A Place of Their Own.

In the mid-1970s, Ottawa began to give more responsibility to Northern Native communities, passing on the administration of programs. Now, with a new territory, the people of Nunavut are looking toward a future with more control over their own destiny

Roy Boychuk, Editor of Canadian Geographic, says Nunavut is an ambitious act of self-definition. The Inuit will decide for themselves what is to become of their culture.

Now, as of 1 April 1999, Nunavut residents will be in charge of education, health, social services, language, culture, housing, justice, and other areas of their lives.

When the new government of Nunavut settles down to business in Iqaluit, it will face some enormous problems. The poverty, unemployment, and illiteracy in the region are well documented (see article on page 12).

Many observers focus on these dismal social conditions. John Amagoalik, Chair of the Nunavut Implementation Commission (NIC), prefers a more positive approach. He says it's these symptoms of social collapse that are the very reasons we are creating Nunavut. Called John A. by many (as was Sir John A. Macdonald, Canada's first Prime Minister), Mr. Amagoalik is seen as the founding father of Nunavut, having fought for its creation for two decades. NIC was formed primarily to advise the federal government on how Nunavut's government should be designed. In 1995, NIC released a comprehensive set of recommendations in its report Footprints in New Snowy, and later, Footprints 2. It included such innovative ideas as setting up a decentralized-government with managers working out of hamlets across the vast new territory.

To those who question the cost to the nation of maintaining Nunavut and trying to improve its prospects Mr. Amagoalik says he has ... never seen any complaints in the past ... about the billions of dollars that have gone to white colonial governments in the north. But once that money starts going to the people, all kinds of whining erupts.

We are the original citizens of the country. This nation has grown to be the envy of the world because of the resources of our homeland. Canada is our country and it is our money and we will not allow anyone to make us feel guilty about taking our rightful share of it.

Mr. Amagoalik is a strong voice calling for Inuit to take charge of their own lives. Like many of his people, he has firsthand experience of what it is to be controlled by outside forces. He and his family were among those who were shipped from northern Quebec in 1953 to Resolute and the Grise Fiord region of the High Arctic.

For years, Ottawa claimed that the move was for the good of the Inuit, but it's now well known that establishing Canadian sovereignty was the principle motivation.

I used to think that it would change for the better, said Mr. Amagoalik. But it never did, at least not enough to make a difference.

Those that ran the government in the North were faceless people who never really had a stake in making things work.

Another leading light in the territory is Jack Anawak, newly elected member of the legislature for Rankin Inlet North. Mr. Anawak acted as interim commissioner of Nunavut, responsible for hiring the civil service. He says the new government will be more accessible than the former NWT administration in Yellowknife, which was so distant it was hard to reach. But, he cautions that people shouldn't be disappointed if the whole system doesn't change overnight. Problems won't suddenly vanish, but he thinks people will be encouraged by the fact that the new government will be lead by Inuit themselves.

Jose Kusugak is another well-known Inuit leader in Canada's North. As president of Nunavut Tunngavic Inc., which administers the $1.1 billion fund payable to Nunavut by Ottawa, he has his work cut out for him. Many see the fund, if used wisely, as their ticket to self-sufficiency. It's a cash reserve that will help improve the region's economy, boost the number of Inuit-owned businesses and provide new jobs.

Tagak Curley has also played a major role in trying to improve the lot of Inuit. He helped set up the Inuit Tapirisat of Canada in 1971, an organization which now represents the interests of 41,000 northern Inuit across Canada. He describes himself as a radical who has spent years fighting for Inuit rights.

Skeptics continue to express their doubts that Nunavut leaders will be able to design a government that is much different from other governments. They still question the wisdom of pouring money into what they see as a losing proposition. No one is denying that the new leaders of Nunavut are facing a major challenge, given the high expectations, and the enormous social and economic problems. Clearly, it's a long-term plan.

While some think the creation of Nunavut will open up economic opportunities, others fear it will make everyone poorer. Many are concerned that Nunavut's government will become just another bureaucracy that will further loosen Inuit close ties to the land. It's true that the territory will be very much a government-driven place. It's estimated that as many as 20% of its 27,219 people will be employed in one level of government or another.

Given that, the Nunavut government itself is expected to help ease the region's unemployment. It will gradually develop over three to four years starting with about 150 to 225 new headquarters public servants by 1 April 1999. It will continue to depend on the Government of the Northwest Territories (GNWT) to deliver programs and services it cannot immediately provide itself. As it increases its staff and programs, the GNWT's role will diminish. The 700 new positions will be in addition to the 2,000 regional, community, and facility positions that exist today in the Nunavut region of the NWT, and the almost 1,000 municipal jobs indirectly funded by the GNWT.

Knowing that high expectations can lead to disappointment, Northern leaders continually remind their people to be realistic. To those who expect too much too soon of the new government, Goo Arlooktoo, former member of the NWT legislature for South Baffin Island, cautions that it will take time to have representative levels of Inuit in the government. Neither will living conditions change instantly. Yes, many of the current building projects have created jobs but they are temporary, and he says private-sector jobs will continue to be scarce. In isolated communities where a loaf of bread can cost $3, the cost of living will remain high. Welfare still will support one-third of the territory's residents, and its unemployment rate will still be 22%.

But, as a 1999 Globe and Mail editorial pointed out, there is a glimmer of hope amidst all the doubts. Proposing that Nunavut call a national conference on development - private and public - in the area, the newspaper suggested some possibilities: One can imagine some future economic struts. The words diamond mines come to mind. The editorial continues to suggest that on an increasingly crowded planet, lonely and exotic spots call out to tourists. With such a small population, even a hundred extra tourists a day could make a real difference to Nunavut's economy. Perhaps the territory's growing Internet connections will allow people to participate in the larger economy from afar ... (perhaps it's) the moment for the territory to think larger economic thoughts. What is there to lose?

The date 1 April 1999 has no magic, but 23 years after Nunavut was first proposed as a new Territory, Native leaders are optimistic. Fifty years ago they lived off the land as their ancestors had for thousands of years. Just surviving in this harsh, inhospitable climate is a major achievement in itself. Now, they are entering a new world dependent on a modern telecommunications network.

Northern politicians are looking forward to having more control. In December 1998, they and northern business leaders met with their southern counterparts in Edmonton, Alberta, for a two-day conference to promote investment in the North. There were about 700 delegates from the Northwest Territories, Yukon, British Columbia, Alberta, Saskatchewan, and Manitoba. As NWT Finance Minister John Todd put it: I'm trying to demonstrate to southern Canada that economic activity in the Northwest Territories has a huge fiscal impact on them, not just us. He and Stephen Kakfwi, Minister of Resources, Wildlife and Economic Development for NWT, both said the North could become more independent from federal transfer payments with further development of its resources - oil and gas reserves, diamond deposits, and forests.

They also stressed that Ottawa needs to give up its control over the North's natural resources and the profits they bring. Decisions about the North must be made in the North, something that will only happen when Ottawa finally delivers on its promise of devolution, Mr. Todd said.

Leaders are advising Inuit not to fear the changes ahead. They remind them that many who were born in tents and taught to hunt seal and arctic char are now using computers and travelling the world. They remind them that the secret to survival is adaptation.

SUGGESTED ACTIVITIES:

1. Skeptics say it's a total waste of money to divide the Arctic into two territories. Others say it mill work out well in time. Organize a debate with one side critical of the idea of creating the new Nunavut government, the other arguing for it as the only way to improve the lives of the Inuit.

2. Open a clipping file on Nunavut. The news media can be expected to look in on the new territory from time to time, particularly on anniversaries of its creation, to check on progress. You can also make your own periodic checks through the Internet. Review the clipping file every few months and try to reach class consensus on whether or not progress is being made.

FACT FILE

Fifteen of the 19 members of the newly elected Nunavut legislature are Aboriginals.

Nunavut will be divided into three regions - Baffin, Keewatin, and Kitikmeot.

The first election was held in Nunavut 15 February 1999, with the first sitting of the legislative assembly in early April 1999.

RELATED ARTICLE: HOW IS A TERRITORY DIFFERENT FROM A PROVINCE?

While the Nunavut government will have powers and responsibilities similar to those of the provinces, there are a few differences. Crown land, for example, is owned by the provinces "in the Crown in right of the province." In the territories, Crown lands are held by the federal government "in the Crown in right of Canada."

Another difference is that, in a territory, the federal Parliament may have a say in provincial-type affairs, such as school curriculum, or the organization of municipalities. Also, territorial governments are not included in the constitutional amending formula. The Constitution can be changed only by agreement among Ottawa and the provinces; the territories have no rights in such matters. But Nunavut will be represented by its own federal member of Parliament and will have its own senator.

RELATED ARTICLE: THE NUTS AND BOLTS OF NUNAVUT'S GOVERNMENT

A 19-member elected legislative assembly, including a cabinet, and a single-level territorial court will be the primary institutions. Based on the Aboriginal tradition of group decision-making, the legislative assembly operates consensus-style without political parties, just as recent NWT legislatures have. All members are independents.

Government departments and agencies will be established throughout the territory to ensure access to services and jobs.

The new territory has its own flag and its own coat of arms to distinguish it as a government and territory in its own right.

Initially, the Nunavut government will be similar to that of the existing government in the Northwest Territories (GNWT). Existing GNWT legislation will stay in effect until the Nunavut legislative assembly amends it.

Inuktitut is an official language of the government along with English and French. A federally appointed commissioner for Nunavut will have powers and responsibilities similar to those of the current commissioner of the NWT and the lieutenant-governors of the provinces. There are two levels of government in Nunavut - territorial and municipal.

Iqaluit is Nunavut's capital and seat of government. With a population of 4,500 it is Nunavut's largest community. For the most part, the territorial government works in the legislative assembly, and hamlet councils handle municipal affairs.

The running of the legislative assembly is overseen by a speaker elected by all members of the assembly (MLAs) in a secret ballot. The MLAs also elect a premier to head the government, as well as the executive (cabinet).

About 700 new headquarters jobs will be needed to run the new government. But, in such a vast territory, decentralized government is a must and Nunavut leaders plan gradually to pass greater responsibility to municipal governments. With this in mind, the new headquarters responsibilities will be in Iqaluit along with 10 other communities -- Igloolik, Rankin Inlet, Cambridge Bay, Cape Dorset, Arviat, Gjoa Haven, Kugluktuk, Pangnirtung, Baker Lake, and Pond Inlet. Iqaluit takes care of Executive and Intergovernmental Affairs, Finance and Administration, Personnel, Justice, and the legislative assembly, plus segments of other departments. Remaining functions, along with various boards, commissions, corporations, and agencies, will be based in the other 10 communities.

By decentralizing the government, Nunavut leaders hope to include the three regions - Baffin, Kitikmeot, and Keewatin -in territorial decision-making and extend new employment opportunities to as many communities as possible. Given this Native philosophy of sharing, while Iqaluit is the capital, it will transfer its regional government positions to Igloolik.

RELATED ARTICLE: FLEXIBILITY A MUST FOR WORKERS AND EMPLOYERS

The new civil servants in Nunavut are part of a unique workforce. Many of them are entering careers late in life and with relatively little formal education. And, until recently, many of them have lived off the land and are not used to a regular 40-hour week. Many will be adapting to jobs not just as civil servants, but also as teachers, social workers, and nurses. And, while workers will have to adjust to regular work schedules, employers also will have to adapt to flexible work periods to allow employees to leave their communities to hunt or fish.

RELATED ARTICLE: SPIRIT OF INDEPENDENCE

Igloolik was the only community that voted against local television broadcasting in the 1970s until northerners started to produce their own programming.

The people at Igloolik also plan on having Inuktitut taught up to grade four. It is the community where the Nunavut Social Development Council, which promotes Inuit social and cultural programs, will have its headquarters.

Websites

Government of Nunavut - http://npc.nunavut.ca/eng/ nunavut/govern.html

Office of the Interim Commissioner of Nunavut - http://www.icon.gov.nu.ca