Section 6: Action Plan Implementation progress
Overall, work has begun on 170 of the 181 APMs. Of these, 28 are in the planning stage, for 99, work to implement the measure is underway, 6 are complete, and 37 are being implemented on an ongoing basis.
- Not started (6): Work on the APM has not been initiated.
- Planning (28): Phase for creating management and execution plans, defining boundaries and timelines, and identifying milestones like budget submissions and partner meetings.
- Underway (99): Active project stage where the team produces deliverables for partners and management by executing tasks, coordinating efforts, ensuring quality, managing resources, and providing updates.
- Complete (6): APM has been fully implemented.
- Implementation ongoing (37): APM has been completed but is evergreen in nature or requires review or funding every few years.
- On hold (2): An APM that had been active, but is no longer being actively worked (for example, an APM that was started but requires additional funding or policy authorities to continue).
- Not applicable (NA) (3): No status updates were provided for this Action Plan measure.
More detailed information on each of the individual Action Plan Measures can be found in Annex B.
Legislated priorities
Awareness and training
Indigenous partners emphasize the importance of co-developed comprehensive and culturally relevant education and training on the UN Declaration Act and UN Declaration. Such training should address the history, rights, and title of Indigenous peoples, systemic racism and respectful relations, as well as guidance on how to ensure the consistency of laws. Additionally, there is a strong call for training programs to reflect the unique cultural contexts and knowledge systems of Indigenous communities, ensuring that these initiatives are genuine and meaningful. And while cultural competency training is seen as a positive step, it must address racism experienced by Indigenous peoples in healthcare, policing, education, and other service areas.
Partners highlighted the need for ongoing funding to support the development and delivery of these programs. Indigenous youth were identified as key partners whose voices should shape educational content and training programs to ensure relevance and impact.
A recurring theme is the need to improve both the general public and Indigenous communities’ understandings of the UN Declaration, UN Declaration Act, the Action Plan and the related implementation measures. Awareness and education are essential for bridging knowledge gaps and empowering communities with a clear understanding of their rights and the practical implications of the law. This includes creating accessible, culturally relevant materials that resonate with lived experiences rather than complex legal terminology.
Indigenous partners recommend incorporating storytelling, land-based gatherings, interactive media, and infographics including in Indigenous languages. Such approaches aim to mobilize community awareness, ensuring that both Indigenous and non-Indigenous audiences are well-informed and actively engaged in the transformative process of enacting and upholding Indigenous rights. This includes the development of accessible materials that effectively communicate the goals and measures of the Action Plan to a broader audience. An update on the government’s efforts to advance education on the UN Declaration and the UN Declaration Act can be found in Annex B.
Shared Priorities Measures 14 and 18 commit the Government of Canada to developing and implementing foundational training co-created by Indigenous subject matter experts for the federal public service and the public respectively.
Shared Priorities Measures 14 and 18
Lead departments: Justice Canada and various departments
Status: Underway
Key activities:
Justice Canada led initial relationship-building with 35 Indigenous partners this past year to lay the groundwork for consultation and cooperation on co-development of training tools for Indigenous learning to support SP14 and development of educational materials on Indigenous human rights and the UN Declaration Act for SP18. Justice Canada organized and moderated a panel on SP14 for a UN Declaration Act Implementation Workshop, and co-chairs a UN Declaration Act Training Group with the Canada School of Public Service (CSPS). The CSPS launched a variety of learning products on the UN Declaration and the Act, including a Learning Portal that houses many resources, links and videos in one area. The government has been collaborating with Indigenous partners and subject matter experts to develop and implement training on a bilateral basis.
“Continue to provide communities with materials and resources to learn further information and spread awareness about [the UN Declaration] and UNDA. These can be through live podcasts, live webinars, and other mechanisms of information sharing and knowledge exchange.”
Mushkegowuk
Action Plan Advisory Committee
Indigenous partners expressed a strong interest in seeing the Action Plan Advisory Committee (APAC) serve as a space for meaningful engagement of experts on UN Declaration-related topics of greatest priority to Indigenous peoples and the Minister of Justice, rather than a top-down process. Many Indigenous partners indicated that the APAC should reflect a broad diversity of Indigenous voices, including First Nations, Inuit, Métis and urban Indigenous communities, and ensure that marginalized groups such as women, Elders, youth, and Two-Spirit individuals are actively included in decision-making processes. Some Indigenous partners have noted that an APAC should have been established sooner.
Shared Priorities Measure 22
Lead departments: Justice Canada
Status: Underway
Key activities:
In July 2024, Justice Canada invited First Nations rights-holders (including through their rights-based and consultation bodies), Inuit Tapiriit Kanatami (ITK) on behalf of the four Inuit organizations, all Métis governments and Modern Treaty and Self-Governing partners to submit nominees to the Action Plan Advisory Committee. In response, roughly 30 nominations were received. In February 2025, the Minister of Justice was pleased to announce the selection of ten members with deep expertise on the UN Declaration and who reflect a diversity of First Nations, Inuit and Métis perspectives: Tim Argetsinger, Hélène Boivin, Cassidy Caron, Adam Fiddler, Victoria B. Fred, Lydia Hwitsum, Brandon Macleod, Brennan Manoakeesick, Naiomi Metallic and Nibi Mshkiki (Skylar Louttit). We look forward to the Committee’s advisory work getting underway in 2025-2026, starting with the development of its Terms of Reference.
Lands, territories and resources
Indigenous communities indicated that they often experience frustration with government processes that can hinder their ability to fully exercise and enjoy their inherent rights, including the right to own, use, develop and control lands and resources within their territories. Some submissions suggested that meaningful consultation and cooperation, including co-development, on related policy issues would contribute to genuine partnerships, help address historic injustices and potentially reduce conflict and tension between Indigenous communities and governments. Others noted a perceived lack of coordination between federal and provincial governments when consulting on projects and the impact this has on the ability of Indigenous communities to navigate rights-related processes.
Indigenous partners continue to stress the importance of government taking concrete steps to ensure that rights related to land are recognized and respected. This includes developing policies, in consultation and cooperation with Indigenous peoples, that facilitate the resolution of land claims and ensure Indigenous voices are central in discussions regarding land use and management.
“We hold responsibilities for and make decisions on behalf of our communities and the next seven generations. Deliberations in our communities must consider many voices and can include the need for ceremony. We must observe our cultural protocols and the seasons of harvesting and caring for the lands and waters. While we do our best to work collaboratively with proponents and other governments, our process cannot be disregarded simply to meet their needs, including the timelines and deadlines dictated by those needs.”
Alderville First Nation and Curve Lake First Nation
Natural resources and major projects
Some Indigenous partners raised significant concerns about the lack of meaningful consultation and cooperation (including co-development) to date in the implementation of the APMs related to lands, territories, and resources. They emphasize the need for Indigenous-led processes, rather than merely involving Indigenous communities as participants in consultations.
“Rights-holding First Nations and Indigenous communities must be central to the ongoing monitoring of major projects, including roles in environmental surveillance, data collection, and adaptive management in their territories. Establishing Indigenous-led monitoring bodies, with access to real-time project data, is crucial to uphold the principles of the UNDA.”
Alderville First Nation and Curve Lake First Nation
Indigenous partners identified a number of challenges that can limit meaningful participation, including insufficient funding, capacity constraints, and jurisdictional complexities. To address these issues, partners recommend establishing federal-provincial-territorial-Indigenous tripartite agreements that prioritize Indigenous perspectives in policy development and implementation. They also call for adequate funding to support community engagement and capacity-building initiatives, as well as the creation of dispute resolution mechanisms for collaborative problem-solving.
Innu Takuaikan Uashat Mak Mani-Utenam encourages the government to align actions with commitments and call for the development of accountability mechanisms for unfulfilled commitments. One Indigenous women’s organization expressed concerns of exclusion from consultations related to resource development projects resulting in an absence of strategies to explicitly ensure women’s safety.
Free, prior and informed consent
References to “free, prior and informed consent” (FPIC) are found throughout the UN Declaration. They emphasize the importance of recognizing and upholding the rights of Indigenous peoples and ensuring that there is effective and meaningful participation of Indigenous peoples in decisions that affect them, their communities and territories.
More specifically, FPIC describes processes that are “free” from manipulation or coercion, “informed” by adequate, transparent, and timely information, and occur sufficiently “prior” to a decision so that Indigenous rights and interests can be incorporated or addressed effectively as part of the decision-making process, all meaningfully aiming to secure the consent of affected Indigenous peoples.
Submissions from Indigenous partners stress FPIC must empower Indigenous communities to have genuine decision-making authority, including the authority to reject projects that infringe on their rights without facing coercion or undue pressure.
Submissions further state that for any decision affecting Indigenous lands, cultures, or resources to be legitimate, the principle of FPIC must be deeply embedded in every stage of the duty to consult process. Indigenous partners have said that embedding FPIC in the duty to consult requires not just procedural formalities, but enforceable measures that prioritize Indigenous decision-making and ensure that government actions reflect a respectful and equitable engagement with Indigenous communities.
Shared Priorities Measures 32, 33, and 34 are centered on improving Indigenous peoples’ safety, participation and economic inclusion in natural resource development. SP12 focuses on federal efforts, in consultation and cooperation with Indigenous peoples and in collaboration with industry and government partners, to advance safe and secure resource development for Indigenous women, girls, and Two-Spirit individuals affected by, or participating in, natural resource projects. Indigenous women’s organizations have expressed a need to be involved in co-development of strategies that increase Indigenous women’s safety. SP32 calls for developing “guidance on engaging with Indigenous peoples” to obtain their free, prior and informed consent on natural resource projects. SP33 is intended to support the “economic participation of Indigenous peoples and their communities in natural resource development,” including through the Indigenous Loan Guarantee Program. SP34 will “enhance the participation of Indigenous peoples” in decision-making, including measures to enable them to exercise federal regulatory authorities in matters currently regulated by the Canada Energy Regulator (CER).
Shared Priorities Measures 12, 32, 33, and 34
Lead departments: Natural Resources Canada (NRCan), Canada Energy Regulator (CER) and various departments
Status: Planning
Key activities:
Natural Resources Canada (NRCan) leveraged existing networks to engage and advance collaborative work with Indigenous partners on SP12, which included supporting the establishment of a new Indigenous Circle on MMIWG2S+ and Resource Development with the Indigenous Advisory and Monitoring Committee for the Trans Mountain Expansion and Existing Pipeline.
On SP32, NRCan received policy authorities in 2024 and began working with internal and external partners to align objectives and activities and explore existing practices and perceived gaps with respect to the development of “guidance on engaging with Indigenous peoples.”
On SP33, the Canada Indigenous Loan Guarantee Corporation, a subsidiary of the Canada Development Investment Corporation (CDEV), launched the Indigenous Loan Guarantee Program (ILGP) on December 16, 2024. The program will provide up to $10 billion in loan guarantees to support Indigenous equity ownership in the transportation, infrastructure, trade, natural resource and energy sectors. NRCan is providing capacity support to Indigenous groups applying to the ILGP for projects in the energy and natural resource sectors.
To advance SP34, NRCan and the CER began collaborating on Phase 2 of the Indigenous Ministerial Arrangements Regulations National Engagement Strategy and the CER undertook extensive engagement with Indigenous peoples through its Onshore Pipeline Regulations and Filing Manuals review.
Parks
The implementation of APMs for national parks, marine conservation areas, historic sites and urban parks highlights the importance of collaboration between the federal government and its partners to incorporate Indigenous rights and perspectives into management practices. Partners note the value of co-management frameworks that recognize Indigenous governance systems and support the inclusion of Indigenous knowledge in the stewardship of natural and cultural resources. A number of partners noted ongoing challenges, such as administrative delays, limited funding, lack of clarity of roles, and the effect this can have on the level of Indigenous participation. Establishing clear processes and ensuring adequate resources may help support more effective partnerships and contribute to conservation and management efforts.
Shared Priorities Measures 35, 95 to 97, 110
Lead departments: Parks Canada (PC)
Status: Underway
Key activities:
Parks Canada (PC) co-developed an Indigenous Stewardship Policy with the Indigenous Stewardship Circle, a diverse group of Indigenous leaders providing guidance to Parks Canada on the implementation of the UN Declaration. Draft models for how PC may support the establishment of Indigenous Protected and Conserved Areas (IPCAs) were developed internally during the past year and Indigenous consultation and cooperation on these models began in March 2025. Parks Canada is continuing work towards enabling broadened approaches to shared governance with Indigenous partners. Funding to advance shared priorities with Indigenous partners continues to be a challenge. Government support will be necessary to advance legislative and regulatory elements of APMs.
Fisheries and conservation of marine ecosystems
Issues in the fisheries sector are described by Indigenous peoples as reflective of broader regulatory challenges. Indigenous partners highlight that their communities often find themselves navigating frameworks that can limit their traditional fishing practices and management rights, with some of these limitations rooted in the legacy of colonial policies. They also raise concerns about the absence of comprehensive and coordinated funding and regulatory frameworks that recognize customary practices and traditional laws.
Many First Nations expressed a need to revitalize their fisheries and highlight the lack of adequate funding and resources as a barrier to that goal. According to these partners, aligning the Fisheries Act with the UN Declaration is crucial for integrating Indigenous voices into decision-making processes. Transparency and collaboration between Indigenous communities and federal authorities was identified as essential for building trust and for protecting the rights and interests of Indigenous fishers adequately. It is vital to address these challenges through meaningful consultation and cooperation and adequate support in order to realize the potential of Indigenous fisheries and promote sustainable practices. An update on APMs related to fisheries can be found in Annex B, with a snapshot of progress by Fisheries and Oceans Canada noted below.
Shared Priorities Measures 36 to 44; Indigenous Modern Treaty Partners Priorities Measure Measure 13; and Inuit Priorities Measure (IN) 22
Lead departments: Fisheries and Oceans Canada (DFO)
Status: Planning (SP44, MT13); Underway (SP36 to 40, SP42, SP43, IN22); Implementation ongoing (SP41)
Key activities:
Fisheries and Oceans Canada (DFO) continues to collaborate with Indigenous partners to review existing communal commercial licensing policies, guidelines, and regulations in Eastern Canada as well as to review the 1999 Pacific Salmon Allocation Policy. Early engagement and collaborative planning discussions were held with Indigenous partners to support a multi-year review of the 1993 Policy for the Management of Aboriginal Fishing.
In Nunavut, DFO is co-developing modernized fishery regulations with Inuit and other Indigenous rights-holders, as well as territorial government partners. A Policy Intentions Paper was co-developed with these partners to frame future regulations and guide consultations. These consultations began in January 2025 and will continue throughout the year. A key next step is co-development of the regulations themselves, which feedback from these consultations will further inform, along with the policy intentions paper, and a broad analysis among partners of current statutes that regulate relevant fisheries.
Collaborative programming and capacity development highlights include the delivery of more than $60 million in ongoing contributions through DFO’s Indigenous Collaborative Programs to support Indigenous-led fisheries and habitat management, monitoring and stewardship initiatives. In Atlantic Canada and Quebec, DFO announced $259.4 million over three years to support the acquisition of commercial fisheries access to further implement the right to fish in pursuit of a moderate livelihood, as well as discussions at fisheries negotiation tables, with the aim of reaching long-term collaborative fisheries management agreements. Additionally, two major Indigenous-led conservation initiatives have been developed using the Project Finance for Permanence (PFP) model, the Great Bear Sea PFP Agreement (June 2024), for which implementation has commenced, and the SINAA Agreement (February 2025). Through the signing of the Trilateral Salmon Accord (June 2024), DFO is advancing collaborative conservation and restoration of wild salmon between DFO, First Nations and the Government of British Columbia.
In addition, to inform better decision-making for sustainable fisheries, DFO established a $5 million Indigenous Fishery Monitoring Fund in 2024-2025 to support Indigenous groups in sharing leading practices, fishery monitoring data, and Indigenous Knowledge. DFO also launched the collaboratively developed Bridging Indigenous and Science-Based Knowledge (BIAS-K) web portal, a learning tool which highlights over 250 projects and case studies that include multiple ways of knowing.
Environment
There has been notable progress in advancing Indigenous leadership and participation in climate action and environmental stewardship. Through collaborative efforts, Indigenous governments and organizations have put forward a series of region-specific climate recommendations, reflecting the unique and strategic approaches required to address climate challenges across the country’s diverse landscape. Ongoing negotiations to establish Indigenous governance over protected areas further illustrate a growing commitment to recognizing and strengthening Indigenous roles in managing and protecting the environment. Indigenous partners continue to express the importance of FPIC being embedded in every stage of consultation.
“Indigenous Knowledge must not be treated as an "add-on" or as anecdotal input; it must be respected as an essential knowledge system, equal in value to Western science and grounded in a more holistic understanding of impact and responsibility. It must inform decision-making.”
Alderville First Nation and Curve Lake First Nation
Shared Priorities Measures 46 and 47
Lead departments: Environment and Climate Change Canada (ECCC) and Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC)
Status: On hold (SP46); Underway (SP47)
Key activities:
This fiscal year saw the conclusion of the Indigenous Climate Leadership Agenda's co-development process. With support from the Indigenous Climate Leadership Agenda, First Nations, Inuit and Métis partners led self-determined approaches to consultation and cooperation, including over 100 Indigenous-led engagement sessions with their communities. This engagement process culminated in the submission of a series of region-specific climate recommendations from First Nations, Inuit and Métis governments and organizations. A contribution agreement was signed in July 2024 between Environment and Climate Change Canada (ECCC) and the First Nations National Guardians Network and provides funding for 80 First Nations Guardians initiatives until March 2026. ECCC continues to engage with First Nations, Inuit and Métis partners to focus on distinctions-based priorities on their respective Guardians initiatives.
Additionally, negotiations advanced for four Protected Areas Framework Agreements, with Indigenous-led governance structures established, and final agreements approved for the Great Bear Sea, Northwest Territories, and Sinaa. ECCC also co-developed the distinctions-based Indigenous Nature Tables with First Nations, Métis and Inuit partners to discuss shared priorities on nature. Finally, the Indigenous Partnerships Initiative supported 115 species at risk conservation projects with First Nations, Inuit and Métis partners.
Cross-cutting priorities and civil and political rights
Indigenous Justice
Shared Priorities Measure 28
Lead departments: Justice Canada and various departments
Status: Underway
Key activities:
The overrepresentation of Indigenous people in the criminal justice system is a serious and complex issue rooted in systemic racism and the legacy of colonialism.
In consultation and cooperation with Indigenous peoples, Justice Canada led the development of an Indigenous Justice Strategy (IJS) that was released publicly in March 2025. The IJS includes distinction-based chapters for First Nations, Inuit and Métis that identify specific strategies and actions to address systemic discrimination and the overrepresentation of Indigenous people in the criminal justice system and to support the revitalization of Indigenous laws and legal orders. Given their key role and jurisdiction in relation to the administration of justice in Canada, this work was also done in collaboration with provinces and territories.
Based in holistic, trauma-informed understandings of justice, the IJS aims to implement progressive and transformative reforms throughout the justice system to meaningfully address systemic discrimination and the overrepresentation of First Nations, Inuit, and Métis in contact with the Canadian justice system. The IJS recognizes that Indigenous understandings of justice are notably rooted in healing, wellness, respect and community.
The IJS seeks to contribute to the implementation of the UN Declaration and is a vehicle to advance First Nations, Inuit and Métis self-determination and the revitalization of First Nations, Inuit and Métis laws and legal systems.
Border mobility
Indigenous peoples have long expressed concerns about the impact of international borders on their ability to maintain and develop contacts, relations and cooperation, including activities for spiritual, cultural, political, economic and social purposes, with their own members as well as other peoples across borders. The concerns regarding cross-border mobility between Canada and the United States have been exacerbated by increased public and political scrutiny on the border. Indigenous peoples have noted a shift in their experience at Ports of Entry (border crossings), including inconsistent levels of scrutiny and views on appropriate documentation. Indigenous peoples have long expressed frustration with the wide discretion of border services officers, which in some cases has created hesitation or uncertainty around travel. This has had an impact on their ability to engage in cultural practices, maintain family connections, and participate in community ceremonies.
On a parallel track to UN Declaration Act implementation, IRCC, the CBSA and Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC) have committed limited funds to support administration and coordination costs for the Jay Treaty Border Alliance Collaborative Initiative (JTBA-CI) as this contributes to the pursuit of legislative and policy measures outlined in Shared Priorities Measure 52. IRCC, the CBSA and CIRNAC have engaged in discussions, through the JTBA-CI technical tables and other fora, on improving border crossing experiences for Indigenous peoples.
Participation in decision-making
“True cooperation and co-development would include: Involving our leadership and grassroots members from the start of policy design and decision-making.”
Interlake Reserves Tribal Council
Participation in decision-making is a key component of the UN Declaration. During consultation and cooperation to develop the Action Plan, Indigenous partners were clear that the Action Plan must include measures related to the right to participate in decision-making, highlighting the need for early involvement in policy design, and the ability to actively shape initiatives. Measures included in the Action Plan provide a road map of work to be undertaken in consultation and cooperation with Indigenous peoples to enhance the participation of Indigenous peoples in decision-making. Some Indigenous partners continue to advocate for grassroot involvement in policy design, and Indigenous women’s organizations and organizations representing urban Indigenous people continue to reiterate the importance of their inclusion. Calls for accountability mechanisms also continue.
Shared Priorities Measures 66 to 70
Lead departments: Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC), Justice Canada (JUS) and various departments
Status: Planning (SP66); Underway (SP67, SP68); Implementation ongoing (SP69, SP70)
Key activities:
Justice Canada (JUS) created a working group to ensure interdepartmental coordination in order to advance the development of an implementation plan for SP66 with Indigenous partners.
Concrete measures co-developed under the permanent bilateral mechanism process continued to be advanced (SP67). Co-development principles have been developed with First Nations, Inuit and Métis. These are at different stages of finalization. In addition, a Cabinet Directive to support the implementation of the Inuit Nunangat Policy was co-developed with Inuit partners and approved by Cabinet in December 2024.
To advance SP68, Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC) leads the co-development of consultation protocols and resource centres with Indigenous partners through the Federal Initiative on Consultation. This work has supported the co-development of 13 consultation protocols and the establishment of five resource centres since it was created in 2008. In addition, this past fiscal year, approximately 35 profiles in the Aboriginal and Treaty Rights Information System had information co-validated or co-developed with Indigenous communities in support of Indigenous consultation.
CIRNAC also provided funding to the Native Women's Association of Canada, Pauktuutit Inuit Women of Canada, and Les Femmes Michif Otipemisiwak to support implementation of SP69. In addition, over $7.3 million in funding supported 33 projects for Indigenous women’s and 2S+ organizations in line with SP70.
Economic, health and social rights
Health
Partners shared that resources for Indigenous health programs related to Action Plan implementation remain limited and expressed that mainstream healthcare is failing to meet the needs of Indigenous women across Canada. Health systems need to take actions to ensure Indigenous peoples receive prompt, safe, culturally appropriate, trauma-informed, and gender-based services across the continuum of care where they reside. They highlighted the importance of Indigenous leadership in the implementation process.
Some of the major challenges identified by partners are:
- ongoing systemic racism and discrimination in health services
- a need for sustainable funding models
- inclusive engagement that incorporates diverse perspectives
- mechanisms for monitoring and accountability to ensure that health services are culturally relevant and effective
Shared Priorities Measures 6 to 8, 71, and 89
Lead departments: Indigenous Services Canada (ISC); Health Canada (HC); and the Public Health Agency of Canada (PHAC)
Status: Underway
Key activities:
In October 2024, the Minister of Indigenous Services received the authority to pursue separate First Nations, Inuit and Métis health-related policy and legislative options, and adjust co-development approaches to enhance transparency and collaboration. Discussions are ongoing with partners to strategize on next steps. (SP6)
Health Canada (HC), through the Addressing Anti-Indigenous Racism and Discrimination in Canada’s Health Systems (ARD) program, funded several initiatives, such as updated Cultural Humility and Cultural Safety Standards for Nursing Education by the Canadian Association of Schools of Nursing, as well as an Indigenous Health and Wellness, Advocacy, and Allyship course developed by Athabasca University. Funding for Health Canada’s ARD program sunsetted in Fiscal Year 2023-2024. Indigenous Services Canada (ISC)’s funding was renewed through Budget 2024 to continue fostering health systems free from racism and discrimination. In 2024-2025, this initiative supported the continued implementation of Indigenous-led projects aimed at improving fair and equitable access to quality and culturally safe health services for Indigenous patients, including the hiring of Indigenous health systems navigators, Indigenous patient advocates, and Indigenous midwives and doulas (SP7).
Comprised within the Public Health Network, the Council of Chief Medical Officers of Health (CCMOH) updated its terms of reference to include representation from First Nations, Inuit and Métis. In January 2025, trilateral meetings were held between Canada, the government of Alberta and leadership from Treaties 6, 7, and 8, the Métis Settlements General Council, and the Otipemisiwak Métis Government to discuss Indigenous health priorities, where former Minister of Health Holland and Minister LaGrange (Alberta) agreed to ongoing trilateral meetings to support Indigenous participation and collaboration towards improved access to culturally safe health services. In March 2025, technicians from Indigenous partners, Alberta's Ministry of Health, ISC, and HC met to discuss next steps and agreed to schedule monthly technicians meetings leading up to an in-person Ministers and Indigenous leaders’ meeting in Fall 2025. Additionally, HC and ISC also met with Assembly of First Nations and Inuit Tapiriit Kanatami leadership, with provinces and territories participation, specifically by the Ministers of Health from Manitoba, Northwest Territories, and Nunavut. Also, over the past year, ISC officials have worked closely with First Nations, Inuit and Métis communities and their organizations on the implementation of the Indigenous Health Equity Fund, which provides flexible funding to support Indigenous-led approaches to quality and culturally safe health services (SP8).
Urban programming
We often hear from partners representing urban Indigenous peoples that a majority of Indigenous people live off-reserve in urban settings where they face a complex web of jurisdictional overlap in accessing services. In these contexts, Friendship centres and Indigenous women’s organizations play an important role in the delivery of culturally relevant programs and services.
While there continues to be support for the development of an Urban Indigenous Strategy, Indigenous partners emphasize that Shared Priorities Measure 84 needs a distinct consultation process, outside of Urban Programming for Indigenous Peoples (UPIP), to be fully addressed. Furthermore, partners stressed that the federal government should coordinate with provinces to meet the needs urban Indigenous peoples.
Shared Priorities Measures 84 and 90
Lead departments: Indigenous Services Canada (ISC) and Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC)
Status: Underway (SP84); Not Started (SP90)
Key activities:
For SP84, the Urban Programming for Indigenous Peoples (UPIP) worked with Indigenous partners to advance an Indigenous-led and co-developed UPIP Performance Measurement Framework.
For SP90, engagement to develop options to address policy, program, and socio-economic gaps has not begun.
Housing
Indigenous partners expressed ongoing concerns regarding the current approach to developing and implementing housing-related APMs, highlighting the lack of meaningful consultation and cooperation and the need for housing policies that recognize Indigenous rights, responsibilities, and cultural contexts. They stress the importance of co-developing culturally safe, community-led housing solutions that shift from federal models to long-term Nation-determined housing authorities. Limited funding, capacity challenges, and fragmented implementation across departments continue to hinder progress. To overcome these barriers, partners recommend collaborative, co-developed frameworks, long-term stable funding, and the inclusion of clear targets and accountability mechanisms to ensure transparency and meaningful outcomes in housing-related initiatives. Partners also spoke to the need for infrastructure development to consider future climate risks and local employment opportunities.
Shared Priorities Measure 88, First Nations Priorities Measures 11 and 15
Lead departments: Canada Mortgage and Housing Corporation (CMHC) and Indigenous Services Canada (ISC)
Status: Implementation ongoing (SP88, FN15); Not Started (FN11)
Key activities:
In March 2024, Canada Mortgage and Housing Corporation (CMHC, Indigenous Services Canada (ISC) and Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC) developed the Urban, Rural and Northern Indigenous Housing Strategy. This includes the future creation of a National Indigenous Housing Centre (National Centre) and separate funding directly to distinctions-based groups. It is intended that the National Centre will disburse the majority of funds to Indigenous housing and service providers. ISC and CIRNAC are delivering funds in distinctions-based funding to First Nations, Inuit and Métis partners and Modern Treaty and Self Governing First Nations partners.
As an interim measure to address FN11, CMHC has prioritized and invested in preliminary research, led by the Assembly of First Nations, to explore options for transferring CMHC’s on-reserve housing programs and funding to First Nations. Key research initiatives identified barriers and options for transfer, emphasizing the need for First Nations-led governance and sustainable funding.
In support of FN15, between January and December 31, 2024, ISC invested $279.8 million in housing projects on-reserve. During the same period, First Nations completed work on 716 new homes, significantly enhancing housing infrastructure in their communities. ISC supports First Nations partners in developing solutions from the ground up to advance the shared goal of transferring the responsibility for housing and community infrastructure programs to First Nations organizations. First Nations design service delivery models that meet the needs of rights-holders while recognizing and implementing their inherent right to self-determination.
Cultural and linguistic rights
Indigenous languages
The revitalization of Indigenous languages is a critical aspect of the broader efforts to implement the UN Declaration. Indigenous languages are not merely a means of communication: they are integral to the identity, culture, and traditions of Indigenous peoples. Many Indigenous organizations emphasize that language is a key component of self-determination and governance that must be prioritized in educational curricula and community programming to ensure that future generations can connect with their heritage.
Despite the recognition of the importance of Indigenous languages, Indigenous partners noted that there are significant challenges to their revitalization. Many Indigenous communities face systemic barriers, including a lack of funding, resources, and support from government institutions.
Shared Priorities Measures 91 to 93 and Inuit Priorities Measure 11
Lead departments: Canadian Heritage (PCH)
Status: Planning (SP91); Underway (SP92, SP93, and IN11)
Key activities:
Canadian Heritage (PCH) has begun working in consultation and cooperation with Indigenous partners on the design of options for an independent review of the Indigenous Languages Act. As well, PCH continues to work on advancing access to federal services in Indigenous languages. This has included the translation of key documents such as the Canadian Charter of Rights and Freedoms (now available in 11 Indigenous languages) and the Indigenous languages Act (available in four Indigenous languages). Through engagement with over 20 federal departments and agencies and in consultation and cooperation with Nunavut Tunngavik Incorporated, PCH is currently in the process of determining the capacity of the federal government to provide services in Inuktut in Nunavut and identify opportunities to further enhance services.
In addition, PCH continues to administer new distinctions-based funding models for Indigenous languages that were introduced in 2023-2024 that provide greater Indigenous autonomy, long-term funding and better responsiveness to First Nations, Inuit and Métis priorities.
Education, information and media
While Regional Education Agreements (REAs) aim to support First Nations control over their own education, some partners feel the current measures confuse true self-determined education with these agreements, which are often seen as administrative. Another concern is that comparing funding to provincial systems does not work well, since those systems do not address challenges associated with First Nations education funding models over many decades. Partners also note that there is a need for funding above provincial levels to support First Nations languages and cultures, which go beyond what provincial curriculums typically include. Another concern relates to the discrepancy between services on- and off-reserve where youth who study in provincially run school systems do not have access to their First Nations cultural and linguistic practices and risk facing assimilationist practices.
We also heard from an organization representing Indigenous Friendship Centres (IFC) that investment in urban Indigenous early childhood education through (IFC) can help advance linguistic and cultural revitalization among Indigenous peoples living in urban and off-reserve settings. Article 14.3 of the UN Declaration, requires States to, “take effective measures, in order for Indigenous individuals, particularly children, including those living outside their communities, to have access, when possible, to an education in their own culture and provided in their own language.” In Ontario, IFCs operate 7 of the 37 sites that deliver culturally rooted childcare. It is estimated that another 140 sites and 10,000 spaces are needed to fill the gap.
Education
Indigenous partners told us that implementation of the APMs related to education involves collaboration with ISC to align education programs with the principles outlined in the UN Declaration, emphasizing the importance of Indigenous control over their educational systems. Partners emphasize the necessity for educational systems that are culturally relevant and reflective of Indigenous perspectives, histories, and languages, and have advocated for curricula that honor their unique identities and experiences. They noted gaps in current educational frameworks, which often exclude Indigenous content, leading to a lack of understanding about Indigenous rights and histories.
By addressing these needs, the goal is to close the educational gap between Indigenous and non-Indigenous Canadians, ultimately fostering a more equitable and inclusive education system that respects Indigenous perspectives and cultural values.
Partners stress the importance of integrating Indigenous knowledge systems into educational programs and highlight the need for adequate funding and resources to support community-led initiatives. Furthermore, there is a call for increased collaboration between federal departments and Partners to ensure that educational policies align with self-determination and cultural relevance, addressing historical and systemic barriers that hinder the realization of their rights and aspirations in education.
“Kamada Elders believe education curricula needs to be revamped to include First Nations perspectives, accessibility to archives, ability for children, youth to explore lands location of sacred sites right across Canada, to allow children, youth, Elders to go and learn from other Indigenous groups across turtle island about sacred sites, ceremonial activities. Understanding who they are, where they came from, teaching the youth, children about the land allows teaching them of their roles and responsibilities as land caretakers. Going out to other parts of the island allows them to network, collaborate on why the climate crisis is important. Healing of the land is just as important as healing of the people.”
Kokums and Mochumas Against Drugs and Alcohol (KAMADA)
Shared Priorities Measures 102, 103, and First Nations Priorities Measure 19
Lead departments: Employment and Social Development Canada (ESDC) and Indigenous Services Canada (ISC)
Status: Underway
Key activities:
In 2024-2025, Indigenous Services Canada continued to implement three distinctions-based Post-Secondary Education Strategies, as well as the First Nations and Inuit Youth Employment Strategy (FNIYES). The distinctions-based post-secondary education strategies aim to help close the education attainment gap by increasing access to and supporting success in post-secondary education for eligible First Nations, Inuit and Métis Nation students. FNIYES supports employment and skills development opportunities for First Nations youth living on reserve and Inuit youth living outside of their land claim area (who are between the ages of 15 and 30), and is a component of the broader Youth Employment and Skills Strategy, led by ESDC.
Income Assistance's Case Management and Pre-Employment Supports bridge the gap for individuals aged 18 to 64 who are ready to pursue training opportunities and secure employment. Over the course of 2024-2025, Indigenous Services Canada (ISC) transferred $41.9 million to 91 First Nations recipients. Employment and Social Development Canada (ESDC) and ISC continue to support the implementation of the co-developed Indigenous Early Learning and Child Care (IELCC) Framework. This initiative enables greater influence and control by Indigenous people over IELCC programs and services; supports early learning and childcare priorities set by Indigenous communities; and strengthens foundational supports for IELCC. As well, the Education Partnerships Program (EPP) engaged with First Nations partners through formal consultations and community engagement sessions to improve education outcomes for First Nations students. Capacity building was facilitated through funding and resources for training and technical assistance.
Media
Shared Priorities Measures 105
Lead departments: Canadian Heritage (PCH)
Status: Complete
Key activities:
In March 2024, the Minister of Canadian Heritage announced permanent funding to support Indigenous-led storytelling through the Indigenous Screen Office (ISO). This funding includes $65 million over five years starting in 2024-2025 and $13 million per year ongoing. This ongoing funding fulfills the work for SP105 from the UN Declaration Act Action Plan by providing the ISO with a foundation to continue the critical work of growing the Indigenous screen-based production sector. The ISO has become a critical voice in the industry and is a model for the transformative power of Indigenous leadership that has inspired the screen sector and beyond.
ISO-supported projects have had wide-reaching impacts. For example, the new Canadian Broadcasting Corporation (CBC) series North of North, produced in association with Aboriginal Peoples Television Network and Netflix, premiered on Netflix in the Top 10 list, in 27 countries. The project was filmed in Nunavut’s first production studio, which was constructed with the help of a large capital investment by the ISO.
Implementation and redress
Redress for Residential Schools
Implicit in many of the submissions received from Indigenous peoples are the ongoing impacts of Canada’s colonial history, including the legacy of the Indian Residential School (IRS) system that had and continues to have a devastating effect on Indigenous cultures, communities and families. Continuing the work of addressing the impacts and uncovering truths about the children forced to attend these institutions is an important element in advancing truth and reconciliation among the Indigenous and non-Indigenous populations.
Shared Priorities Measures 107 and 108
Lead departments: Justice Canada (JUS) and Crown-Indigenous Relations and Northern Affairs Canada (CIRNAC)
Status: Planning (SP107); Underway (SP108)
Key activities:
The Independent Special Interlocutor for Missing Children and Unmarked Graves and Burial Sites associated with Indian Residential Schools (Special Interlocutor) shared her Final Report “Sites of Truth, Sites of Conscience” with Indigenous Survivors, families, leadership and federal Ministers in October 2024. Justice Canada’s support to the Special Interlocutor’s mandate concluded in late 2024. Implicated departments have undertaken initial work to review the Final Report’s recommendations in order to develop potential approaches for acting on them, which will require consultation and cooperation with Indigenous peoples.
The Indigenous-led Indian Residential Schools Document Advisory Committee (the Committee) was established in 2023 to make recommendations on minimizing barriers to sharing relevant Indian Residential School-related documents. Through the Committee, the perspectives of Indigenous partners were fully considered in discussions surrounding the identification, review, and recommendations related to sharing documents of historical significance. All meetings between federal and Indigenous non-government members of the Committee involved honest and open discussions, sharing of lived experiences by the IRS Survivors and family members, and recommendations for the definition of an IRS document. Finalized by the Committee in 2024, the recommendation encapsulated all the appropriate search terms to be used in identification of relevant documents. Regrettably, in Fall 2024, the Chairperson of the Committee announced that the Indigenous non-government members of the Committee were suspending their participation indefinitely due to a lack of forward funding for the project.
CIRNAC is leading ongoing work to identify, review, and collect relevant federal documents based on the Committee’s approved definition.
Dismantling the Indian Act
Action Plan Measure SP20.1 commits the Government of Canada to including in the UN Declaration Act annual report information on progress towards dismantling of the Indian Act. The Government of Canada continues to be committed to supporting First Nations-led processes to transition away from the Indian Act.
The Indigenous Services Canada (ISC) Annual Report to Parliament outlines measures that ISC is currently taking to achieve key objectives, including transferring control for departmental services to First Nations, Inuit, and Métis. This key objective is paramount for supporting the self-determination of First Nations, Inuit and Métis communities and partners. For a more comprehensive update on the work undertaken by ISC, please consult the aforementioned reports on the ISC Annual Reports page.
Indigenous data sovereignty
The importance of having access to data related to the members of Indigenous communities to monitor impacts of programs of their membership can allow communities to understand impacts related to education, interactions with the justice system, and water quality among others. An Indigenous women’s organization spoke to the need for a distinctions-based plus approach to data that extends beyond a three-stream framework (First Nations, Inuit and Métis) to one that reflects the lived realities of urban Indigenous people, especially women.
“Data sovereignty will create the governance capacity First Nations need to engage with other levels of government on an equal footing – in mutually beneficial ways – to help resolve common issues, better and faster.”
Union of Nova Scotia Mi’kmaq
Shared Priorities Measure 30
Lead departments: Indigenous Services Canada (ISC), Treasury Board of Canada Secretariat (TBS), Library and Archives Canda (LAC) and various departments
Status: Underway
Key activities:
The Treasury Board of Canada Secretariat (TBS), Indigenous Services Canada (ISC), and Library and Archives Canada (LAC) co-chair the Working Group on Indigenous Data Sovereignty. Its purpose is to foster a whole-of-government approach to, and federal governance support for, SP30. This group includes 10 federal institutions that meet monthly to coordinate on Indigenous data sovereignty issues and collaborate on engagements. Under the Transformational Approach to Indigenous Data, ISC supports the development of Indigenous-led data capacity in the form of distinctions-based statistical institutions. With ISC's support, the First Nations Information Governance Centre notably established a network of national and regional data champion teams. Inuit Tapiriit Kanatami and the signatories of the Canada-Métis Nation Accord made significant progress on their respective Data Strategies, which will be released in 2025-2026.
Department of Justice Canada
- Date modified: