The Social and Economic Aspects of Relocation

From the outset, it was apparent that social, cultural and economic reconstruction issues were as critical to the relocation of the Mushuau Innu as the physical construction of the community. MIRA gave express recognition to this in article 3.6, which, although dealing with the rating of construction tenders, made some general statements about the "planning, design and construction of the project." This was to be carried out in a manner that respected the culture of the Mushuau Innu; was fully integrated with other healing measures of the Mushuau Innu, including those sponsored by the Innu Nation; and was coordinated with the efforts of Innu and non-Innu agencies and individuals to establish an adequate and sustainable economic base for the Mushuau Innu.

The foundation of the Innu approach to the social, cultural and economic aspects of relocation is contained in the report titled Gathering Voices: Finding Strength to Help Our Children, published in June 1992 and based on a comprehensive community inquiry in April of that year. The Innu have prepared many other reports. In addition to the December 1995 social reconstruction plan, the Innu submitted in 1995 a seven-point plan for recovery and healing, entitled Hearing the Voices, a follow-up to the earlier Gathering Voices report. In November 1998, the Innu submitted an eight-point plan for healing. In January 1999, the Mushuau Innu Healing Strategy was filed.

The Auditor General questioned the adequacy of the Government’s response. The October 2000 Report noted the following.

[W]e found little evidence that the Department had adequately assessed the December 1995 Innu social reconstruction plan to determine its potential contribution to an effective remedy. Nor did the Department have an overall action plan to specifically address the reported issues, despite its requirement that the Innu conduct and report such studies to it. The Department indicated in August 2000 that a plan for remediating the health and social ills will be developed in concert with other federal and provincial departments. The delay in developing a plan is particularly disturbing since the issues have been well known to the Department for many years. We believe that a significant risk remains that the pathologies afflicting the Innu community will simply be transferred to the new location at Little Sango Pond, despite spending some $113 million.⁴⁰

In response to the Auditor General’s Report, the Government undertook to develop "a new plan for remediating the health and social problems" in consultation with the Mushuau Innu and federal and provincial government departments. The Innu, however, were sceptical. They pointed out they had initiated comprehensive healing and recovery plans in consultation with federal, provincial and non-governmental experts at least four times in the past decade. "The plan already exists, we don’t need a new one," claimed the Innu. "What we need is federal action."⁴¹

In the past there have been divisions among the Mushuau Innu, as the community has struggled with the question of whether individuals who were abusing alcohol and other substances should be allowed to move to the new community or should be required to stay back in Davis Inlet. When it became clear that all members of the Mushuau Innu would be given the right to move to the new location, some groups who wished to establish a "dry community" considered staying behind and trying to build new homes on the old Davis Inlet site. Referenda were held, and eventually the tensions within the community were resolved. As of the summer of 2001, all of the Mushuau Innu were committed to relocating together and there appeared to be a positive feeling about relocation. Nevertheless, there remains a possibility that when the time for moving comes some Innu will want to stay.

Regardless of whether it is a full or partial move to the new site, the need for an appropriate social and economic plan is clearly apparent. Even on the most basic level, there will be a need to prepare the Innu for the transition to the modern housing development. Most of the Innu have no experience with running water and modern heating systems. They will need to learn how to run and maintain the new homes. From the Innu perspective nothing has been done in this area and they are doubtful if anything will be done in time for relocation. Federal officials say that plans are now in place to train the Innu before the move on matters such as house maintenance, plumbing and garbage disposal. Individuals have apparently been identified to provide elementary courses for Innu moving into new houses.

Beyond this is the question of running a new community with a hydro-electric plant, an airport, a wharf and roads to be maintained. There are few Innu qualified to carry out these tasks, yet after relocation the construction and maintenance crews currently operating on the site will disappear. Nothing has been done to resolve this problem. However, federal officials advise that Public Works and Government Services Canada is contracting a company to manage the community and to train the Innu to take over that role. Although the terms have yet to be worked out, it appears that Newfoundland Hydro will take over and run the generating plant.

As for economic development, there are some preliminary ideas about eco-tourism, hunting and fishing lodges, but no plans have been developed. The Innu consider that there has been little assistance from the Government. On the government side, it appears that this is an issue that has still to be addressed. There is some feeling that if the Voisey’s Bay project goes ahead there will be significant economic opportunities for the Mushuau Innu. Negotiations on this issue appear to be ongoing, but no information has been provided on what those opportunities might be.

In contrast, the opportunities for economic development appear greater for the Sheshatshiu Innu. Proximity to Goose Bay and North West River is undoubtedly a positive factor. Business ventures include providing catering services in Churchill Falls and on ferry services between Lewisport and the north coast, joint venturing with provincial airlines on the Mikun-Innu airline and holding a shrimping licence. Although some Mushuau Innu participate in these ventures, proximity provides advantages to Sheshatshiu.

The issue of economic development involves a further complicating factor. Some Innu feel that economic development will take away from traditional Innu culture, to the ultimate detriment of the Innu people and the Innu Nation.

As to evaluate whether the relocation to Natuashish will actually make a positive difference to the lives and future of the Innu, opinions vary. Some Innu point to the considerable material improvements over Davis Inlet. They note that there will be sewers, water in the homes and heating from sources other than wood stoves. They note that there is a lot of money being spent and a lot of work being expended on the relocation by both the Innu community and the Government. They concede that mistakes were made along the way and offer hope that all parties had learned from those mistakes. Some described the relocation as "the last chance."

The delay in relocation has posed an undue burden and hardship on the Mushuau Innu, who continue to live under seriously deteriorating conditions in substandard dwellings in Davis Inlet. With the move looming on the horizon, there has been little interest in maintaining the Davis Inlet buildings or funding to do so. This all helps to make already substandard conditions even worse, something that has been a particular source of frustration to the Mushuau Innu Chief Simeon Tshakapesh. Moreover, the delays have had a more particular and personal impact. As Cajetan Rich, Director General for the Innu for the relocation project, has said, "Some of the people who were very active in trying to get the project going have now passed away. They never saw the project finished. They’re the ones who got hurt in the relocation. We built houses for them over there, but they didn’t get to benefit from it."⁴²

Federal officials also have varying opinions about the implications of the relocation. Some complain that the Innu have not done enough to move their own community forward and to prepare for the relocation. Some suggest that the Innu need to "take ownership" of the problems and solutions themselves, and stop "blaming the Government." The situation in Davis Inlet was described by some as "among the worst in Canada" in terms of its historical record, the health of the community, and its isolation, dysfunction and instability. They worry that no move could redress the depth of the problem, that the relocation might ultimately be designated a failure and that future governments will refuse to spend these kinds of exceptional funds on community relocation for other Aboriginal groups who may need similar assistance.

On the other hand, some are cautiously optimistic. There is a view that something is going to happen. There will be a new community, which is the first concrete thing that has happened for a long time for the people of Davis Inlet. There is the view that, despite potential problems, the Government is in for the long haul to work with the community to do what it can to make the relocation a success.

Notwithstanding the delays, complications and difficulties, there is now no doubt that relocation will occur even though the exact date for relocation remains uncertain.
  

CONCLUSION 6 The Government is in the process of implementing its commitment to the relocation of the Mushuau Innu to the site chosen by them as proposed in the fourth recommendation in the 1993 Report.

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