the time the rights were lost or denied. A hundred years ago there ’ were great differences in sizes of areas occupied or used by different tribes or bands. These differences did not depend on the population of the ‘tribe but on the habits and economy of the region. To assign proceeds separately now would. likely prejudice those who were less nomadic 100 years ago. DEVELOPMENT CORPORATION We are strongly attracted by an Indian Development Corporation to administer funds along the lines of the Alaska Native Development Corporation. Such a corporation — the setting up, distribution of shares to Indians, and the appointment and election of Indian directors — should greatly benefit our people. There will be financial returns as well as development and training in awareness. and skill in administering financial and business affairs. Due to certain provisions for organization of Bands and Band Councils, we do not propose regional corporations as suggested in Alaska. But, in general, we look to payment of earnings of. the Development Corporation on per capita basis to Band Councils. BAND RESPONSIBILITY The various Band Councils will admiriister and pay earnings for the benefit of the Band. Because of the huge sum of total March, 1973 The Official Monthly Publication of the ~ Union of B.C. Indian Chiefs 2140 West 12th Ave., Vancouver 9, B.C. _ Telephone — 736-6751 The official voice of the Union of B.C. Indian Chiefs, this publication is intended for the use - and pleasure of all- native people in this province. While the Union encourages all contributions such as reports, viewpoints (letters to the Editor), poetry, etc., we reserve the right to edit all contributions. Letters to the. . Editor must bear signature of the writer, and viewpoints expressed therein are not necessarily those of the Union. FREE TO ALL REGISTERED B.C. NATIVE INDIANS . OTHERS $5.00 PER YEAR STAFF: Lou Demerais.— Editor Correspondents: settlement, we recommend payment of the total award be annual and divided over a period of years, as in Alaska. The concept of the award as a fund for .all the Indians, as proposed, lends itself to a system of annual. payments into the treasury cf the Development Corporation until the total award has -been paid in, and payments invested as received. Conclusion Finally — while the settlement awarded is compensation for past takings or denials of rights, not in substitution for present rights under the Indian Act — we submit that the settlement of our Land Claim and the _ proposed administration of the award will have important and far-reaching implications for the future status and welfare of the Indian people. The Government has said _ it: wishes to discuss new concepts of Indian organization ~ and administration. The acceptance of our Claim, the implementation of this Submission will redress an ancient and serious -wrong, remove a legitimate and. deep-seated sense of grievance, and produce a _ co-operative Perlas Sabino, Cindy Wilson -- Reporters G. McKevitt, Brentwood Bay, Tel. 652-3148; Margaret Woods, Ahousat;, Phyllis Hanna, Port Alberni; N.C, Derriksan, Westbank; Arnold Earl, Roberta Sam, Lytton. Terrace; Edgar Charlie, atmosphere for discussion of ‘the future. The participation by the TiaINS in. the benefits and other advantages of one award — in recognition of rights and not as a continuing hand-out or quasi- subsidy —. will enable Indians to enjoy again some proper sense of dignity and self-sufficiency. FOR ALL CITIZENS This and. the practical opportunities and advantages from development from the Settlement, - and all implications for the future make this Claim a prospect for mutual advantage of all citizens — Indian and non-Indian. ‘Respectfully submitted, On behalf of the Union of British Columbia Indian Chiefs by the. undersigned, being all’ the Members of the Chiefs Council. PHILIP C. PAUL NEBER MAITLAND GEORGE WATTS FORREST WALKEM DELBERT GUERIN WILLIAM SCOW VICTOR ADOLPH * HARRY DICKIE. ADAM ENEAS HOWARD WALE IRVINE HARRY ED KELLY RONALD SEYMOUR T.A. GREENE NATIVE TITLE — _ The Government of Canada apparently understands, though it will not recognize it, that ‘‘aboriginal right,’ “aboriginal title,” “native right,’ ‘‘native title,” ‘personal and usufructuary right,”’ and “Indian right’ are the same thing. FEE SIMPLE TITLE — ‘The legal concept is that the use and occupation of a definite territory by a tribe or band.meant that the tribe or band had a type of ownership of the territory. The tribe or band had ‘‘native title,” “Indian title,” or ‘‘aboriginal title”’ to that land. The concept is that the “native title’ is slightly different from ‘‘fee simple” ownership. If a person buys a home in Vancouver, he will have a “fee simple’? title to the land. “Native title’’ is difterent from “fee simple’ title because _ the owner of the ‘‘native title’ cannot sell the land to anyone he chooses. The “native title’ can only be “surrendered” to the government, Definition of Terms the ‘Crown.’ Other than there is no difference. PERSONAL AND USUFRUCTUARY RIGHTS — “Native title’? is sometimes described as. a ‘“‘personal and usufructuary right.’ It is “nersonal”’ in that only the band or tribe can hold the right. They cannot transfer the right to any other person. It can ‘only be surrendered to the Crown. The words ‘‘usufructuary. right” mean that the band or tribe has full rights to use the land and adjacent waters — they cam hunt and fish, harvest berries, cut timber or dig up minerals. They have complete rights to use the land. : It is this “native title’ that the claim presented to the Government by the UBCIC defends. It is this ‘“‘native title’ that the Government apparently refuses to recognize. It is this “native title’ that the Supreme Court seems to have voted on 3-3 in regard to the Nishga Case. that,
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