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Indigenous - United Nations Declaration on the Rights of Indigenous Peoples Act (UNDA)
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. CNL Ltd. v. Kebaowek First Nation et al.
In CNL Ltd. v. Kebaowek First Nation et al. (Fed CA, 2026) the Federal Court of Appeal allowed an appeal (from a JR), this over whether the Canadian Nuclear Safety Commission "erred in failing to consider the United Nations Declaration on the Rights of Indigenous Peoples (UNDRIP) and the free, prior and informed consent (FPIC) standard as stipulated therein in relation to the approval" of "the proposed near surface disposal facility (NSDF) on the Chalk River Laboratories site (the Site) that would be used to store low-level radioactive waste (LLW)".
Here the court characterizes and partially quotes both the United Nations Declaration on the Rights of Indigenous Peoples (UNDRIP) and the United Nations Declaration on the Rights of Indigenous Peoples Act (UNDA), a federal statute:[4] It should be noted that this case is not about whether the honour of the Crown required the Commission to consult with Kebaowek or any other Indigenous Nation. The Commission, as noted below, acknowledged that it had a duty to engage and consult with a number of Indigenous Nations and communities. The only issue in this appeal is whether, as a result of the adoption of the United Nations Declaration on the Rights of Indigenous Peoples Act, S.C. 2021, c. 14 (the UNDA), any obligations, in addition to those arising from the existing law related to the duty to consult and accommodate, have been imposed on the Commission in relation to Kebaowek.
I. UNDRIP
[5] UNDRIP is an international declaration that sets out certain rights of Indigenous peoples. It was adopted by the General Assembly of the United Nations in 2007, with Canada being one of the four countries voting against the adoption of the declaration. UNDRIP contains 24 preambulatory clauses and 46 articles. As noted by the British Columbia Court of Appeal in Gitxaala v. British Columbia (Chief Gold Commissioner), 2025 BCCA 430 (Gitxaala), at paragraph 66, "“[a]s a General Assembly resolution, ""UNDRIP does not create or impose new international legal rights or obligations, nor is it formally binding as a treaty. Rather, it is a statement of internationally recognized human rights and standards”".
[6] The articles that are particularly relevant in this appeal are Articles 29(2), 32(2) and 46:Article 29
Article 29
"2. States shall take effective measures to ensure that no storage or disposal of hazardous materials shall take place in the lands or territories of indigenous peoples without their free, prior and informed consent."
"2."" Les États prennent des mesures efficaces pour veiller à ce qu’aucune matière dangereuse ne soit stockée ou déchargée sur les terres ou territoires des peuples autochtones sans leur consentement préalable, donné librement et en connaissance de cause."
"Article 32"
"Article 32"
"2. States shall consult and cooperate in good faith with the indigenous peoples concerned through their own representative institutions in order to obtain their free and informed consent prior to the approval of any project affecting their lands or territories and other resources, particularly in connection with the development, utilization or exploitation of mineral, water or other resources."
"2."" Les États consultent les peuples autochtones concernés et coopèrent avec eux de bonne foi par l’intermédiaire de leurs propres institutions représentatives, en vue d’obtenir leur consentement, donné librement et en connaissance de cause, avant l’approbation de tout projet ayant des incidences sur leurs terres ou territoires et autres ressources, notamment en ce qui concerne la mise en valeur, l’utilisation ou l’exploitation des ressources minérales, hydriques ou autres."
"Article 46"
"Article 46"
"1. Nothing in this Declaration may be interpreted as implying for any State, people, group or person any right to engage in any activity or to perform any act contrary to the Charter of the United Nations or construed as authorizing or encouraging any action which would dismember or impair, totally or in part, the territorial integrity or political unity of sovereign and independent States."
"1."" Aucune disposition de la présente Déclaration ne peut être interprétée comme impliquant pour un État, un peuple, un groupement ou un individu un droit quelconque de se livrer à une activité ou d’accomplir un acte contraire à la Charte des Nations Unies, ni considérée comme autorisant ou encourageant aucun acte ayant pour effet de détruire ou d’amoindrir, totalement ou partiellement, l’intégrité territoriale ou l’unité politique d’un État souverain et indépendant."
"2. In the exercise of the rights enunciated in the present Declaration, human rights and fundamental freedoms of all shall be respected. The exercise of the rights set forth in this Declaration shall be subject only to such limitations as are determined by law and in accordance with international human rights obligations. Any such limitations shall be non-discriminatory and strictly necessary solely for the purpose of securing due recognition and respect for the rights and freedoms of others and for meeting the just and most compelling requirements of a democratic society."
"2."" Dans l’exercice des droits énoncés dans la présente Déclaration, les droits de l’homme et les libertés fondamentales de tous sont respectés. L’exercice des droits énoncés dans la présente Déclaration est soumis uniquement aux restrictions prévues par la loi et conformes aux obligations internationales relatives aux droits de l’homme. Toute restriction de cette nature sera non discriminatoire et strictement nécessaire à seule fin d’assurer la reconnaissance et le respect des droits et libertés d’autrui et de satisfaire aux justes exigences qui s’imposent dans une société démocratique."
"3. The provisions set forth in this Declaration shall be interpreted in accordance with the principles of justice, democracy, respect for human rights, equality, non-discrimination, good governance and good faith."
"3."" Les dispositions énoncées dans la présente Déclaration seront interprétées conformément aux principes de justice, de démocratie, de respect des droits de l’homme, d’égalité, de non-discrimination, de bonne gouvernance et de bonne foi." [7] Article 29(2) relates to the storage or disposal of hazardous material in Indigenous peoples’ lands or territories. Article 32(2) relates to projects that affect such lands or territories and their other resources. Article 46 provides for a limitation on the exercise of rights granted under UNDRIP, provided the limitation satisfies the requirements of this article.
[8] The UNDA was enacted in 2021. The UNDA has 22 recitals and 7 sections. The 7 sections of the UNDA are as follows:"Short title"
"Titre abrégé"
"1 This Act may be cited as the ""United Nations Declaration on the Rights of Indigenous Peoples Act."
"1"" ""Loi sur la Déclaration des Nations Unies sur les droits des peuples autochtones."
"Interpretation"
"Définitions et interprétation"
"Definitions"
"Définitions"
"2 (1) The following definitions apply in this Act."
"2 (1)"" Les définitions qui suivent s’appliquent à la présente loi."
"Declaration means the United Nations Declaration on the Rights of Indigenous Peoples that was adopted by the General Assembly of the United Nations as General Assembly Resolution 61/295 on September 13, 2007 and that is set out in the schedule."
"Déclaration"" ""La Déclaration des Nations Unies sur les droits des peuples autochtones, adoptée par l’Assemblée générale des Nations Unies le 13 septembre 2007 par sa résolution 61/295, dont le texte figure à l’annexe."
"Indigenous peoples has the meaning assigned by the definition ""aboriginal peoples of Canada in subsection 35(2) of the ""Constitution Act, 1982."
"ministre"" Le ministre fédéral désigné, en vertu de l’article 3, pour l’application de telle disposition de la présente loi."
"Minister, for the purposes of any provision of this Act, means the federal minister designated as the Minister for the purposes of that provision under section 3."
"peuples autochtones"" S’entend au sens de ""peuples autochtones du Canada"", au paragraphe 35(2) de la ""Loi constitutionnelle de 1982""."
"(2) [Repealed, 2024, c. 30, s. 35]"
"(2)"" [Abrogé, 2024, ch. 30, art. 35]"
"Clarification"
"Précision"
"(3) Nothing in this Act is to be construed as delaying the application of the Declaration in Canadian law."
"(3)"" La présente loi n’a pas pour effet de retarder l’application de la Déclaration en droit canadien."
"Designation of Minister"
"Désignation du ministre"
"Order designating Minister"
"Décret"
"3 The Governor in Council may, by order, designate any federal minister to be the Minister for the purposes of any provision of this Act."
"3"" Le gouverneur en conseil peut, par décret, désigner tout ministre fédéral à titre de ministre chargé de l’application de telle disposition de la présente loi."
"Purposes of Act"
"Objet de la loi"
"Purposes"
"Objet"
"4 The purposes of this Act are to"
"4"" La présente loi a pour objet :"
"(a) affirm the Declaration as a universal international human rights instrument with application in Canadian law; and"
"a)"" de confirmer que la Déclaration constitue un instrument international universel en matière de droits de la personne qui trouve application en droit canadien;"
"(b) provide a framework for the Government of Canada’s implementation of the Declaration."
"b)"" d’encadrer la mise en œuvre de la Déclaration par le gouvernement du Canada."
"Measures for Consistency of Laws and Achieving the Objectives of the Declaration"
"Mesures visant la compatibilité des lois et l’atteinte des objectifs de la Déclaration"
"Consistency"
"Compatibilité"
"5 The Government of Canada must, in consultation and cooperation with Indigenous peoples, take all measures necessary to ensure that the laws of Canada are consistent with the Declaration."
"5"" Le gouvernement du Canada, en consultation et en collaboration avec les peuples autochtones, prend toutes les mesures nécessaires pour veiller à ce que les lois fédérales soient compatibles avec la Déclaration."
"Action plan"
"Plan d’action"
"6 (1) The Minister must, in consultation and cooperation with Indigenous peoples and with other federal ministers, prepare and implement an action plan to achieve the objectives of the Declaration."
"6 (1)"" Le ministre élabore et met en œuvre, en consultation et en collaboration avec les peuples autochtones et d’autres ministres fédéraux, un plan d’action afin d’atteindre les objectifs de la Déclaration."
"Content"
"Contenu"
"(2) The action plan must include"
"(2)"" Le plan d’action comporte notamment :"
"(a) measures to"
"a)"" des mesures visant, selon le cas :"
"(i) address injustices, combat prejudice and eliminate all forms of violence, racism and discrimination, including systemic racism and discrimination, against Indigenous peoples and Indigenous elders, youth, children, women, men, persons with disabilities and gender-diverse persons and two-spirit persons, and"
"(i)"" à lutter contre les injustices, à combattre les préjugés et à éliminer toute forme de violence, de racisme et de discrimination, notamment le racisme et la discrimination systémiques, auxquels se heurtent les peuples autochtones, ainsi que les aînés, les jeunes, les enfants, les femmes et les hommes autochtones, les Autochtones handicapés et les Autochtones de diverses identités de genre ou bispirituels,"
"(ii) promote mutual respect and understanding as well as good relations, including through human rights education; and"
"(ii)"" à promouvoir le respect et la compréhension mutuels et de bonnes relations, notamment grâce à de la formation sur les droits de la personne;"
"(b) measures related to monitoring, oversight, recourse or remedy or other accountability measures with respect to the implementation of the Declaration."
"b)"" des mesures de contrôle ou de surveillance, des voies de recours, des mesures de réparation ou d’autres mesures de reddition de comptes en lien avec la mise en œuvre de la Déclaration."
"Other elements"
"Autres éléments"
"(3) The action plan must also include measures related to monitoring the implementation of the plan and reviewing and amending the plan."
"(3)"" Le plan d’action comporte également des mesures concernant le suivi de sa mise en œuvre, son examen et sa modification."
"Time limit"
"Délai"
"(4) The preparation of the action plan must be completed as soon as practicable, but no later than two years after the day on which this section comes into force."
"(4)"" Il doit être élaboré dès que possible ou, au plus tard, dans les deux ans suivant la date d’entrée en vigueur du présent article."
"Tabling in Parliament"
"Dépôt au Parlement"
"(5) The Minister must cause the action plan to be tabled in each House of Parliament as soon as practicable after it has been prepared."
"(5)"" Dès que possible, le ministre fait déposer le plan d’action ainsi élaboré devant chaque chambre du Parlement."
"Action plan made public"
"Publication"
"(6) After the action plan is tabled, the Minister must make it public."
"(6)"" Après le dépôt, le ministre rend public le plan d’action."
"Report to Parliament"
"Rapport au Parlement"
"Annual report"
"Rapport annuel"
"7 (1) Within 90 days after the end of each fiscal year, the Minister must, in consultation and cooperation with Indigenous peoples, prepare a report for the previous fiscal year on the measures taken under section 5 and the preparation and implementation of the action plan referred to in section 6."
"7 (1)"" Dans les quatre-vingt-dix jours suivant la fin de chaque exercice, le ministre prépare, en consultation et en collaboration avec les peuples autochtones, un rapport sur l’exercice précédent faisant état des mesures prises en application de l’article 5, ainsi que de l’élaboration et de la mise en œuvre du plan d’action prévu à l’article 6."
"Tabling in Parliament"
"Dépôt au Parlement"
"(2) The Minister must cause the report to be tabled in each House of Parliament on any of the first 15 days on which that House is sitting after the report is completed."
"(2)"" Le ministre fait déposer le rapport devant chaque chambre du Parlement dans les quinze premiers jours de séance de celle-ci suivant la date de sa confection."
"Referral to committee"
"Comités saisis d’office"
"(3) The report stands permanently referred to the committee of each House of Parliament that is designated or established to review matters relating to Indigenous peoples."
"(3)"" Le comité de chaque chambre du Parlement désigné ou constitué pour étudier les questions relatives aux peuples autochtones est saisi d’office du rapport."
"Report made public"
"Publication"
"(4) After the report is tabled, the Minister must make it public."
"(4)"" Après le dépôt, le ministre rend public le rapport."
[9] Subsection 2(2) of the UNDA, which was repealed in 2024, had stated:
"(2) This Act is to be construed as upholding the rights of Indigenous peoples recognized and affirmed by section 35 of the ""Constitution Act, 1982, and not as abrogating or derogating from them."
"(2)"" La présente loi maintient les droits des peuples autochtones reconnus et confirmés par l’article 35 de la ""Loi constitutionnelle de 1982""; elle n’y porte pas atteinte." [10] When this subsection was repealed, the following section was added to the Interpretation Act, R.S.C. 1985, c. I-21, by S.C. 2024, c. 30:"8.3 (1) Every enactment is to be construed as upholding the Aboriginal and treaty rights of Indigenous peoples recognized and affirmed by section 35 of the ""Constitution Act, 1982, and not as abrogating or derogating from them."
"8.3 (1)"" Tout texte maintient les droits — ancestraux ou issus de traités — des peuples autochtones reconnus et confirmés par l’article 35 de la ""Loi constitutionnelle de 1982""; il n’y porte pas atteinte."
"(2) For the purposes of subsection (1), ""Indigenous peoples has the meaning assigned by the definition ""aboriginal peoples of Canada in subsection 35(2) of the ""Constitution Act, 1982."
"(2)"" Au paragraphe (1), ""peuples autochtones"" s’entend au sens de ""peuples autochtones du Canada"", au paragraphe 35(2) de la ""Loi constitutionnelle de 1982""." . CNL Ltd. v. Kebaowek First Nation et al.
In CNL Ltd. v. Kebaowek First Nation et al. (Fed CA, 2026) the Federal Court of Appeal allowed an appeal (from a JR), this over whether the Canadian Nuclear Safety Commission "erred in failing to consider the United Nations Declaration on the Rights of Indigenous Peoples (UNDRIP) and the free, prior and informed consent (FPIC) standard as stipulated therein in relation to the approval" of "the proposed near surface disposal facility (NSDF) on the Chalk River Laboratories site (the Site) that would be used to store low-level radioactive waste (LLW)".
Here the court holds that the JR SOR for the interpretation of UNDA is an exception to the reasonableness standard:[37] .... The interpretation of the UNDA is a general question of law of central importance to the legal system as a whole and, therefore, the standard of review is correctness (Canada (Minister of Citizenship and Immigration) v. Vavilov, 2019 SCC 65, at paragraphs 17, 53 and 59).
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