Significant events in Québec's relations with First Nations and Inuit

The chronology below is not meant to be exhaustive; it does not list every treaty, agreement and political event in recent history. Rather, it highlights key moments that help to understand the Gouvernement du Québec’s current relations with the First Nations and Inuit. These moments demonstrate that Québec has broken away from the guardianship approach that long characterized government action in Canada, and that these relations have evolved significantly since the mid–20th century. Much work nevertheless remains to be done to correct the errors of the past.

Signing of the James Bay and Northern Québec Agreement* (French only)

The Cree and Inuit nations, along with the governments of Québec and Canada, sign the James Bay and Northern Québec Agreement, which recognizes the rights and territorial interests of the Inuit and Cree under various agreements. The Agreement provides, among other things, for the collective allocation of land for the exclusive benefit of the Cree and Inuit, as well as exclusive hunting, fishing and trapping rights. It also stipulates various obligations on the part of the government with regard to health and social services, education and income security, primarily through associated financing and certain compensation arrangements with these nations. It transforms the Cree and Inuit communities, as it leads to the creation of institutions and organizations, including the Cree Nation Government (formerly the Cree Regional Authority), the Kativik Regional Government, the Makivik Corporation, as well as many businesses that contribute to the population’s economic vitality.

*Consolidated version, 1998 edition

Signing of the Northeastern Québec Agreement

The Northeastern Québec Agreement is heavily inspired by the James Bay and Northern Québec Agreement. It is signed on January 30 by the same parties and by the members of the Naskapi band of Schefferville. The Naskapi receive the collective allocation of land for their exclusive benefit and acquire exclusive and priority hunting, fishing and trapping rights. Also, both governments pay them financial compensation.

Constitution Act, 1982

Section 35(1) of the Constitution Act, 1982 affirms the existing, ancestral and treaty rights of Indigenous peoples. It heralds the beginning of a new legal and political era with respect to Indigenous matters. It protects a range of Indigenous rights, including legal recognition of customary practices such as marriage and adoption, traditional harvesting on the land and others not related to land claims and resource exploitation, in addition to ownership of ancestral lands. It will therefore be up to the courts, and a fortiori the Supreme Court of Canada, to specify what these rights are, exactly, and to guarantee them.

The 15 principles of Indigenous status and rights

In response to proposals submitted in November 1982 by the Indigenous common front of Québec, the Cabinet adopts 15 principles. These principles recognize that the Indigenous peoples of Québec constitute distinct nations, entitled to their own culture, language, traditions and customs, and that they have the right to determine, by themselves, the development of their own identity.

Parliamentary committee on Indigenous rights and needs

For the first time, the Indigenous peoples of Québec are invited to address the National Assembly in the context of a parliamentary committee sitting precisely for this purpose. On November 22, 23 and 24, representatives of 17 Indigenous groups present their rights, basic needs and aspirations to the committee.

Motion of recognition by the National Assembly

On March 20, the National Assembly of Québec adopts a motion to recognize Indigenous nations* and their rights in order to formalize and define the key principles that the government must respect in its relations with these communities. It urges the government to enter into agreements with Indigenous peoples in the areas of autonomy, culture, language, traditions, land ownership and control, hunting, fishing and trapping, and participation in wildlife management and economic development.

* The Malicite are recognized as the eleventh Indigenous nation of Québec by a motion adopted by the National Assembly on May 30, 1989.

Oka Crisis

For more than two months, demonstrations are held in the community of Kanesatake, near the town of Oka. Mohawk protesters, the Sûreté du Québec, the Royal Canadian Mounted Police and the Canadian military endure a 78-day, at times violent, stand-off. The crisis is triggered by a proposed golf course expansion and townhouse development on disputed land in Kanesatake, which includes a Mohawk cemetery. Tensions are high, particularly after the death of Corporal Marcel Lemay, a police officer with the Sûreté du Québec. It is the Oka crisis that leads the Government of Canada to establish the Royal Commission on Indigenous Peoples in 1991.

Royal Commission on Indigenous Peoples

The Royal Commission on Indigenous Peoples in 1991 is established by the Government of Canada in the aftermath of the Oka Crisis, which pitted Mohawk protesters from Kanesatake against the Sûreté du Québec and the Canadian military. Its mandate is to investigate and propose solutions to problems that affect the relationship between Indigenous peoples, the federal government and Canadian society as a whole. It submits its report in October 1996. This five-volume report concerns Canada’s policy toward the nations that first populated the country.

Signing of the Paix des braves agreement

The Grand Council of the Crees of Eeyou Istchee James Bay, the Cree Nation Government (formerly the Cree Regional Authority) and the Québec government sign the Agreement Concerning a New Relationship between the Government of Québec and the Crees of Québec, commonly referred to as the “Paix des braves” agreement. This agreement strengthens the political, economic and social relations between Québec and the Cree, ensuring the continued development of the James Bay territory. It establishes a new partnership, between Québec and the Cree, based on cooperation, trust and mutual respect. Complementary Agreement 14 of the James Bay and Northern Québec Agreement, which follows the signing of the Paix des braves, agreement, adds Chapter 30A, dealing with an adapted forestry regime for the Cree.

Conclusion of the Sanarrutik Agreement

The Inuit and the Québec government enter into a partnership agreement on the economic and community development of Nunavik (french only). The objective of this agreement is to establish a new nation-to-nation relationship between the Inuit and the Québec government by proposing a common vision for the development of Nunavik. The agreement is designed as a flexible tool to meet the specific needs of the people of Nunavik by funding community and economic initiatives, primarily those resulting from the implementation of the James Bay and Northern Québec Agreement. In addition, it provides local communities with better prospects for economic and social development, based on the priorities established by the Makivik Corporation and the Kativik Regional Government.

Agreement in principle of a general nature between the First Nations of Mamuitun and Nutashkuan

The governments of Québec and Canada sign the Agreement in principle of a general nature between the First Nations of Mamuitun and Nutashkuan (french only), which serves as a framework for a future treaty and deals, in particular, with the recognition of the rights, territory and self-government of the Innu and the future of the communities. Negotiations continue between the governments of Québec and Canada and the communities of Mashteuiatsh, Essipit and Nutashkuan, represented by the Regroupement Petapan, with a view to concluding a treaty.

Implementation of the Indigenous Initiatives Fund

The Secrétariat aux affaires autochtones is responsible for administering the Indigenous Initiatives Fund, created further to the Mashteuiatsh Forum. This $125-million financial assistance program is designed to stimulate the economic and social development of Québec’s Indigenous peoples.

Publication of an Interim Guide for Consulting the Indigenous Communities

Following the Haida and Taku River rulings by the Supreme Court in 2004, the Québec government adopts an Interim Guide for Consulting the Indigenous Communities in 2006. This document sets out guidelines for the various government departments and agencies whose activities are likely to infringe on certain ancestral rights claimed by Indigenous communities. The Québec government publishes an interim consultation guide and undertakes a tour of Indigenous communities to discuss the issue. It also provides a fund to facilitate their participation in the consultations.

First Nations Socioeconomic Forum

The Mashteuiatsh Forum is the First Nations’ first socioeconomic forum. This activity brings together representatives of First Nations, civil society and the governments of Québec and Canada around the same table. Discussions centre on five main topics: economy and employment; health, social services and early childhood services; education and culture; infrastructure and housing; and sustainable community development.

Katimajiit Inuit socioeconomic forum

Representatives of the Inuit community and of the governments of Québec and Canada meet in Kuujjuaq on August 23 and 24 to address issues and challenges specific to the Inuit nation of Québec. On the heels of the Mashteuiatsh Forum in 2006, the Katimajiit Forum focuses on health and youth protection, education, housing, transportation infrastructure and the high cost of living in the region.

Truth and Reconciliation Commission of Canada

The Truth and Reconciliation Commission of Canada was established in 2008 by the Government of Canada as part of its Indian Residential Schools Settlement Agreement. Divided into 14 sections, the mandate is relatively complex, but the Commission must, in short, document the experience of Indigenous peoples who attended residential schools and who must be compensated by the Government of Canada. The Commission publishes its final six-volume report in December 2015.

Partnership agreement between the Québec government and the Naskapi

The Québec government signs a partnership agreement on economic and community development with the Naskapi. Spanning more than 25 years, the agreement aims to promote economic development, job creation and financial spinoffs for the Naskapi and the population of Québec in general.

Accession of Canada to the United Nations Declaration on the Rights of Indigenous Peoples

In 2007, when the United Nations Declaration on the Rights of Indigenous Peoples was adopted, four countries, including Canada, had not signed on to this international agreement. On November 12, 2010, Canada announces its official support for the Declaration, in full respect of the Constitution and its laws. On November 15, the Québec government welcomes this gesture, stating that the Declaration will help promote and protect the rights of Indigenous peoples, in accordance with the law applicable on its territory.

Implementation of the Indigenous Initiatives Fund II

The Secrétariat aux affaires autochtones is responsible for administering the Indigenous Initiatives Fund II. This $135 million financial assistance program is designed to stimulate the economic and social development of Québec’s Indigenous peoples.

Agreement on Governance in the Eeyou Istchee James Bay Territory

The Paix des braves agreement leads to the signing of the Agreement on Governance in the Eeyou Istchee James Bay Territory by the Cree and the Québec government. This agreement stems from the desire to modernize the governance structures created by the James Bay and Northern Québec Agreement by introducing a new public management method for territories at municipal and supramunicipal levels that allow for the participation of Cree and James Bay residents, with a focus on shared interests.

Summit on territories and resources

The summit on territories and resources, organized by the Assembly of the First Nations of Québec-Labrador, is held in Montréal on December 3. During this gathering, the Québec government demonstrates its intention to establish a nation-to-nation relationship with the First Nations in its territory, to strengthen political, economic and social exchanges characterized by cooperation, partnership and mutual respect.

At the conclusion of this summit, the Québec government and the Assembly agree to continue discussions on the following issues: royalties, co-management and conservation of the territory, as well as the consultation process and accommodation.

Agreement on labour between the Mohawk Council of Kahnawà:ke and le gouvernement du Québec

The Québec government and the Mohawk Council of Kahnawà:ke reach an agreement on September 18 on the regulation of work on construction sites. This agreement is implemented in collaboration with the departments and agencies concerned (Commission des normes, de l’équité, de la santé et de la sécurité du travail, Régie du bâtiment du Québec, Commission de la construction du Québec, Secrétariat au travail). A complementary agreement with the Commission des normes, de l’équité, de la santé et de la sécurité du travail will subsequently be signed in 2017, and in 2020 the complementary agreement (PDF 73 Kb) aiming to integrate Kahnawake workers into the construction industry will be signed.

Implementation of the Urban Indigenous Support Program

The Secrétariat aux affaires autochtones is responsible for administering the Urban Indigenous Support Program. This $8.9 million financial assistance program aims to improve the living conditions of Indigenous peoples in Québec cities by supporting community organizations that serve this clientele.

Public Inquiry Commission on relations between Indigenous Peoples and certain public services

The Public Inquiry Commission on relations between Indigenous Peoples and certain public services in Québec: listening, reconciliation and progress is established on December 21, 2016. Its mandate is “to investigate, address facts and conduct analyses in order to make recommendations concerning concrete, effective, lasting remedial measures to be implemented by the Government of Québec and indigenous officials to prevent or eliminate, regardless of their origin or cause, all forms of violence, discriminatory practices and differential treatment in the delivery of the following public services to Québec’s indigenous peoples: police, correctional, legal, health and social services, as well as youth protection services.” It reveals the difficulties Indigenous peoples sometimes experience in obtaining the services to which they are entitled, as well as the frustrations they feel in the face of the shortcomings, real or alleged, of the Québec network, in addition to highlighting the complexity of intergovernmental affairs and the delivery of public services. It also recalls harsh realities, including the difficult socioeconomic conditions experienced by many Indigenous peoples in Québec and the gap created by the ignorance and prejudices that sometimes divide Indigenous and non‑Indigenous people. 

The brief (PDF 1.25 Mb) submitted by the Québec government to the Commission and Commissioner Jacques Viens’ final report (in french only) are available for consultation.

National Inquiry into Missing and Murdered Indigenous Women and Girls

The National Inquiry into Missing and Murdered Indigenous Women and Girls is a public inquiry established by the Government of Canada under the Inquiries Act (R.S.C.). 1985], c. I-11). The inquiry is also established under respective provincial and territorial inquiries’ legislation through Orders-in-Council. This gives the inquiry the ability to look into federal, provincial and territorial jurisdictions as a part of the inquiry. It addresses the systemic causes of all forms of violence, including sexual violence, against Indigenous women and girls. It makes valuable recommendations to the Québec government in its final report, while acknowledging that Québec police forces conduct their investigations adequately in Indigenous communities.

The various volumes that make up the Inquiry report, including one specific to Québec, are available for consultation.

Implementation of the Indigenous Initiatives Fund III

The Secrétariat aux affaires autochtones is responsible for administering the Indigenous Initiatives Fund III. This financial assistance program, initially in the amount of $143.9 million (including the integration of the Urban Indigenous Support Program), aims to stimulate the economic and social development of Indigenous peoples in Québec. Since its implementation, it has been increased twice, bringing the total budget to $167.5 million.

Do More, Do Better: Government Action Plan for the Social and Cultural Development of the First Nations and Inuit 2017-2022

The Québec government has heard the call to action issued by the Truth and Reconciliation Commission of Canada. It develops a Government Action Plan for the Social and Cultural Development of the First Nations and Inuit. The starting point of this action plan (PDF 6.92 Mb) is the Québec government’s acknowledgement of a twofold responsibility. First, a responsibility for the population: the Indigenous peoples belong to separate nations but they are also Québec citizens. Generally speaking, the Québec government has a duty to assist the least privileged populations and to establish equality of opportunity in Québec society. It also has a historic responsibility: since the 1980s, the Québec government has recognized the nation status of the Indigenous peoples. The Inuit and the First Nations are not simple minority groups. They are the first inhabitants of the territory and occupy a specific place in Québec’s history, both culturally and politically. In this spirit, they must be regarded as partners in developing the Québec society. Consequently, the Québec government must seek to establish conditions that will enable the Indigenous peoples to consolidate their powers and reaffirm their creative strengths.

The action plan has a budget of $147 million over the next five years. This is in addition to the $135 million that the government will provide over the same period for First Nations and Inuit economic and community development through the renewal of the Indigenous Initiatives Fund.

Agreement between the Abitibiwinni First Nation and the Québec government

On February 16, the Québec government reaches an agreement on consultation and accommodation with the Abitibiwinni First Nation, signing the first agreement of this kind. The agreement’s objectives include specifying the consultation processes applicable to mining activities and enabling the community to express its concerns regarding mining activities.

Agreement with Mashteuiatsh on forestry and wildlife issues

In September, the Gouvernement du Québec and the Pekuakamiulnuatsh First Nation (Mashteuiatsh) sign the Entente concernant certains enjeux forestiers et fauniques (PDF 7.80 Mb). It would subsequently be modified by a first amendment (PDF 93 Kb) in 2020, a second (PDF 2.09 Mb) in 2024 and a third (PDF 2.01 Mb) in 2025.

Apology from the Premier of Québec

Following the tabling of the report by the Public Inquiry Commission on relations between Indigenous Peoples and certain public services in Québec, on October 2 the Premier of Québec apologizes to First Nations and Inuit on behalf of the government.

Motion in the National Assembly on the United Nations Declaration on the Rights of Indigenous Peoples

On October 8, the National Assembly unanimously supports a motion (French only) to recognize the principles and commit to negotiating the implementation of the 2007 United Nations Declaration on the Rights of Indigenous Peoples with First Nations and Inuit.

Agreement between the Mi’gmaq Nation and the Québec government

On February 5, the Québec government and the Mi’gmaq Nation reach an agreement on the process governing consultation and accommodation in respect of hydrocarbon activities. This agreement puts in place a mutually agreed upon, predictable consultation and accommodation process adapted to the reality of the Mi’gmaq Nation people and hydrocarbon development activities.

Entry into force of the Act to Authorize the Communication of Personal Information to the Families of Indigenous Children Who Went Missing or Died After Being Admitted to an Institution

The Act to Authorize the Communication of Personal Information to the Families of Indigenous Children Who Went Missing or Died After Being Admitted to an Institution, assented to on June 4, comes into force on September 1. It constitutes the Gouvernement du Québec’s response to Call for Justice No. 20 in the Québec supplementary report of the National Inquiry into Missing and Murdered Indigenous Women and Girls.

The same day, the Secrétariat aux affaires autochtones establishes the Direction de soutien aux familles, tasked with the application of the Act and with supporting families in a manner that respects their needs. This directorate would later expand its mandate: as of October 2024, it would assume the duties of the Québec Family Information Liaison Unit and, more broadly, responsibility for providing support to any family member or loved one of a missing, deceased or murdered Indigenous person.

Implementation of the Indigenous Initiatives Fund IV

On May 26, the Gouvernement du Québec unveils the Indigenous Initiatives Fund IV (PDF 7.76 Mb), which is placed under the administration of the Secrétariat aux affaires autochtones. This five-year (2022–2027) $188.4 million financial assistance program aims to stimulate economic, social and community development for Indigenous people in Québec.

2022–2027 Government Action Plan for the Social and Cultural Wellness of the First Nations and Inuit

On June 17, the Gouvernement du Québec unveils its second five-year social and cultural action plan (PDF 14.51 Mb), which follows from its 2017–2022 plan, titled Do More, Do Better. It is the product of extensive consultations conducted with the First Nations and Inuit, who put forward the priority issues facing their respective communities. Nation status, cultural safety, the Canadian constitutional framework and the responsibility of the Gouvernement du Québec form its core priorities, while special attention is given to Indigenous languages and cultures, as well as to the specific realities of Inuit communities.

Backed by a budget of over $141 million, the action plan divides 52 measures across six key priority areas: culture, Indigenous languages and reconciliation; the issues and challenges facing Indigenous women; the holistic development of children and families; socioeconomic conditions and social inclusion; Indigenous health and wellbeing; and justice and public safety. Thirteen departments and agencies are involved in implementing the plan, along with numerous Indigenous partners. The plan also marks a shift in the government’s approach: rather than confining itself to sector-specific interventions, the Gouvernement du Québec intends to adopt comprehensive, sustainable approaches with Indigenous communities.

Tabling of the first annual report on the application of the Act to Authorize the Communication of Personal Information to the Families of Indigenous Children Who Went Missing or Died After Being Admitted to an Institution

Under section 22 of the Act to Authorize the Communication of Personal Information to the Families of Indigenous Children Who Went Missing or Died After Being Admitted to an Institution, the Minister Responsible for Relations with the First Nations and the Inuit must report on its application in an annual report submitted to the Gouvernement du Québec no later than March 31 each year, and subsequently tabled in the National Assembly within the following 30 days.

On April 28, the first annual report (PDF 3.36 Mb) is tabled in the National Assembly and then presented to families in Pakua Shipi. Prepared by the Direction de soutien aux familles of the Secrétariat in collaboration with the organization Awacak (meaning “little beings of light”), members of the Act’s monitoring committee and partner departments and agencies, the report reviews the first months of implementation. It covers these areas: support for families, progress of searches, mobilization of partnerships and follow-up on the monitoring committee’s recommendations. A report will be tabled every year hereafter and presented to the families of missing or deceased Indigenous children.

Agreements reached with First Nations

Over the course of the year, the Gouvernement du Québec enters into several bilateral agreements. In June, it signs the Entente sur le développement économique et communautaire of Manawan (PDF 3.92 Mb) with the Conseil des Atikamekw de Manawan; and the Entente visant à jeter les bases d’une nouvelle relation with the Conseil de la Première Nation Abitibiwinni (PDF 1.39 Mb), which notably covers wildlife management, protected areas and natural resource development. It additionally signs a nation-to-nation agreement with the Wolastoqiyik Wahsipekuk First Nation (PDF 218 Kb), establishing a dedicated forum for discussion between the parties to develop and strengthen their political, economic and social relations. In July, it enters into a Collaboration Agreement to Ensure Indigenous Policing Services in Winneway (PDF 1.32 Mb), with the Algonquin communities of Long Point, Timiskaming and Kebaowek. In August, it concludes an agreement on consultation and accommodation (PDF 818 Kb) with the Conseil des Abénakis d'Odanak and the Conseil des Abénakis de Wôlinak.

New designation for the Secrétariat aux affaires autochtones

On October 20, the position of Minister Responsible for Native Affairs becomes the Minister Responsible for Relations with the First Nations and the Inuit. At the same time, the Secrétariat aux affaires autochtones becomes the Secrétariat aux relations avec les Premières Nations et les Inuit. These name changes reflect the evolution of the Gouvernement du Québec’s relations with the First Nations and Inuit, now centred on nation-to-nation relations.

Signing of the Nunavik Self-Government Negotiations Accord

On December 20, the Gouvernement du Québec and the Makivik Corporation sign the Nunavik Self-Government Negotiations Accord (PDF 212 Kb). This agreement lays the groundwork for negotiating a new governance model in Nunavik and provides a framework for the process. The parties notably recognize that the participation of the Inuit of Nunavik is essential to this undertaking.

Framework agreement between the Gouvernement du Québec and Pessamit

In February, the Gouvernement du Québec and the Innu First Nation of Pessamit enter into a framework agreement (PDF 666 Kb) for social, economic and community development purposes, focusing on land and resource development.

Adoption of the Act to Establish the Cultural Safety Approach Within the Health and Social Services Network

On December 5, the National Assembly passes the Act to Establish the Cultural Safety Approach Within the Health and Social Services Network, and it is assented to on December 12. The Gouvernement du Québec thereby becomes the first government in Canada to grant legal recognition to the cultural safety approach in the health and social services sector. The Act requires Santé Québec and its network of establishments to determine with Indigenous partners what measures should be implemented, and to adopt a cultural safety approach toward First Nations members and Inuit, taking into account their cultural, linguistic and historical realities in the organization and delivery of services. It also creates a committee on cultural safety that is tasked with advising the minister responsible for implementing the Act.

Furthermore, the Act amends the Professional Code to allow, under certain conditions, First Nations members and Inuit who are not members of a professional order to engage in certain reserved activities in the field of mental health and human relations, thereby fostering access to professionally and culturally safe services.

Statement of Understanding and Mutual Respect with the Mohawk Council of Kahnawà:ke

In December, the Gouvernement du Québec and the Mohawk Council of Kahnawà:ke agree on a Statement of Understanding and Mutual Respect (PDF 157 Kb). The final signature would be added in February 2025.

Framework agreement between the Gouvernement du Québec and the Listuguj Mi’gmaq

In May, the Gouvernement du Québec and the Listuguj Mi’gmaq sign a framework agreement (PDF 255 Kb) for negotiations on subjects of common interest.

Pilot project on participatory forest management

In March, the Gouvernement du Québec and the Atikamekw agree on a statement of intent to develop a pilot project for participatory forest management (PDF 608 Kb).

Consultation and Accommodation Agreement Between the Gouvernement du Québec and Kebaowek First Nation

In July, the Gouvernement du Québec and the Kebaowek First Nation sign a Consultation and Accommodation Agreement (PDF 571 Kb).

Political Protocol Agreement Between Québec and the Mohawks of Akwesasne

On July 28, the Gouvernement du Québec and the Mohawks of Akwesasne sign the Political Protocol Agreement Between Québec and the Mohawks of Akwesasne. This protocol establishes a framework for holding discussions on various topics of interest.