Final Rep or Ti a Election Reform Project March 2011

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ATLANTIC POLICY CONGRESSOF FIRST NATIONS CHIEFS

National Engagement on Electoral Reform:Building a Better Election System for First Nations Communities

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REPORT OF THE NATIONAL ENGAGEMENT ON ELECTORAL REFORM

Building a Better Election System for First Nation Communities

1. Background

Over the last couple of years, the Atlantic Policy Congress of First Nations ChiefsSecretariat (APC), as mandated by the APC Chiefs (Resolutions #2008-12 and 2010-

001), has been researching and discussing with First Nations leaders, techniciansand First Nations peoples in Atlantic and Eastern Canada, the issue of First Nationselections. All the input we have received on this issue was carefully considered indeveloping recommendations for the Minister of Indian and Northern Affairs Canadato develop an improved system for holding and managing First Nation elections thatare currently held pursuant to the Indian Act.

The Minister of Indian Affairs and Northern Development was very receptive to theserecommendations and asked the APC to lead a national engagement effort, jointlywith the Assembly of Manitoba Chiefs (AMC), to present these recommendations,generate discussion, obtain feedback and gain support among First Nations leaders

and organizations across the country.

This national engagement effort was officially launched on October 1st, 2010, duringTreaty Day celebrations in Halifax, Nova Scotia, by the Minister, AMC Grand ChiefRon Evans, and Executive Co-Chairs of the APC, Chiefs Candice Paul and MorleyGoogoo.

Whenever possible, information materials were developed and approved jointly bythe AMC and the APC. This material was disseminated on the websites of bothorganizations in mass mail-outs to First Nations who hold their elections under theIndian Act, and they were made available for distribution at various engagementforums. APC was responsible, for making contacts, disseminating information andmaking presentations to First Nations leaders and organizations in Eastern Canada,while AMC carried out these responsibilities in Western Canada. Since this initiativewas geared to First Nations who hold their elections under the Indian Actelectionsystem, no engagement was planned for the territories where there are no FirstNations who hold elections under the Indian Act.

This report presents the efforts employed by the Atlantic Policy Congress of FirstNations Chiefs in the course of the national engagement phase of the electoralreform initiative.


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2. Preparation and Update of Engagement Materials

The APC worked with INAC and the AMC to review existing and develop newmaterials specific for the national engagement initiative based on therecommendations for electoral reform that were provided to the Minister in April2010. All materials were also translated into French as well. These include:

Launch Announcement (Appendix A) Discussion Paper (Appendix B) Backgrounder and Frequently Asked Questions (Appendix C)

A form on which comments could be inscribed specific to eachrecommendation(Appendix D) A discussion paper on various recall mechanisms to inform this debate in the

First Nations context (Appendix E) APC Website on the Indian ActElection Reform initiative:

http://www.apcfnc.ca/en/aboutapc/Elections.asp Facebook Group weblink:

http://www.facebook.com/group.php?gid=150789196002

As APC was responsible for engagement efforts in Qubec, all developed materials,including the electoral reform module of the APCs website were available in French.

3. Engagement in Ontario and Qubec

Using the materials developed for the national engagement, APC Executive Directordelivered a Power Point presentation to the special assembly of the Chiefs of Ontarioon November 23, 2010, in Toronto. There were 134 First Nations invited to thespecial assembly. Copies of the materials were distributed to participants.

APC also contacted all political organizations in Ontario via email and telephone toinform them of the electoral reform initiative and to seek opportunities to makepresentations to key members of these organizations. During these exchanges, linksto the materials on the APCs website were provided, where all interested partiescould learn more about the initiative and provide their feedback and comments.

3.1 Mail-out to Ontario and Quebec First Nations Holding Elections Under theIndian Act

APC worked with AMC to develop a joint information letter that was sent to allOntario and Quebec First Nations who hold elections under the Indian Actto informthe Chief and Councils of this initiative. This letter, which was signed by the two

APC Co-Chairs, included a brief explanation of the electoral reform initiative and was
http://www.apcfnc.ca/en/aboutapc/Elections.asphttp://www.apcfnc.ca/en/aboutapc/Elections.asphttp://www.facebook.com/group.php?gid=150789196002http://www.facebook.com/group.php?gid=150789196002http://www.facebook.com/group.php?gid=150789196002http://www.apcfnc.ca/en/aboutapc/Elections.asp


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accompanied by the detailed discussion paper on the recommendations, a

backgrounder and a feedback form. In the letter, the APC Co-Chairs encouragedthe Chief and Councillors to make these documents available to their communitymembers and invited both leaders and community members to provide feedbackdirectly to the APC. A copy of this letter can be found at Appendix H.

4. General Meeting of the Aboriginal Financial Officers Association

Representatives from the APC attended the National Aboriginal Finance OfficersAssociation (AFOA) annual general meeting, held in Vancouver on from February 15thru 18, 2011. Over 1100 delegates attended the conference. APC staff procured a

booth from which information, background materials and feedback forms on theelection reform initiative were distributed.

Limited written feedback ensued. However, several First Nations people and leadersdid provide general comments signaling that they supported longer terms of officeand other similar reforms that would stabilize First Nations governance and allow forbetter long term planning.

5. Fall Policy Forum of the Assembly of First Nations

The Assembly of First Nations hosted their National Fall Policy Planning and

Discussion Forum in Montreal on November 8 and 9, 2010. APC Executive Director,John Paul, and Glen Sanderson from the office of the Grand Chief of the Assemblyof Manitoba Chiefs were part of the discussion panel on alternatives to the Indian

Actsystem. APC and AMC made a presentation on the proposed election reformmodel and handed out over 100 copies of the discussion paper and feedback form.The question and answer session held after the panel presentation was veryinteresting and participants were very engaged in the topic of election reform. Therewere over 50 delegates that attended this particular breakout workshop.The key points or issues raised in the subsequent discussion are detailed in theFeedback Form (Appendix F).

6. Sustaining the Initiative among Atlantic First Nations

Throughout the national engagement effort, and recognizing that First Nationsleaders sometimes change (due to elections), the APC continued to take steps tomaintain interest in, and commitment to, the electoral reform initiative in the Atlanticregion. Activities included:

Provision of regular reports to the APC Executive Committee as well as to allAPC All Chiefs Forums


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Presentation to the Confederacy of Mainland Mikmaq Chiefs and Councillors

Annual General Meeting Presentation to the NS Native Womens Association (Board of Directors) Presentation to both the NS/NF and NB/PEI Band Managers meetings Presentation to the Atlantic AFOA Workshop Presentation to the Madawaska Maliseet First Nation Indian ActWorkshop

(planned for March 25th, 2011) Presentation to the Staff of the Department of Aboriginal Affairs (Nova Scotia) Regular monitoring of the initiative within the membership of the APC Publication of two articles in the Mikmaq Maliseet Nations News (November

2010 & March 2011)

7. Research on Recall

One of the recommendations that both the APC and the AMC provided to theMinister was that the new election system provide for a recall mechanism that wouldallow for elected leadership to be removed from office during their term. To informthe discussion and legislative development of a sound recall mechanism, additionalresearch on this subject matter in other jurisdictions was undertaken. A researchexpert engaged by the APC produced a detailed report on various recall systems andkey considerations when developing such a system. This report can be found at

Appendix E.

8. Conclusion

The Atlantic Policy Congress has employed its best efforts to carry out this nationalengagement on electoral reform, using written correspondence, informationdissemination on its website and in other communication mediums, and in-personpresentations delivered by APC representatives. Few negative reactions orcomments on the recommendations have been encountered either in written orverbal format. As we have reported previously, our engagement efforts in the

Atlantic region has led us to conclude that First Nations people and here aresupportive of our recommendations for electoral reform.

It is difficult to draw definitive conclusions as to the level of interest and support forlegislative election reform among First Nations in Ontario and Qubec. Although APCexpended considerable effort to engage in Ontario, and to a lesser degree, inQubec, these efforts solicited little reaction. Other than the presentation deliveredat the general meeting of the Union of Ontario Indians in November 2010, politicaland tribal organizations in Ontario did not provide the APC with any opportunities toattend forums and make presentations to their membership. In Qubec, where thereare only four First Nations under the Indian Actelectoral system that are notmembers of the APC, communications were made directly with individual First


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Nations. Despite the relative silence of First Nations people in these provinces on

this initiative, based on the fact that APCs efforts did not solicit negative reactions, itcan be said that there is no opposition in Ontario and Qubec to the development ofoptional legislation on First Nations elections.

We ask that the Minister consider our report and our conclusions to inform thedevelopment of a new First Nations Elections Act.

John G. PaulExecutive Director


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List of Appendices

Appendix A: Launch Announcement

Appendix B: Detailed discussion paper (both English and French)

Appendix C: Backgrounder and Frequently Asked Q & A (both English and French)

Appendix D: Feedback form (both English and French)

Appendix E: Recall Discussion Paper & Summary Chart (both English and French)

Appendix F: List of Engagement Sessions/Comments recd & all written feedbackreceived via APC website, email, fax, Facebook etc.

Appendix G: Powerpoint Presentation provided at Engagement Sessions (both Englishand French)

Appendix H: Joint APC/AMC Letter to all Ontario First Nations


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News Release CommuniquNR # 2-341

For immediate releas

ATLANTIC POLICY CONGRESS OF FIRST NATION CHIEFS AND ASSEMBLY OFMANITOBA CHIEFS RECEIVE SUPPORT FROM GOVERNMENT OF CANADA FORENGAGEMENT ON FIRST NATION ELECTIONS

HALIFAX, NOVA SCOTIA (October 1, 2010) The Honourable John Duncan, Minister of IndianAffairs and Northern Development and Federal Interlocutor for Mtis and Non-Status Indians,announced today that the Government of Canada will support the Atlantic Policy Congress of FirstNation Chiefs and the Assembly of Manitoba Chiefs as they lead an engagement effort across thecountry to discuss a better electoral system for First Nations.

The Atlantic Policy Congress (APC) and the Assembly of Manitoba Chiefs (AMC) have made severalrecommendations to address concerns about the election process under the Indian Act. With thesupport of the Government of Canada, they will now meet with other First Nation leaders across thecountry to seek advice and consensus on improving the election process for First Nations.

The Government of Canada is proud to give its support to the APC and AMC in their efforts todiscuss electoral reform with First Nation organizations, said Minister Duncan. This reform will helpFirst Nations create the political stability they need to establish solid business investments, practicelong-term planning, and build relationships that will increase economic development for First Nations.

Following the engagement process, the Government in partnership with First Nations will developnew, opt-in legislation that will help address concerns and support stable and effective First Nationgovernments.

This First Nation led engagement will guide our Government in drafting new opt-in legislation that wi

build a stronger electoral system for First Nations, added Peter MacKay, Minister of NationalDefence.

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The modernization of the Indian Actelection system for our First Nation Governments will help all ofus to look toward the longer term and build confidence in our governance so we can pursue our goalsof economic development, said APC Co-Chair (Nova Scotia) Chief Morley Googoo.

Our joint initiative with the Assembly of Manitoba Chiefs ispaving new ground by making thenecessary changes to the existing election system which will support the stability of leadership, long-term planning and increased accountability, added Chief Candice Paul, APC Co-Chair (NewBrunswick).

The Assembly of Manitoba Chiefs is pleased to lead this historic electoral reform process in

partnership with the APC, said Grand Chief Ron Evans, Assembly of Manitoba Chiefs. The ultimategoal of all First Nations is to be self-sustaining and self-governing. Creating an electoral system that idriven by First Nations will create the stability that will strengthen First Nation governance in Canada.

Many First Nations have been critical of the election process under the Indian Act, which they believesets out an electoral regime that is antiquated and paternalistic. Terms of office that are much shorterthan municipal, provincial and federal counterparts, a loose nominations process and an absence ofpenalties for offences related to the electoral process are some of the key concerns that are up fordiscussion.

There are currently 247 First Nations in Canada holding elections under the Indian Actelection

system. This initiative will not affect the 338 First Nations who follow custom code elections.

- 30 -BackgrounderFrequently Asked Questions

For more information, please contact:

Minister's Office Media RelationsPress Secretary Indian and Northern Affairs CanadaMichele-Jamali Paquette (819) 953-1160

Indian and Northern Affairs CanadaOffice of the Honourable John Duncan(819) 997-0002


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Appendix B

IMPROVINGTHE SYSTEM FOR FIRSTNATIONS

ELECTIONS

Discussion Paper

October 1, 2010


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TABLE OF CONTENTS

INTRODUCTION AND BACKGROUND ............................................................ 11

RECOMMENDATIONS FOR AN IMPROVED ELECTION SYSTEM AND MORESTABLE FIRST NATIONS GOVERNMENTS ..................................................... 12

1. New Opt-in Legislation for Band Council Elections ............................ 13

2. Band Council Size and Membership ..................................................... 13

3. Term of Office for Band Council Members ............................................ 14

4. Same or Common Day for Elections ..................................................... 15

5. Electoral Officers .................................................................................. 15

6. Nominations and Elections ................................................................... 16

7. Mail-In Ballots and Advance Voting ...................................................... 17

8. Appeals of Band Council Elections ....................................................... 18

9. Election Offences and Penalties ........................................................... 20

10. Recall of Elected Band Council Members ............................................. 20

11. Removal of Elected Band Council Members from Office ...................... 21

CONCLUSION .................................................................................................... 22

OFFENCES AND PENALTIES IN THECANADA ELECTIONS ACT................. 22


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INTRODUCTION AND BACKGROUNDAt the current time, 247 First Nations (approximately 40%) hold Band Council

elections under the election provisions of the Indian Act. The vast majority of FirstNations agree that these election provisions are out-dated and problematic. Specificissues centre around the following:

The term of office for elected Band Councils under the Indian Actis two years.This short length of term places First Nations communities in an almostcontinual state of electioneering, and it undermines the Band Councilsstability as well as their efforts to develop long-term projects.

A weak process for the nomination of candidates that can result in thenomination of many candidates (sometimes over 100) for one election.

A mail-in ballot system that can lead to abuse.

An appeal process to the Minister of Indian Affairs and Northern Developmentthat is paternalistic, complicated and often takes too long to produce findingsand a final ruling.

The absence of defined election offences and associated penalties under the

Indian Actallows alleged cheating and other related activities such as theselling and buying of votes to go unpunished.

The Atlantic Policy Congress of First Nations Chiefs (APC) and the Assembly ofManitoba Chiefs (AMC) have taken a keen interest in looking at ways to stabilize andimprove upon First Nations governance through a stronger and more modern electionsystem. Over the last two years, with the support of Indian and Northern AffairsCanada, the AMC and the APC have been researching the issue of Band Councilelections. After having heard from First Nation leaders, governance technicians andcommunity members in their respective regions, both organizations producedrecommendations which called for an improved system for Band Council elections.

This discussion paper was written for the purposes of outlining theserecommendations, to further the discussion and to invite feedback on developing astronger election system for First Nations.


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RECOMMENDATIONS FOR AN IMPROVED ELECTIONSYSTEM AND MORE STABLE FIRST NATIONSGOVERNMENTS

At the onset, and before outlining the recommendations, it is important to pointout that replacing the existing Indian Actelection system is not what is being proposed.The Indian Actelection system will remain unchanged for those First Nations who feelthat it suits their needs. The AMC and the APC have recommended the development ofa brand new opt-inlaw and system for Band Council elections. First Nations who holdelections under their own community-election codes approved by their membership will

not be affected by the proposed reforms. For the purposes of this discussion only, theproposed election law will be referred to as a First Nations Elections Act. It wouldcontain some of the same rules as the Indian Actelection system along with someimportant differences as outlined below:

the term (length) of office for Band Council members should be 4 yearsinstead of the 2-year term that exists under the Indian Actsystem;

the mail-in ballot system should be improved;

the Minister of Indian Affairs and Northern Development and his Department -

who currently receive, investigate and decided upon election appeals - shouldbe removed from any involvement; and

the Act should define and set out election offences and attach penalties todiscourage cheating and other dishonest activities from taking place inelections.

While the above are the major recommendations for improving the electionsystem as put forward by the APC and the AMC, there were other recommendationsthat dealt with matters such as a common (or same) day for elections in Manitoba, andthe ability for First Nations voters to recallelected officials and have them removed

during their term of office.

The key elements of a proposed First Nations Elections Act are described in thefollowing pages.


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1. NewOpt-inLegislation for Band Council Elections

The APC and AMC have recommended that the Government of Canadaintroduce new legislation as an alternative to the Indian Actsystem for Band Councilelections. With this new legislation, individual First Nations could choose to opt in andhave it applied to their elections. In keeping with this, a First Nation Council would passa resolution, indicating that it wishes to opt-in to the new legislation, and then send thatresolution to the Minister of Indian Affairs and Northern Development for action.

If the new legislation for Band Council elections were to be introduced, individualFirst Nations currently operating under the Indian Actsystem would have three basicoptions:

opt-in to the new legislation so that the provisions of that legislation wouldthen govern the elections for the opting in First Nations;

continue to hold Band Council elections under the Indian Actelection system;or

develop and ratify a community-designed (custom) election code.

2. Band Council Size and Membership

Under the Indian Act, a Band Council consists of one Chief and one Councillor forevery 100 members of the Band, but the number of Councillors is not less than 2 and no

more than 12. Also, under the Indian Act, no Band shall have more than one Chief. It isproposed that these provisions of the Indian Actfor Band Council size and membershipbe the same in a new First Nations Elections Act.

Until recently, all candidates for Councillor positions had to live on-reserve.However, in August 2007, the Federal Court struck down this residency requirement inwhat is called the Gull Bay decision. As a result of this court decision, it is nowpossible for some First Nations Councils to be made up entirely of Band members notliving on the reserve. Many First Nations are troubled by this prospect as they believethat a Band Council made up largely or entirely of off-reserve members would have lessknowledge of on-reserve issues. They believe that this would result in the concerns of

1. It is proposed that the Government of Canada introduce a new First Nations

Elections Act with key provisions as proposed below in sections 2 to 11 ofthis discussion paper and provide individual First Nations with the choice ofopting in or, at a later date opting outif they so wish, in favour of acommunity-designed or custom election system.


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on-reserve members not being properly heard and their priorities being ignored. This

prospect highlights the need for the new First Nations Elections Act to provide astructure that establishes a balance between, (i) the rights of off-reserve members tohold Band Council positions and, (ii) the need to address the specific interests of on-reserve members, such as in respect of the direction, management and delivery of on-reserve services.

3. Term of Office for Band Council Members

First Nations Band Council members, who are elected under the Indian Actelection system, hold office for a 2-year term. The APC and the AMC haverecommended that the new elections legislation provide that, for First Nations optinginto the legislation, the Band Council members be elected for a 4-year term.

The Indian Act, in requiring elections every two years, has created conditions ofinstability and has fostered divisions in First Nations communities. Most often the two-year term of office is too short to provide political stability for First Nations governmentsto plan for and implement long-term initiatives, and to build a proper foundation forcommunity development before they face re-election. The 2-year term is especiallydifficult and challenging for those elected to a Band Council for a first time. New

Councillors need time to learn their responsibilities and the various projects that requiretheir attention. Projects are often put at risk by the 2-year election cycle and by therelated high turnover of elected officials.

For these reasons, the APC and the AMC recommend a 4-year term for BandCouncils. Federal, provincial and most municipal governments across the country have4-year terms, so this recommendation would make terms of office of Band Councilscomparable with most other governments in Canada.

2. It is proposed that, under a new opt-in First Nations Elections Act,that:

(a) a Band Council consist of one Chief and one Councillor for every 100members of the Band, but the number of Councillors not be less than 2nor more than 12; and

(b) up to one-half of the Councillor positions on a Band Council may bedesignated to be held by only Band members who live on the reserve if,during a vote held on this question, 50% or more of the votes cast supportit.


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4. Same or Common Day for Elections

Under the Indian Actprovisions, elections of Band Councils must be held everytwo years. However, the Indian Actprovisions do not require that elections be held on acommon or same day. Consequently, under the Indian Actelections system, if there are20 First Nations in a province, there could be 20 different election dates spread over a 2-year period on which the individual elections would be held. Manitoba First Nations

have voiced their disagreement with regards to this formula and want Band Councilelections in their province to be held on the same day, or within the same period.

With this approach, First Nations Band Councils in Manitoba that choose to optin would all hold office starting and ending on the same day. The AMC believes thatthis would foster stability, consistency and better coordination of joint and cooperativeprojects among First Nations in Manitoba, and possibly bring enormous benefit toeconomic development for First Nations across the province. The AMC noted that,under the Indian Actelections system, joint or cooperative projects requiring theparticipation and support of several Band Councils in Manitoba often cannot get startedbecause, in any given month, leadership in one or more of the Band Councils changes

due to an election. As new Band Councils are elected, members often have their ownpersonal perspectives and interests.

Beyond Manitoba, if all or most of the First Nations in the same region or provinceso wished, a common or same day for elections within that region or province could beselected. However, this part of the legislation would not be mandatory and each regionwould decide whether they want to adopt a common election day or not.

5. Electoral Officers

Before an election is to be held under the Indian Actelection system, an electoralofficer is appointed by the Band Council and approved by the Minister. The electoralofficer is responsible for preparing the voters list, sending and receiving mail-in ballots,conducting the nomination meeting, overseeing the voting, verifying the mail-in ballots

3. It is proposed that, under the new opt-in First Nations Elections Act, theterm of elected office for Chiefs and Band Councillors be 4 years.

4. It is proposed that the new First Nations Elections Act and regulationsprovide First Nations with the possibility of adopting a common day for all

Band Council elections in that region or province.


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and counting the votes. It is believed that these provisions for Electoral Officers have

worked well and should be incorporated in a new First Nations Elections Act. However,it has been recommended that under the new legislation, and in accordance with theproposal to remove the involvement of the Minister of Indian Affairs and NorthernDevelopment in Band Council elections, that the appointment of an electoral officer by aBand Council would not need to be approved by the Minister.

6. Nominations and Elections

Under the Indian Actelection system, any one who is registered on the Band listand is 18 years of age or older can vote. To be a candidate, to nominate or to second anomination of a candidate for a Councillor position, a person must be a qualified elector(voter). These features of the Indian Actelection system have proven to be effective.

Under the Indian Actelection system, a nomination meeting is held at least 42days before the election. The purpose of this meeting is to nominate candidates for the

positions of Chief and Councillors for the upcoming election. Notice of this meeting,along with the voters list, must be posted by the Electoral Officer at least 30 days inadvance. The Electoral Officer will, at the same time, mail out to each eligible off-reserve voter for whom there is an address, the notice of the nomination meeting alongwith a voter declaration form. Voters can nominate candidates for the position of Chiefand Councillors through the mail-in process. If the number of nominees does notexceed the number of positions to be filled, the nominees will be declared elected.

While these provisions of the Indian Actfor nominations and voting do not requirechanges, there are others that have created problems. For example, under the IndianActprovisions, one person can be nominated for both the Chief and a Councillor

position. Furthermore, there is no limit on the number of candidates that one person cannominate. Frivolous candidates - individuals without the serious intent of running - canalso be a problem. Nobody is discouraged from letting their names stand for electiononce they are nominated. In addition, people who have no interest in running forelection are often nominated by others. Once people are nominated, their name willautomatically appear on the ballot unless they withdraw in writing, so names mayappear on the ballots without the person even knowing they were nominated. If theballots are already printed, a name stays on the ballot even if the candidate haswithdrawn.

5. It is proposed that the new First Nations Elections Act and its regulationsprovide for the appointment of electoral officers by Band Councils withoutrequiring the Ministers approval.


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In other election systems, including many First Nations community-designed (or

custom) systems, there are many ways to control the nomination process so that it is notabused. For example, a candidacy fee must be paid which can ensure that candidatesletting their names stand for election are serious. At the very least, persons who arenominated must sign a declaration accepting the nomination for their name to appear onthe ballot.

7. Mail-In Ballots and Advance Voting

Under the Indian Actelection system, voters both on and off reserve may vote bymail-in ballot. The Electoral Officer receives a list of addresses from a Bandadministrator and, using this list, mails the ballots and voting instructions to off-reservevoters. On-reserve voters can contact the Electoral Officer directly to obtain a mail-inballot. These voters then fill out the ballot, sign a voter declaration form in the presenceof a witness and mail the completed ballot package to the Electoral Officer so that it canbe received before the polls close on voting day.

As the APC and the AMC have noted, there have been abuses with the mail-inballot system. Since no one sees the voter cast his or her vote on the mail-in ballot, it isoften difficult to ensure that the person filling and mailing the ballot is indeed the propervoter. A number of off-reserve voters, who have little interest in their First Nationselection process but have received a mail-in ballot because their name and address arekept by the First Nation, are alleged to have sometimes sold their ballots to others. Invarious parts of the country, the alleged buying and selling of mail-in ballots has beenquite widespread. Given that the First Nation provides the Electoral Officer with a list ofaddresses for mail-in ballots that may or may not be accurate or up-to-date, this activitycan easily take place. Voters who receive these mail-in ballots may or may not have aninterest in casting a legitimate vote. This type of abuse could be reduced if the new

6. It is proposed that, in the new First Nations Elections Act and itsregulations, the process to nominate candidates generally mirror or copythe process under the Indian Actsystem with the following improvements:

(a) only First Nations Band members (aged 18 or older) may nominate and

be nominated for a Chief or Councillor position; no person may benominated for more than one position; and no person can nominatemore candidates than there are positions available for election;

(b) persons who are nominated will be required to accept their nominationin writing or their name will not appear on the ballot.

(c) individual First Nations be provided with the option of charging acandidate fee of up to $250.


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legislation allowed for greater control of the distribution and return of mail-in ballots. The

rules could also place the responsibility on the interested voters to contact the ElectoralOfficer to have a mail-in ballot sent to them. This would ensure that ballots are only sentto interested voters.

8. Appeals of Band Council Elections

The Indian Actsets out provisions for First Nations voters to launch an appeal ofan election with the Minister and the Department of Indian Affairs and NorthernDevelopment. To do so, a First Nations voter must submit an affidavit setting out thegrounds for the appeal within 45 days of an election. When the Department receives an

appeal, a copy of it is sent by registered mail to all the candidates in the election and theelectoral officer, who may provide a response and comments within 14 days. Afterreceipt of the responses and any other information, the Department may conduct aninvestigation. If there is enough evidence to show that the election was invalid, theMinister can ask the Governor in Council to overturn the election of one or morecandidates.

The experience to date has been that about 30% of all Band Council electionsunder the Indian Acthave been appealed; which amounts to 40 elections per year.Many of the election appeals are rejected outright by the Department because thereasons put forward for the appeal are not acceptable, do not demonstrate violations ofthe election rules or are considered to be so minor as to have had no impact on theelection. Each year, usually no more than 5 election appeals result in the overturn of anelection.

Identified problems with the Indian Actappeals process are:

It lacks rigor, transparency and procedural fairness.

It is easy to launch an appeal based on frivolous allegations, which throws adark cloud of uncertainty over the Band Council for often a very long periodof time.

7. (a) It is proposed that the new First Nations Elections Act or its regulationsprovide that mail-in ballots be sent to voters only upon their written requestand that those written requests must be accompanied by photocopies ofreliable identification of the voters.

(b) It is also proposed that the regulations permit the holding of advance polls

to reduce the number of electors who would need to vote by mail-in ballot.


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An appeal can take anywhere from 6 to 18 months to be resolved, which is a

significant part of a Band Councils mandate.

The role of the Minister in investigating and deciding upon election appeals ispaternalistic and an inappropriate intervention in the internal affairs of a FirstNation.

The AMC noted that approximately 50% of all Indian Actelections in Manitobaare appealed and in some cases, appeals can take over a year to get resolved. TheAMC said that this creates uncertainty and instability both in the community and amongother First Nation leaders and business stakeholders and that the challenge is todesign a legitimate, independent and impartial appeal mechanism.

The APC and the AMC recommended that, under a new First Nations ElectionsAct, the role of the Minister and his Department in election appeals be eliminated infavour of the establishment of new independent tribunals that would have powers set outin the legislation to investigate and decide upon appeals. The APC also recommendedthat timeframes for conducting investigations and issuing decisions on appeals beestablished and that persons wishing to launch an appeal be required to pay a fee up toa maximum of $250.

There are also some other options to consider to change the appeals process byimproving the current role of the Minister in election appeals as outlined in Option #1, or

relying on the courts to hear and decide election appeals as per Option #3.

Option #1: Improve the current election appeal process in the new legislation.The current role of the Minister of Indian Affairs and Northern Development in theappeals of Band Council elections could be maintained but significantly improved inthe new legislation. Considering that many First Nations elections appeals under theIndian Actsystem are superficial and not justified, the new legislation could set outmeasures to reduce these types of appeals, such as providing guidelines, requiringfees, and setting strict timelines for investigation and resolution. While such addedprovisions could improve and speed up the Departments elections appeal process,this option would not satisfy the recommendation of many First Nations that the

Minister and the Department not play a role in election appeals.

Option #2: Set up a new independent and impartial elections appeals tribunal.This approach calls for the establishment of an elections appeals tribunal to takeover the related roles and responsibilities of the Minister of Indian Affairs andNorthern Development. This option satisfies the recommendations for the Ministerand the Department to withdraw completely from election appeals.

Option #3: Rely on the courts to handle the appeals of Band Council elections.For federal, provincial/territorial and municipal elections, the power to imposepenalties on corrupt practices and to overturn elections resides only with the courts.


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In this regard, the Superior Courts have demonstrated that they can act impartially

and judiciously. Through a new First Nations Elections Act, the Superior Courtscould be asked to take on this appeals function for opting in First Nations. Thatarrangement would draw on the demonstrated capacity of the Superior Courts andput the opting in First Nations on a comparable basis with other governmentsacross Canada in terms of ruling upon the validity of elections.

9. Election Offences and Penalties

As noted by the APC, the Indian Actelection system does not set out electionoffences or attach any related penalties. This is a major weakness because people whoengage in dishonest and corrupt election practices are not called to account. The APCrecommended that the new election legislation define offences such as buying andselling mail-in ballots and offering gifts or favours for individual votes and attachpenalties to the defined offences. This arrangement exists in federal, provincial and

municipal elections laws and even allows prosecutions to be launched outside of theelection appeal process.

In the new First Nation election legislation, the introduction of defined electionsoffences and penalties would allow the investigation, prosecution and imposition ofpenalties relating to corrupt or dishonest practices by the Crown prosecutors, courts and

police, which is consistent with federal, provincial and municipal elections in Canada.

10. Recall of Elected Band Council Members

Under the Indian Actand its regulations, there is no provision for First Nationsvoters who have lost confidence in their leaders to take action to recall elected BandCouncil members and have them removed from office. However, in British Columbia

8. It is proposed that options for improving the appeals process for BandCouncil elections be given further consideration and that one option bechosen and recommended for inclusion in the new First Nations ElectionsAct, based on feasibility and the best use of limited financial resources.

9. Itis proposed that the new First Nations Elections Act and its regulationsprovide for offence and penalty provisions similar to those found in theCanada Elections Actfor vote buying, intimidation and interference (seeAnnex A to this discussion paper). A person who has been convicted of aserious election related offence could also be declared ineligible to be acandidate at a First Nation election for up to 6 years.


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and in many community (or custom) election systems, voters are able to recall their

elected officials.

The APC and the AMC recommended that the new First Nations Elections Actallow for the majority of a First Nations voters to recall one or more elected BandCouncil members during the 4-year term of office for reasons such as: excessiveabsences from Band Council meetings, poor performance, conflict of interest ordisreputable behaviour.

Under a new system of recall, it is further proposed that petitions for the recalland removal of an elected official from office be allowed only at the 2-year point of the 4-year mandate and only within 30 days of that 2-year point. This will ensure that the

stability that a four year term would achieve is not ruined by the leaders constantly beingrecalled. If an elected official is recalled and removed from office, there would need tobe a by-election to fill the vacancy on the Band Council.

Although this kind of recall mechanism does not exist in most municipal,provincial or federal election systems, it was thought to be a good way to address theconcerns of some individuals who feel that four years is a long term for a leadership that

is not doing a good job.

11. Removal of Elected Band Council Members from Office

The Indian Actprovides that the office of a Chief or Band Councillor becomesvacant when the person who holds that office is convicted of a crime, dies or resigns his

office. It is suggested that these conditions for removal from office, along with therecall provision (as discussed and proposed above), be incorporated in the new FirstNations Elections Act.

The Indian Actalso gives powers to the Minister to remove an elected personfrom a Band Council if he or she had been absent from three consecutive Band Council

10. It is proposed that the new First Nations Elections Act provide for the recalland removal from office of one or more elected officials when there is arelated petition having the support of at least 60% of the voters of that FirstNation. The petition for a recall would only be allowed to take place at the2-year point of a 4-year mandate and only within 30 days of the 2-yearpoint.

11. It is proposed that the new First Nations Elections Act and its regulationsprovide that a Chief or Band Councillor would cease to hold office if he orshe: (i) is convicted of an indictable offence and sentenced to imprisonmentfor more than 30 consecutive days; (ii) dies or resigns from office; (iii) isconvicted of offences under the new Act; or (iv) is removed from the elected

position pursuant to the legislations recallprovision.


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meetings without authorization. It is proposed that no such powers be given to the

Minister under a new First Nations Elections Act.

CONCLUSION

This discussion paper is based on the analysis and recommendations put forwardby both the APC and AMC who engaged their First Nations members on the issue ofFirst Nations elections. Both the APC and the AMC have called for the design andimplementation of a new opt-in First Nations Election Act and resulting regulations thatwould provide an effective and modern system for governing Band Council elections forthe opting-in First Nations. As evidenced by the recommendations, First Nations areinterested in having free and fair Band Council elections that support stable, effectiveand accountable First Nations governments as well as supporting the individual rights oftheir members.

Annex A

OFFENCES AND PENALTIES IN THECANADA ELECTIONS ACT

480. (1) Every person is guilty of an offence who, with the intention of delaying orobstructing the electoral process, contravenes this Act, otherwise than by committing anoffence under subsection (2) or section 481 or 482 or contravening a provision referredto in any of sections 483 to 499.

Public meetings

(2) Every person is guilty of an offence who, at any time between the issue of a writand the day after polling day at the election, acts, incites others to act or conspires to actin a disorderly manner with the intention of preventing the transaction of the business ofa public meeting called for the purposes of the election.

Offering bribe

481. (1) Every person is guilty of an offence who, during an election period, directlyor indirectly offers a bribe to influence an elector to vote or refrain from voting or to voteor refrain from voting for a particular candidate.

Accepting bribe

(2) Every elector is guilty of an offence who, during an election period, accepts oragrees to accept a bribe that is offered in the circumstances described in subsection (1).


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Intimidation, etc.

482. Every person is guilty of an offence who(a) by intimidation or duress, compels a person to vote or refrain from voting or to voteor refrain from voting for a particular candidate at an election; or(b) by any pretence or contrivance, including by representing that the ballot or themanner of voting at an election is not secret, induces a person to vote or refrain fromvoting or to vote or refrain from voting for a particular candidate at an election.

Offences under Part 1 (Electoral Rights)

Offences requiring intent dual procedure

483. Every person is guilty of an offence who contravenes(a) paragraph 5(a) (voting when not qualified or entitled) or 5(b) (inducing a person notqualified or entitled to vote, to vote); or(b) section 7 (voting more than once).

Punishment

500. (5) Every person who is guilty of an offence under any of subsections 480(1)and (2), sections 481 to 483, subsections 484(3), 485(2), 486(3), 487(2), 488(2) and489(3), section 490, subsections 491(3) and 492(2), section 494, subsections 495(5),

496(2) and 497(3), section 498 and subsection 499(2) is liable:

(a) on summary conviction, to a fine of not more than $2,000 or to imprisonment for aterm of not more than one year, or to both; or(b) on conviction on indictment, to a fine of not more than $5,000 or to imprisonment fora term of not more than five years, or to both.


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AMLIORER LESYSTME APPLICABLEAUX LECTIONS DESPREMIRES NATIONS

Document de discussion

le 1er octobre 2010


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TABLE DES MATIRES

INTRODUCTION ET HISTORIQUE 26RECOMMANDATIONS POUR DE MEILLEURES LECTIONS ET DESGOUVERNEMENTS DES PREMIRES NATIONS PLUS STABLES 27

1. Nouvelle loi sur les lections aux conseils de bande, laquelle ladhsionserait facultative......................................................................................................... 27

2. Taille et composition des conseils de bande................................................... 28

3. Dure du mandat des membres dun conseil de bande.................................. 294. Tenue des lections le mme jour .................................................................. 30

5. Prsidents dlection....................................................................................... 31

6. Mises en candidature ...................................................................................... 31

7. Bulletins de vote postaux et le vote par anticipation ....................................... 33

8. Appels relatifs aux rsultats dune lection ..................................................... 33

9. Infractions lectorales et peines ..................................................................... 36

10. Destitution des membres lus dun conseil de bande ..................................... 37

11. Rvocation des membres lus dun conseil de bande .................................... 38CONCLUSION 38INFRACTIONS ET PEINES PRVUES PAR LA LOI LECTORALE DU CANADA

39


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INTRODUCTION ET HISTORIQUE lheure actuelle, dans 247 Premires nations (ou environ 40 % ce celles-ci), les

lections au conseil de bande se font conformment aux dispositions de la Loi sur lesIndiens. Une majorit des Premire nations sont daccord que ces dispositionslectorales sont dsutes et problmatiques. Certains des problmes observs sont lessuivants :

La dure du mandat impose par la Loi sur les Indiensaux conseils de bandelus est de deux ans. Ce court mandat place les collectivits des Premiresnations en mode lectoral continuel et nuit galement la stabilit des

conseils de bande ainsi qu leurs efforts quant au dveloppement et lamise en uvre des projets long terme;

Un processus de mise en candidature aux postes de chef et de conseiller quise traduit souvent par un trop grand nombre de candidats une lection(parfois plus de cent);

Un systme de vote par bulletins de vote postal qui donne lieu de labus;

Un processus dappel des rsultats dune lection au ministre des Affairesindiennes et du Nord canadien jug paternaliste ,compliqu et qui prendsouvent trop de temps produire des rsultats et rendre une dcision finale;

Comme la Loi sur les Indiensne dfinit pas prcisment dinfraction lectoraleni de peine en cas dinfraction, on observe des cas allgus de tricherie etdautres irrgularits, comme la vente et lachat de votes, lesquels se font entoute impunit.

Le Atlantic Policy Congress of First Nation Chiefs (APC) et le Assembly ofManitoba Chiefs (AMC) ont signal un intrt dexplorer des pistes alternatives pourstabiliser et amliorer la gouvernance dans les Premires nations par le biais dunsystme lectoral plus robuste et moderne. Au cours des deux dernires annes, avecle soutien des Affaires indiennes et du Nord Canada, lAMC et lAPC ont effectu desrecherches dans le domaine des lections au sein des conseils de bande. Aprs avoirpris contact avec des dirigeants, des techniciens en gouvernance et des membres descollectivits des Premires nations dans leur rgion respective, chaque organisation alabor des recommandations dans lesquelles ils demandent la cration dun meilleursystme pour la tenue des lections au sein des conseils de bandes.

Le prsent document de discussion a pour objet dexaminer cesrecommandations, de poursuivre les discussions et dinviter la rtroaction sur laquestion du dveloppement dun systme lectoral nouveau et amlior pour lesPremires nations.


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RECOMMANDATIONS POUR UN MEILLEUR SYSTMELECTORAL ET DES GOUVERNEMENTS DES PREMIRES

NATIONS PLUS STABLES

Avant de poursuivre la discussion, il est important de noter que lAPC et lAMC nerecommandent pas que le systme actuel de la Loi sur les Indienssoit remplac. Cesystme demeurera le mme pour les Premires nations qui en sont satisfaites. Onpropose plutt dlaborer une nouvelle loi et un nouveau systme facultatifs pour leslections aux conseils de bande. Les Premires nations qui tiennent leurs lections envertu de leur propre code lectoral communautaire approuv par les membres ne seront

pas touches par les changements proposs. Pour les propos de la prsentediscussion, le projet de loi propos portera le nom loi sur les lections des Premiresnations . Elle partagerait certaines rgles avec le systme de la Loi sur les Indiens,mais elle compterait aussi des diffrences trs importantes, telles :

le mandat des membres dun conseil de bande devrait tre de quatre ansplutt que de deux ans, dure fixe par la Loi sur les Indiens;

le systme de vote par bulletin postal devrait tre amlior;

le ministre des Affaires indiennes et du Nord canadien et le Ministre qui

reoivent actuellement les demandes dappel relatives aux lections, fontenqute et rendent des dcisions devraient tre exclus de touteintervention; et

la nouvelle loi sur les lections des Premires nations devrait dfinir et tablirdes infractions lectorales et des peines connexes afin de dcourager latricherie et dautres pratiques malhonntes pendant les lections.

Ces recommandations constituent les mesures principales que lAPC et lAMCprconisent relativement la rforme lectorale. Dautres recommandations ont aussit prsentes; elles concernent notamment la tenue des lections le mme jour dans

toutes les Premires nations du Manitoba et la capacit des lecteurs des Premiresnations de destituer un lu avant la fin de son mandat.

Les lments principaux de la loi propose sur les lections des Premiresnations sont expliqus dans les pages suivantes.

1. Nouvelle loi sur les lections aux conseils de bande, laquelleladhsion serait facultative

LAPC et lAMC recommandent que le gouvernement du Canada adopte unenouvelle loi qui servirait de solution de rechange au systme que prvoit la Loi sur les


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Indienspour les lections aux conseils de bande. Les Premires nations pourraient

alors dcider individuellement dadhrer ou non la loi pour la tenue de leurs lections.Le cas chant, le conseil dune Premire nation adopterait une rsolution indiquantquil souhaite adhrer la nouvelle loi, rsolution quil ferait parvenir au ministre desAffaires indiennes et du Nord canadien.

Si la nouvelle loi sur les lections aux conseils de bande tait adopte, toutePremire nation qui est aujourdhui assujettie au systme de la Loi sur les Indienspourrait choisir entre trois options :

adhrer la nouvelle loi, laquelle rgirait dornavant les lections dans laPremire nation;

continuer dlire le conseil de bande conformment au systme prvu par laLoi sur les Indiens; ou

laborer et ratifier un code lectoral communautaire (coutumier).

2. Taille et composition des conseils de bande

En vertu de la Loi sur les Indiens, le conseil de bande se compose dun chef etdun conseiller par tranche de 100 membres de la bande, et le nombre de conseillersdoit tre de deux au minimum et de douze au maximum. La Loi sur les Indiensinterditpar ailleurs aux bandes davoir plus dun chef. On propose que les dispositions de la Loisur les Indiensconcernant la taille et la composition des conseils de bande soientmaintenues dans la nouvelle loi sur les lections des Premires nations.

Jusqu tout rcemment, tous les candidats un poste de conseiller devaientvivre sur la rserve. Cependant, en aot 2007, la Cour fdrale a annul cette exigencedans ce qui est appel la dcision Gull Bay . la suite de ce jugement, il estmaintenant possible quun conseil de bande soit compos entirement de membresvivant hors rserve. Bon nombre de Premires nations sinquitent de ce phnomne;elles estiment quun conseil de bande form totalement ou en grande partie demembres vivant hors rserve risque de mal connatre les questions qui touchent larserve. Un tel conseil pourrait ne pas donner toute lattention ncessaire aux points devue et aux priorits des membres vivant sur la rserve. Ce risque met en lumire un

1. Il est propos que le gouvernement du Canada adopte une nouvelle loi surles lections des Premires nations y compris les dispositions clsproposes dans les sections 2 11 du prsent documentet quil laisse chaque Premire nation le choix dy adhrer et de sen affranchirultrieurement dans le cas o elle souhaite adopter un systme

communautaire ou coutumier.


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besoin pour la nouvelle loi sur les lections des Premires nations de prvoir une

structure qui concilie, dune part, (i) le droit des membres hors rserve doccuper unposte au conseil de bande et, dautre part, (ii) le besoin de respecter les intrtsparticuliers des membres vivant sur la rserve, notamment en ce qui concerne ladirection, la gestion et la prestation des services sur la rserve.

3. Dure du mandat des membres dun conseil de bande

Les membres du conseil de bande dune Premire nation qui suit le systmeprvu par la Loi sur les Indienssont lus pour des mandats de deux ans. LAPC etlAMC recommandent que la nouvelle loi sur les lections, laquelle les Premiresnations pourront choisir dadhrer, prvoit des mandats de quatre ans.

La Loi sur les Indiens, qui imposant des lections aux deux ans, a engendrlinstabilit et provoqu des divisions au sein des communauts de Premires nations.Souvent, les mandats de deux ans sont trop courts pour favoriser la stabilit politique,pour permettre aux gouvernements des Premires nations denvisager et de mettre enuvre des initiatives long terme et pour btir les fondations ncessaires lessor descommunauts avant quils aient faire face de nouvelles lections. Le mandat de

deux ans savre particulirement problmatique pour les personnes qui font partie dunconseil de bande pour la premire fois. Aprs avoir t lues, ces personnes doiventprendre le temps de se familiariser avec leurs responsabilits ainsi que les enjeux et lesprojets qui exigent leur attention. Le mandat de deux ans et le roulement lev des lus,phnomne qui en dcoule, mettent donc en pril ces projets.

Pour les raisons expose ci-dessus, lAPC etlAMC recommandent que lesmembres des conseils de bande soient lus pour des mandats de quatre ans. Auxniveaux fdral et provincial et dans la plupart des administrations municipales du pays,le mandat est de quatre ans. Ainsi, cette recommandation ferait en sorte que la duredes mandats des conseils de bande soit comparable celle des autres lus au Canada.

3. Il est propos que, en vertu de la nouvelle loi sur les lections des Premiresnations, laquelle ladhsion sera facultative :

(a) un conseil de bande se compose dun chef et dun conseiller par tranchede 100 membres de la bande, et que le nombre de conseillers soit dedeux au minimum et de douze au maximum;

(b) dans un conseil de bande, jusqu la moiti des postes de conseillerpuissent tre occups uniquement par des membres de la bande vivantsur la rserve dans le cas o au moins 50 % des lecteurs appuient cetteproposition lors dun vote sur la question.


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4. Tenue des lections le mme jour

La Loi sur les Indiensexige que les lections aux conseils de bande se tiennentaux deux ans, mais elle ne prcise pas que ces lections doivent avoir lieu au mme

jour dans toutes les Premires nations. Pour cette raison, selon le systme prvu par laLoi sur les Indiens, sil y a vingt Premires nations dans une province, il peut y avoir20jours dlections diffrents rpartis sur une priode de deux ans. Les Premiresnations du Manitoba ont soulign quelles ne sont pas en accord avec cette formule.Elles veulent plutt que les lections se tiennent le mme jour dans toutes lesPremires nations de la province ou durant une mme priode de temps.

Selon cette approche, les conseils de bande des Premires nations au Manitobaqui choisissent dadhrer la nouvelle loi auraient un mandat commenant et seterminant le mme jour. LAMC a indiqu que cette faon de faire favoriserait lacoordination, la stabilit et le bon droulement des projets conjoints et coopratifs des

Premires nations du Manitoba, et pourrait stimuler grandement le dveloppementconomique des Premires nations dans lensemble de la province. LAMC a aussi ditque, dans le cadre du systme lectoral de la Loi sur les Indiens, il arrive souvent quilsoit impossible de lancer ou de conclure des projets conjoints ou coopratifs qui exigentla participation et le soutien de plusieurs conseils de bande de la province parce que, nimporte quel moment de lanne, les dirigeants dau moins un conseil de banderisquent de changer la suite dlections. Or, les nouveaux lus ont souvent des pointsde vue et des intrts personnels diffrents de leurs prdcesseurs.

En dehors du Manitoba, si la totalit ou la plupart des Premires nations dunemme rgion ou province appuie lide dlections tenues le mme jourou durant la

mme priode dans leur rgion ou province, cela pourrai galement se faire. Cettepartie de la loi ne serait toutefois pas excutoire, et il reviendrait chaque rgion dedcider si elle veut fixer un seul jour dlections.

3. Il est propos que, en vertu de la nouvelle loi sur les lections des Premiresnations, laquelle ladhsion sera facultative, le mandat des chefs et desconseillers lus soit de quatre ans.


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5. Prsidents dlection

Avant que des lections aient lieu dans le cadre du systme prvu par la Loi surles Indiens, le conseil de bande doit nommer un prsident dlection et le ministre doitapprouver la nomination. Cette personne a la responsabilit de dresser la liste deslecteurs, denvoyer et de recevoir les bulletins de vote postaux, de diriger l assemblede mise en candidature, de superviser le vote, de vrifier les bulletins postaux et dedpouiller le scrutin. On estime que, jusqu prsent, cette faon de faire fonctionne bienet quelle devrait tre intgre la loi sur les lections des Premires nations. Il esttoutefois recommand que, en vertu de la nouvelle loi et conformment lidedliminer lintervention du ministre des Affaires indiennes et du Nord canadien dans leslections aux conseils de bande, la nomination dun prsident dlection par le conseilde bande nexige pas

lapprobation du ministre.

6. Mises en candidature

Conformment au systme lectoral prvu par la Loi sur les Indiens, toutepersonne inscrite la liste dune bande et ge dau moins 18 ans peut voter. En outre,seuls les lecteurs admissibles peuvent tre candidats, proposer un candidat ouappuyer une candidature un poste de conseiller. Ces exigences de la Loi sur lesIndiensse sont rvles judicieuses et efficaces.

Selon la Loi sur les Indiens, une assemble de mise en candidature doit se tenir

au moins 42jours avant llection. Cette runion sert dsigner les candidats auxpostes de chef et de conseillers. Le prsident dlection doit afficher lavis annonantlassemble et la liste des lecteurs au moins 30jours lavance. En mme temps, ildoit envoyer chaque lecteur admissible vivant lextrieur de la rserve et pour qui ila une adresse, lavis de lassembleainsi quune formule de dclaration de llecteur.Les lecteurs peuvent proposer par voie postale des candidats aux postes de chef et deconseillers. Si le nombre de candidatures ne dpasse pas le nombre de postes combler, les candidats seront dclars lus.

5. Il est propos que la nouvelle loi sur les lections des Premires nations etles rglements affrents prvoient la nomination du prsident dlection parles conseils de bande, sans que le ministre ait donner son approbation.

4. On propose que la nouvelle loi sur les lections des Premires nations etles rglements affrents donnent aux Premires nations la possibilit detenir les lections aux conseils de bande le mme jour dans la rgion ou laprovince concerne.


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Mme si les dispositions de la Loi sur les Indiensconcernant les mises en

candidature et le scrutin peuvent rester telles quelles, dautres dispositions ont entrandivers problmes. Par exemple, une personne peut tre candidate la fois au poste dechef et au poste de conseiller, et il ny a pas de limite au nombre de candidats quunepersonne peut proposer. Mentionnons aussi les mises en candidature frivoles,cest--dire, les personnes qui nont aucune chance raisonnable de gagner. Il nexisteaucune mesure pour inciter ces personnes retirer leur candidature. Il arrive aussisouvent que des personnes qui nont aucun intrt se faire lire soient dsignescandidats. Le nom de tout candidat propos apparat automatiquement sur le bulletin devote moins que le candidat ne se dsiste par crit. Ainsi, il y a des candidats propossdont le nom figure sur le bulletin de vote sans mme que ces derniers aientconnaissance quils ont t sujet dune mise en candidature. Si les bulletins sont dj

imprims, le nom demeure inscrit mme si la personne sest retire de la course.

Dautres systmes lectoraux, dont un grand nombre de systmescommunautaires (coutumiers) des Premires nations, prvoient diffrentes faonsdassurer la bonne marche du processus de mise en candidature. Par exemple, on peutexiger des droits de candidature pour veiller ce que seules les personnes srieusesdemeurent inscrites au bulletin de vote. Au minimum, les candidats doivent signer unedclaration par laquelle ils acceptent que leur nom figure au bulletin de vote.

7. On propose que le processus de mise en candidature prvu par lanouvelle loi sur les lections des Premires nations et les rglementsaffrents reflte gnralement ou reproduise le processus dcrit dans la Loisur les Indiens, et que les amliorations suivantes soient apportes :

(d) seuls les membres de la Premire nation (gs dau moins 18 ans)peuvent tre candidats ou proposer des candidats aux postes de chefou de conseiller; personne ne peut tre candidat plus dun poste; etpersonne ne peut proposer un nombre de candidats suprieur aunombre de postes disponibles;

(e) les candidats doivent accepter leur mise en candidature par crit, dfaut de quoi leur nom ne pourra figurer au bulletin de vote;

(f) les Premires nations ont loption dexiger jusqu' 250 $ en droit decandidature lors dune lection.


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7. Bulletins de vote postaux et le vote par anticipation

En vertu du systme lectoral prvu par la Loi sur les Indiens, les lecteurs vivant la fois sur et hors rserve peuvent voter par bulletin de vote postal. laide dune listedadresses reue dun administrateur de la bande, le prsident dlection envoie lesbulletins de vote et les instructions relatives au vote aux lecteurs vivant hors rserve.Les lecteurs vivant sur la rserve peuvent communiquer avec le prsident dlectionafin dobtenir un bulletin de vote postal. Ces derniers remplissent alors le bulletin,signent une formule de dclaration de llecteur en prsence dun tmoin et retournentle tout par la poste au prsident dlection. Les bulletins postaux doivent tre reusavant la fermeture des bureaux de scrutin, le jour du vote.

Comme lAPC et lAMC lont fait remarquer, le systme des bulletins de votepostaux a dj fait lobjet dabus. Puisque personne ne voit llecteur faire son choix surle bulletin de vote, il est souvent difficile de sassurer que la personne qui a rempli etpost le bulletin est bien celle qui le bulletin tait adress. Il est arriv que deslecteurs vivant hors rserve, qui sintressaient peu aux lections dans leur Premirenation, mais qui avaient reu un bulletin de vote postal parce que la Premire nationavait conserv leur nom et leur adresse, aient vendu leur bulletin. Dans diversesrgions du pays, lachat et la vente de ces bulletins sont assez communs. Il est difficiledempcher cette pratique, car le prsident dlection doit envoyer les bulletins de voteen se fiant uniquement la liste dadresses que lui fournit la Premire nation. Or, cetteliste nest pas ncessairement juste et jour. Les lecteurs qui reoivent ces bulletinsne tiennent pas tous voter de faon lgitime. La nouvelle loi pourrait limiter ce typedabus si les rgles permettaient un meilleur contrle de la distribution et du renvoi desbulletins, et si elles amenaient les lecteurs intresss contacter le prsidentdlectionpour quun bulletin leur soit envoy par la poste. Ainsi, seules les personnesqui veulent vraiment voter obtiendraient un bulletin.

8. Appels relatifs aux rsultats dune lection

8. (a) Il est propos que, en vertu de la nouvelle loi sur les lections desPremires nations ou des rglements affrents, les bulletins de vote postauxne soient envoys aux lecteurs que si ceux-ci en font la demande crite,laquelle doit tre accompagne de la photocopie dune pice didentit fiable.

(b) Il est propos galement que les rglements permettent la tenu debureaux de vote par anticipation afin de rduire le nombre dlecteurs quidoivent voter par bulletin de vote postal.


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La Loi sur les Indiensrenferme des dispositions qui permettent aux lecteurs des

Premires nations de faire appel au ministre et au ministre des Affaires indiennes et duNord canadien concernant les rsultats dune lection. Pour ce faire, un lecteur doitsoumettre un affidavit qui expose les motifs de lappel dans les 45 jours suivantllection. Lorsque le Ministre reoit un appel, une copie est envoye par posterecommande tous les candidats llection ainsi quau prsident dlection, quipeuvent commenter les allgations ou rpondre dans les 14 jours qui suivent. Aprsavoir reu les rponses, le Ministre peut effectuer une enqute. Si les preuves suffisent tablir que les rsultats de llection ne sont pas valides, le ministre peut demander auGouverneur en Conseil dannuler llection du ou des candidats en cause.

ce jour, environ 30 % des lections aux conseils de bande tenues en vertu de

la Loi sur les Indiensont fait lobjet dun appel, ce qui quivaut une quarantaine paranne. Le Ministre rejette demble bon nombre des appelslorsquilssappuient surdes motifs inacceptables, quils ne prouvent pas que les rgles lectorales ont tenfreintes ou quils reposent sur des motifs si anodins quils nont aucun effet sur lesrsultats de llection. En gnral, on ne compte chaque anne pas plus de cinq appelsayant pour rsultat lannulation dunellection.

Les problmes relis au processus dappel en vertu de la Loi sur les Indienssont :

un manque de rigueur, de transparence et dquit procdurale.

il savre trop facile dinterjeter un appel bas sur des allgations frivoles, quiplace une incertitude prolonge sur le conseil de bande.

le lapse de temps pour en arriver une rsolution peux tre de 6 18 mois,ce qui nest pas raisonnable, le mandat tant de deux ans.

le rle du ministre dans lenqute et la prise de dcision en matire dappelsdlections est la fois un geste paternaliste et une intervention inappropriedans les affaires des Premires nations.

LAMC a soulign quenviron la moiti des lections tenues au Manitoba

conformment la Loi sur les Indiensfont lobjet dun appel et que dans certains cas, larsolution dun appel peut prendre plus dun an. LAMC a indiqu que ce systme crede lincertitude et delinstabilit dans la collectivit, chez dautres chefs de Premiresnations et dans le milieu des affaires. Selon elle, le dfi consiste en la conception dunmcanisme dappel lgitime, indpendant et impartial.

LAPC et lAMC ont recommand que, en vertu de la nouvelle loi sur les lectionsdes Premires nations, le rle du ministre et du Ministre dans le cadre des appelsrelatifs aux lections soit limin au profit de nouveaux tribunaux indpendants qui laloi confrerait de pouvoirs en matire denqute et de dcision. LAPC a aussi


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recommand ltablissement de dlais pour la tenue denqutes et la production des

dcisions, ainsi que limposition de frais maximaux de 250 $ pour interjeter appel.

Il y a aussi dautres options considerer afin de changer le processus dappel, enamliorant le rle actuel du minister lgard des appels dlections telle loption no 1,ou en en demandant la cours de traiter et de dcider des appels telle loption no 3.

Option no 1 : amliorer, dans la nouvelle loi, le processus actuel dappel relatifaux lections. Les rles actuels du ministre des Affaires indiennes et du Nordcanadien lgard des appels ports contre llection dun conseil de bandepourraient tre maintenus mais grandement amliors dans la nouvelle loi. Dans lecadre du systme tabli par la Loi sur les Indiens, beaucoup des appels interjets

relativement aux lections sont frivoles et injustifiables. La nouvelle loi pourraitprciser des mesures servant rduire le nombre dappels de ce type, par exemple :la mise en place de directives, limposition de frais ou ltablissement de dlais strictspour les enqutes et les rglements. Ces mesures pourraient amliorer et acclrerle processus dappel ministriel, mais elles ne rpondent pas la recommandationde nombreuses Premires nations selon qui le ministre et le Ministre ne devraientpas intervenir dans le processus dappel.

Option no 2 : tablissement dun tribunal dappel indpendant et impartial.Cette approche prconise la cration dun tribunal dappel pour remplacer le rle etles responsabilits du ministre des Affaires indiennes et du Nord. Cette option

rpond la recommandation qui le Ministre et son ministre se retire des appels lgard des lections.

Option no 3 : demander la cour de traiter les appels relatifs aux lections. Auxniveaux fdral, provincial/territorial et municipal, le pouvoir dimposer des peines encas de manuvre frauduleuse et dannuler des lections est rserv la cour. cetgard, les cours suprieures ont dmontr quelles pouvaient agir de faonimpartiale etjudicieuse. En vertu dune loi sur les lections des Premires nations,les cours suprieures pourraient tre amenes examiner les appels provenant desPremires nations qui ont choisi dadhrer la nouvelle loi. Cette option mettrait profit la capacit prouve des cours suprieures et placerait les Premires nations

concernes dans une situation comparable celles dautres gouvernements du paysen ce qui a trait la reconnaissance de la validit des lections.


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9. Infractions lectorales et peines

Comme lAPC la fait remarquer, le systme lectoral tabli par la Loi sur les

Indiensne prvoit pas dinfractions lectorales ni de peines sy rattachant. Il sagit dunelacune importante, car ceux et celles qui participent des manuvres frauduleuses oumalhonntes en rapport une lection ne sont pas appels en tre imputables. LAPCa recommand que la nouvelle loi dfinisse des infractionscomme lachat et la ventede bulletins de vote postaux et loffre de pot-de-vin ou de services en change de votesindividuels et des peines connexes. Les lois sur les lections fdrales, provinciales etmunicipales contiennent dj de telles dispositions et elle permet mme dintenter despoursuites en dehors du processus dappel tabli.

Si la nouvelle loi dfinissait des infractions lectorales et des peines, onpermettrait aux procureurs de la Couronne, aux tribunaux et aux services de police de

faire enqute, dintenter des poursuites et dimposer des peines en cas de manuvresfrauduleuses ou malhonntes ce qui se fait dj dans le cadre des lections fdrales,provinciales et municipales au Canada.

9. Il est propos que la nouvelle loi sur les lections des Premires nations etles rglements affrents prvoient des infractions et des peines semblables celles qui sont dfinies dans la Loi lectorale du Canadaconcernantlachat de votes, lintimidation et lingrence (voir lAnnexe A du prsentdocument). Une personne reconnue coupable dune infraction lectoralegrave pourrait galement tre inhabile se prsenter aux lections dune

Premire nation pour une priode maximale de six ans.

9. Il est propos de poursuivre lexamen des options visant amliorer le

processus dappel concernant les lections aux conseils de bande et, ensappuyant sur la faisabilit et la meilleure utilisation possible de ressourcesfinancires limites, de recommander la mise en uvre de lune de cesoptions dans la nouvelle loi sur les lections des Premires nations.


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10. Destitution des membres lus dun conseil de bande

La Loi sur les Indienset les rglements affrents ne comportent aucunedisposition tablissant que les lecteurs dune Premire nation qui ont perdu confianceen leurs dirigeants peuvent prendre des mesures pour destituer des membres lusdu conseil de bande et les carter du pouvoir. Dans le systme provincial de laColombie-Britannique et bon nombre de systmes lectoraux communautaires(coutumiers) toutefois, les lecteurs peuvent destituer des lus.

LAPC et lAMC ont recommand que la nouvelle loi sur les lections desPremires nations permette aux lecteurs dune Premire nation de destituer un ou plusdun membre lu du conseil de bande au cours du mandat de quatreans, si cest lesouhait de la majorit. Les raisons invoques pourraient tre, par exemple : desabsences excessives aux runions du conseil de bande, un mauvais rendement, desconflits dintrts ou un comportement rprhensible.

Par ailleurs, dans le cadre de la nouvelle procdure de destitution, les ptitionsvisant la destitution ou la rvocation dun lu seraient autorises uniquement aprs lesdeux premires annes du mandat de quatre ans et dans les 30 jours suivant la marquedes deux ans. De cette faon, la stabilit dun mandat de quatre ans ne sera pas minepar la destitution perptuelle des dirigeants. En cas de destitution, une lection partielledevrait se tenir pour quon puisse combler le sige laiss vacant au conseil de bande.

Mme si la plupart des systmes lectoraux fdraux, provinciaux et municipauxnont pas de mcanisme de destitution du genre, on croit quil sagit dun bon moyen derpondre aux proccupations de certains selon qui un mandat de quatre ans est troplong dans le cas dun conseil de bande qui ne fait pas du bon travail.

10. Il est propos que la nouvelle loi sur les lections des Premires nationsprvoit la destitution et la rvocation dun ou plus dun lu lorsquuneptition appuye par au moins 60 % des lecteurs de la Premire nationconcerne en fait la demande. La ptition visant une destitution doit treprsente aprs les deux premires annes du mandat de quatre ans etdans les 30 jours suivant la marque des deux ans.


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11. Rvocation des membres lusdun conseil de bande

Selon la Loi sur les Indiens, le poste dun chef ou dun conseiller devient vacantlorsque le titulaire est reconnu coupable dun crime, quil meurt ou quil dmissionne. Ilest propos que ces conditions rattaches la rvocation, de mme que la dispositionsur la destitution (telle que propose et discute ci-dessus), soient incorpores lanouvelle loi sur les lections des Premires nations et aux rglements affrents.

La Loi sur les Indiensexpose galement des pouvoirs que le ministre peut utiliserpour rvoquer un membre lu dun conseil de bande, dans le cas o celui-ci a tabsent trois runions conscutives du conseil de bande sans autorisation. Il estpropos que la nouvelle loi sur les lections des Premires nations ne confre aucunpouvoir du genre au ministre.

CONCLUSION

Le prsent document de discussion sappuie sur lanalyse et lesrecommandations de lAPC et de lAMC, qui ont consult leurs membres concernant leslections chez les Premires nations. LAPC et lAMC prconisent llaboration et lamise en uvre dune nouvelle loi sur les lections des Premires nations et derglements affrents, auxquels ladhsion serait facultative. La loi procurerait aux

Premires nations participantes un systme lectoral moderne et efficace. Commelatteste les recommandations de lAPC et de lAMC, les Premires nations veulent queleurs lections des conseils de bande soient libres et justes pour quelles puissentsoutenir la fois des gouvernements des Premires nations stable, efficace etresponsable, et les droits individuels de leurs membres.

12. Il est propos que, selon la nouvelle loi sur les lections des Premiresnations et les rglements affrents, un chef ou un conseiller cesse doccupersa fonction : (i) sil est dclar coupable dun acte criminel et condamn une peine demprisonnement de plus de 30 jours conscutifs; (ii) sil meurtou dmissionne; (iii) sil est reconnu coupable dune infraction la nouvelleloi; ou (iv) sil est rvoqu conformment la disposition s

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Final Rep or Ti a Election Reform Project March 2011

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