Canada has experienced a series of intense wildfire seasons in recent years. In summer 2017, First Nations across the country endured an unprecedented number of wildfire emergencies, including numerous evacuations, which occurred primarily in Western Canada. Emergency events such as wildfires disproportionately affect First Nation communities because of their relative remoteness, isolation in fire-prone areas and limited access to emergency services. In addition, Members of Parliament who witnessed evacuation efforts saw discrepancies in the delivery of services between provinces and brought these to the attention of the House of Commons Standing Committee on Indigenous and Northern Affairs (the Committee). For these reasons, the Committee decided in the fall of 2017 to study the response to and long-term impacts of the summer’s wildfires in First Nation communities.

In addition, the committee took the opportunity to study fire safety on reserve. It has been well-documented that current conditions in many First Nation communities have led to unsafe living conditions where housing is prone to fire, disproportionate to non-Indigenous communities. The federal government has a fiduciary responsibility to First Nations. Canada should ensure that First Nations have access to resources, tools and training comparable to other communities of similar size and location. On reserve, through service agreements with the Department of Indigenous Services Canada, many provinces and territories assume responsibility for emergency response and recovery services such as evacuations. In some instances, where agreements are not in place, third party service providers such as the Canadian Red Cross provide these services (e.g. Manitoba). The role of the federal government, as it relates to emergency management on reserve is to provide reimbursement for eligible costs incurred to First Nations as well as to provincial, territorial and third party service organizations.

The federal government has policies and programs in place to assist First Nations. So far, this framework is falling short, as evidenced by the fact that First Nations people are 10.4 times more likely to lose their lives to structural fires than non-Indigenous Canadians. The Committee heard from the 47 witnesses who testified at its nine public hearings. They indicated that there are significant gaps in the current approach to emergency management and fire safety in First Nation communities. The Committee heard that roles and responsibilities for First Nation emergency management are ill-defined, that funding for preparedness activities is at best inadequate, that First Nations are excluded from coordination activities, and that their expertise and culture are not always taken into account when responding to emergency events and emergency planning. The Committee also found out that direct response to wildfires often comes too late, that evacuations are not well executed and that it can be challenging to clarify and implement roles due to various jurisdictions. This was evident when Members of Parliament heard of conditions in evacuation centres, particularly in Manitoba where conditions were reported to be less than adequate.

With regards to fire safety on reserve, the Committee heard that federal funding is based on formulas rather than on actual needs and that the risk of fire is increased by the lack of compliance with building and fire codes in First Nation communities. The Committee also heard that the federal government ceased collecting data related to on-reserve fire incidents, which has hampered efforts to tailor fire prevention programs to the needs of First Nation communities.

Nonetheless, the Committee was also made aware of promising initiatives such as Amber’s Fire Safety Campaign of the Nishnawbe Aski Nation and of the creation of an Indigenous Fire Marshal’s Office, on which the Aboriginal Firefighters Association of Canada is working. These are the types of initiatives that can help save lives in First Nation communities. They are also a testament to First Nations expertise and knowledge. The Committee fully supports these initiatives and recommends that the government provide the support necessary for them to be expanded and implemented, as well as to urge other First Nation communities and organizations to explore such pilot projects.

Together, provincial, territorial, and federal governments need to acknowledge First Nation communities as equal partners. The solutions to the problems identified in this report should come from First Nations themselves. The Committee hopes that the recommendations included in this report can open the door to broader discussions based on mutual respect and recognition.