CITIZEN PARTICIPATION programmes like Yukon 2000 have involved more people thinking more intently about their futures than any other programmes. But the involvement of minorities has, in most cases, been limited. In the case of Yukon 2000, it should be noted that more than 25 per cent of the territorial population consists of aboriginal Indian nations.
Yukon 2000 was initiated, structured, and operated by the Yukon Territorial Government. The information and organization used in the process arose entirely from non-Indian thought and a non-Indian synthesis of reality. Under those circumstances, it is extremely difficult to achieve an appropriate degree of Indian participation.
The government managers of the Yukon 2000 process were genuine in their desire for the fullest possible participation by Yukon Indians. The problem is that such a process needs to be developed, from the beginning, by Indians and non-Indians working together. It should then be operated by both groups æ a joint process. If the two groups cannot plan and operate the process in concert, then separate, parallel processes should be undertaken. A full discussion of the various techniques that might be used to make it easier for people to talk across cultural and class boundaries is needed.
There is another problem. Even if full Indian participation were to be obtained under optimum conditions, there may be difficulties with the way decisions are made and implemented. Ensuring adequate Yukon Indian input into decision-making processes is an important matter, which cannot be fully covered here.
The Council for Yukon Indians (CYI) recognized these difficulties from the beginning but decided to participate in the hope of raising the level of knowledge and understanding of the Indian position. Yukon 2000 provided an opportunity to reach non-Indians, particularly government bureaucrats and representatives of various industry sectors. The decision to participate was made despite CYI's very limited resources. Just reading the many hundreds of thousands of words in the background papers was a time-consuming tæk, but one considered necessary because of CYI's concern for the way of life of a whole people. In contrast, many of the non-Indian participants were able to limit their attention to one industry sector or one issue of concern to the people they represented.
Indian Involvement
CYI involvement began with the Faro workshop in the spring of 1986 and continued through all the sectoral workshops, steering committee meetings, and focus groups, as well as the Whitehorse conference in November 1986 and the Dawson conference in October 1987. In addition, a paper commenting on the government's interim report, The Things That Matter, was prepared by the Economic Development Department of the Council for Yukon Indians in November 1987.
At the beginning of the process, in the Faro workshop, CYI representatives made the point that there was not one economy in the Yukon, but two-the so-called "dominant", or non-Indian, economy and the Indian economy. Explaining this situation was an uphill battle, because the Indian economy is poorly understood. The necessary language (including statistics) does not exist to explain clearly to non-Indian representatives how the Indian economy operates and how it is connected to the dominant economy. There were those who felt any discussion of a distinct Yukon Indian economy to be simply an exercise in nostalgia rather than a reflection of today's reality. This kind of thinking says to Yukon Indians, "Face the facts. Be reasonable, do everything our way, and you'll be okay." A clear understanding of the Indian economy among the population at large, and decision makers in particular, may not come for some time yet. Participation by Indians in initiatives like Yukon 2000 will help, but it is a very slow process. Too often people are anchored in their own view of reality. Getting through is a difficult art.
Distinct Economy
In the introduction to their comments on The Things That Matter, CYI stated: "There is no doubt that through 'Yukon 2000' an attempt has been made to put Indian social and economic realities into some sort of perspective. As a result, several major conclusions were drawn during the 'Yukon 2000' debate. Their implications, however, with regard to Indians, have failed to permeate, with consistency, the entire spectrum of economic issues investigated."
Throughout the process, CYI representatives were concerned about the description of the Indian economy. It was described æ "a part" of the non-Indian economy rather than as a distinct economy intertwined with the non-Indian economy in special ways.
Two very important points were made by CYI representatives in the final stages of the Yukon 2000 process, particularly at the Dawson conference in October 1987 and in written comments on The Things That Matter in November:
• A range of participative processes for the assessment and review of specific matters such as proposed resource development projects and certain policies that have cumulative impacts "should continue and Yukon Indians should continue to be key participants".
• A Yukon 2000 implementation and evaluation plan is required. CYI has proposed a one-year implementation phase. Progress toward implementation could be evaluated at a conference of the various actors in December 1988 and every year after that. Responsibility for evaluating results and organizing these annual conferences might be given to an organization such as the Yukon Economic Development Council or some other independent body.
A Yukon 2000 process that continued in the way suggested above might lead to a more coherent, better understood, and more widely supported approach to northern development. Of course the process would have to be broadened to include, not only economic matters, but environmental, social, cultural, and political matters æ well. Already, the Yukon 2000 process has provided us with a glimmer of hope for the future of the Yukon. If we can see emerging out of the Yukon development strategy some broad objectives designed to lead the Yukon toward its desired future, we may be able to decide on the starting date for another intensive process similar to the one just completed. This new process would be designed to go beyond the limits of the Yukon development strategy, to produce a comprehensive set of goals for the entire Yukon polity. With the joint sponsorship and participation of the federal government, the result might eventually lead to a comprehensive, coherent northern policy framework and a strategic plan for northern development.
Such a dialogue would, of course, include the full participation of Yukon Indians. It would be in addition to, not in place of, any of the other ways by which we communicate in our complex society. This includes our political and legal processes, and a wide range of assessment and review processes, including specific development projects, regional development generally,participatory planning projects, land-use planning systems, and others.
Full Participation
In the past, the "system" that includes this great complex of roles and institutions has not worked well for Indians. As a consequence, there is not a high degree of trust among Indians concerning its operation.
If Yukon 2000 is to evolve into a process that can produce a credible statement about the desired future for the Yukon, then Yukon Indians must be involved, from the outset, in designing and operating the process. This will, of course, include the production of background information- for example, in-depth study of the Indian economy-to be used in the ongoing process.
Everything going on now (aboriginal rights and land claims negotiations, development of land-use planning systems,development of a conservation strategy, a new look at Indians and the education system, and many other discussions and negotiations concerning a wide range of matters) seems to indicate that a climate of increasing confidence and trust is developing, and that a comprehensive dialogue on the future of the Yukon is a viable idea. There are clear reasons why Yukon Indians should be distrustful of any such process, but they seem willing, nevertheless, to participate and to aim for the highest level of communication. Although there are some pitfalls, Yukoners seem ready and able to think together about their future so that they may avoid some of the difficulties that have hampered communication in other parts of the world. This should allow Yukoners not only to describe, but also to achieve, their desired future.
Close