Project profile
Building indigenous community partnerships in Canada
Canada’s Eastmain-1-A/Sarcelle/Rupert development (ESMR) strengthened collaboration with Indigenous communities, writes Sandie Poliquin, Senior Environmental Advisor at Hydro-Québec in this hydropower project profile.
The Hydro-Québec development, located in the province of Québec, is a prime example of how to incorporate environmental constraints and social concerns into project design, construction and operation.
The Hydro-Québec development, located in the province of Québec, is a prime example of how to incorporate environmental constraints and social concerns into project design, construction and operation.
Overview
Constructed between 2007 and 2013, the development is situated in a vast Indigenous territory called Eeyou Istchee, known locally as ‘the People’s Land’.
The territory is governed by the James Bay and Northern Québec Agreement, an Aboriginal land claim settlement agreed in 1975
By focusing on the participation of Cree communities – one of Canada’s First Nation indigenous groups – Hydro-Québec ensured their expectations and concerns were taken into account very early in the development process.
To facilitate project acceptability, a partnership was established to provide essential support for Cree stakeholders to be involved every step of the way during all phases of the project. Structures and practices were adapted, or new ones put in place to encourage meaningful implication of Cree stakeholders and quickly resolve issues when they emerged.
Photo credit: Hydro-Québec
The territory is governed by the James Bay and Northern Québec Agreement, an Aboriginal land claim settlement agreed in 1975
By focusing on the participation of Cree communities – one of Canada’s First Nation indigenous groups – Hydro-Québec ensured their expectations and concerns were taken into account very early in the development process.
To facilitate project acceptability, a partnership was established to provide essential support for Cree stakeholders to be involved every step of the way during all phases of the project. Structures and practices were adapted, or new ones put in place to encourage meaningful implication of Cree stakeholders and quickly resolve issues when they emerged.
Photo credit: Hydro-Québec
Planning and consultation
Before the planning and construction phases, important steps paved the way to allow a new positive relationship with the Crees of the Eeyou Istchee based on reconciliation, respect, and partnership.
Prior to triggering the Environmental Impact Assessment (EIA) process, discussions and consultations were carried out with local and regional Cree entities, including Cree land users whose families’ hunting territories were in the project area. Local coordinators were hired to facilitate the dissemination and translation of information into the Cree language. These capacity-building efforts improved trust between the parties who had had a long and difficult history together.
In 2002, the Crees give their consent (FPIC) to the project by referendum (70 per cent in favour). Following this formal approval, an Impact and Benefit Agreement (IBA), the Boumhounan Agreement, was signed between the Cree communities and Hydro-Québec.
Photo credit: Hydro-Québec
Prior to triggering the Environmental Impact Assessment (EIA) process, discussions and consultations were carried out with local and regional Cree entities, including Cree land users whose families’ hunting territories were in the project area. Local coordinators were hired to facilitate the dissemination and translation of information into the Cree language. These capacity-building efforts improved trust between the parties who had had a long and difficult history together.
In 2002, the Crees give their consent (FPIC) to the project by referendum (70 per cent in favour). Following this formal approval, an Impact and Benefit Agreement (IBA), the Boumhounan Agreement, was signed between the Cree communities and Hydro-Québec.
Photo credit: Hydro-Québec
The agreement
The agreement and others that followed in connection with the EMSR project put a framework in place that allowed all involved parties to begin to redefine the future of their partnership and solidify mutually beneficial social and economic benefit sharing arrangements. Most importantly, it signaled a new era in relations between the communities and Hydro-Québec built on a solid foundation of local acceptance. Only then could Eastmain-1-A/Sarcelle/Rupert become the ‘new generation’ project it turned out to be.The project was announced in 2002, and the EIA report was tabled in 2004, followed by a wide public consultation.
The project was authorised in consultation with the Crees by both provincial and federal governments by 2007 and the last unit was commissioned in 2013. Two important events also took place during this time: the signing of the Paix des Braves (2002) by both the Québec Government and the Crees as well as the Agreement Concerning a New Relationship between Hydro-Québec / SEBJ and the Crees of Eeyou Istchee (2004).
Photo credit: Hydro-Québec
The project was authorised in consultation with the Crees by both provincial and federal governments by 2007 and the last unit was commissioned in 2013. Two important events also took place during this time: the signing of the Paix des Braves (2002) by both the Québec Government and the Crees as well as the Agreement Concerning a New Relationship between Hydro-Québec / SEBJ and the Crees of Eeyou Istchee (2004).
Photo credit: Hydro-Québec
A new Standard
Read the consultation paper on the development of a global sustainability standard for hydropower.
If adopted, the Hydropower Sustainability Standard would apply a rating, or label, to projects of any size or stage of development.
If adopted, the Hydropower Sustainability Standard would apply a rating, or label, to projects of any size or stage of development.
Achieving sustainability through community partnerships
To enhance the project’s sustainability, emphasis was placed on continued partnerships with affected Cree communities. Multiple mechanisms and tools were also developed to promote open and informed two-way discussions on different issues, going beyond one-way information dissemination. For example, in 2007, a monitoring committee comprised of Cree and Hydro-Québec representatives was put into place not only to discuss the environmental monitoring and mitigation measures but also to serve as a forum where all issues could be discussed.
Cree representatives of affected communities were key partners in overseeing all aspects of the project, fieldwork protocols, timeframes, environmental studies and results, mitigation measures, integrated traditional knowledge, on-site hiring of Cree workers and much more. This level of involvement made the environmental approach more community based and adaptive, therefore more sustainable. This led to further optimisation of the project and strengthened the buy-in by Cree land users, thereby increasing trust between Hydro-Québec and the impacted communities.
Enhancing environmental performance
To better evaluate potential impacts and adapt mitigation measures, the environmental assessment approach addressed three different distinct areas of this large project: the increased flow section, the creation of both the forebay and the tailbay, and the reduced flow section of the Rupert River. Although data collecting and studies covered all these areas, this approach allowed Hydro-Québec to adapt timeframes to the different construction phases as well as to address and mitigate more adequately potential environmental and social issues. Environmental studies, field protocols and both mitigation and enhancement measures benefited from traditional knowledge which added value to the outcome.
A comprehensive environmental programme, spanning from 2007-2023, was put into operation in partnership with the Crees to enhance understanding of the long-term environmental and social impacts as well as to assess the efficiency of mitigation measures. Multiple follow-up studies have been conducted on both biophysical and human components including, but not limited to: riparian vegetation, riverbank stability, tributaries and fish access, fish populations and their habitats, bird migration and reproduction, mammals, special status species, human health determinants, land use, ice cover, navigation and economic spin-offs. All the field work for this environmental programme has been conducted with the involvement of local Cree land users.
As an example of effective adapted mitigation measures, eight weirs were built on the reduced flow stretch of the Rupert River to substantially maintain water levels upstream, prevent bank erosion, and preserve riparian habitats and their use by Cree hunters and fishermen. Fish passes were included in weirs where fish passage was possible before the project. Fish spawning sites were added and monitored along with the existing spawning sites.
In addition, an ecological instream flow regime was put into place to mimic natural seasonal conditions: water flow is increased for the spring freshet, slightly decreased in the summer, increased again for the fall run-off, and then reduced in the winter. Follow-up studies were undertaken to validate the ecological instream flow regime for fish habitat and to assess post-project conditions. In addition, for the long term, a Cree-Hydro-Québec committee, presided over by a third independent party, was set up to oversee the ecological instream flow regime and adapt to yearly conditions and communication needs.
Maintaining continuous Cree traditional land use
An important goal of the EMSR approach was to maintain resources and help local Cree communities adapt to the project-generated changes and continue their traditional activities which are deeply rooted in Cree identity, such as hunting, fishing and trapping. Goose hunting ponds, fishing sites, boat ramps, as well as all-terrain vehicle and snowmobile trails, were amongst the measures designed and put into operation with Cree land users. A specific agreement, the Agreement Concerning the Re-appropriation of Territory Affected by the Eastmain-1-A/Sarcelle/Rupert project,was signed to support additional adaptive measures when and if needed to maintain Cree land use.
Post-project community consultations
One of the many unique aspects of the project is that it was subject to a public consultation and independent review after construction had mostly finished. COMEX, the third-party review board responsible for reviewing development projects in the James Bay territory, held a public consultation in the six communities affected by the project to evaluate the effectiveness of all mitigation measures.
In its final report COMEX concluded that: “Without denying the project’s significant impacts on the territory and its inhabitants, COMEX believes that the proponent took the necessary measures to mitigate the project’s impacts to an acceptable level. In addition, the concept of re-appropriating the territory, which was central to project planning and authorisation, made it possible to preserve a valuable environment for land users"
A hydropower project’s impacts on a community are intimately linked with its social acceptability. Trust forms the foundation of strong relations but building this trust takes time. The EMSR project provides a compelling example of what can be achieved when there is a commitment, at the outset, to work together collaboratively.
Read the report on the public consultations held in November 2012 on Hydro-Québec’s Eastmain-1-A and Sarcelle Powerhouses and Rupert Diversion Project, December 2013
Further information:
Partnering with communities to share information in different languages - dedicated website including videos, maps, and documents about the project: Hydlo and friends
Joint article published in the journal Éthique Publique: Rebuilding Relations: Hydro-Québec and the Cree Nation (1994-2015) (English translation)
Link to specific environmental studies (English short version included in all environmental reports in French): Specialised documentation
