An Act to provide for powers of First Nations respecting taxation, financial administration and the provision of services on reserve lands, to facilitate First Nations’ access to financing secured by local revenues or other revenues, to establish a First Nations Tax Commission, First Nations Financial Management Board, First Nations Finance Authority and First Nations Infrastructure Institute and to make consequential amendments to other Acts
Whereas the Government of Canada is committed to responding to, to the extent of its authority, Call to Action 44 in the Final Report of the Truth and Reconciliation Commission of Canada and implementing the United Nations Declaration on the Rights of Indigenous Peoples, including Articles 3 to 5, 20, 21 and 23 as they relate to the pursuit of economic growth in Indigenous communities and to economic reconciliation;
Whereas early contact Indigenous peoples had innovative economic and trade systems supported by public infrastructure, tax systems, sharing practices and the development of trading languages to enable commerce across linguistically diverse regions;
Whereas Indigenous languages have words for taxes and sharing, including the word “taksis” in the Chinook trading language;
Whereas the Government of Canada has adopted a policy recognizing the inherent right of self-government as an Aboriginal right and providing for the negotiation of self-government;
Whereas this Act is not intended to define the nature and scope of any right of self-government or to prejudge the outcome of any self-government negotiation;
Whereas First Nations governments led an initiative in 1988 to amend the Indian Act in order to recognize their jurisdiction over real property taxation;
Whereas First Nations leaders led an initiative that resulted in the development of legislation that would enable First Nations to better exercise their jurisdiction with respect to taxation, financial administration and the provision of services on reserve lands and to participate in pooled debenture borrowing;
Whereas economic development through the application of local revenues and other revenues to support borrowing on capital markets for the development of public infrastructure is available to other governments in Canada;
Whereas local revenue systems on reserves should recognize both the interests of on-reserve taxpayers and the rights of members of First Nations communities;
And whereas First Nations and the Government of Canada recognize the benefits of establishing Indigenous institutions as part of a comprehensive fiscal framework;
NOW, THEREFORE, Her Majesty, by and with the advice and consent of the Senate and House of Commons of Canada, enacts as follows:
Marginal note: Short title
1 This Act may be cited as the First Nations Fiscal Management Act .
Marginal note: Definitions
Marginal note: Aboriginal and treaty rights
3 For greater certainty, nothing in this Act shall be construed so as to abrogate or derogate from any existing Aboriginal or treaty rights of the Aboriginal peoples of Canada under section 35 of the Constitution Act, 1982 .
Marginal note: Financial administration laws
4 The council of a First Nation may not make a law under paragraph 5(1)(d) until the council has made a law respecting the financial administration of the First Nation under paragraph 9(1)(a) and that law has been approved by the First Nations Financial Management Board.
Marginal note: Local revenue laws
Marginal note: Notice of proposed laws
Marginal note: Further representations
7 When the council of a First Nation sends a law made under paragraph 5(1)(a), (a.1) or (c), other than a law referred to in subsection 10(1), to the First Nations Tax Commission for its approval, the council shall
Marginal note: Information accompanying property taxation law
Marginal note: Financial administration laws
Marginal note: Repeal of financial administration law
9.1 A borrowing member shall not repeal a financial administration law made under subsection 9(1) that has been approved by the First Nations Financial Management Board unless that law is replaced by another financial administration law that has been approved by the Board.
Marginal note: Law under paragraph 5(1)(a)
Marginal note: No repeal by borrowing members
Marginal note: Legal capacity of first nations
12 For greater certainty, for the purposes of Part 4, a borrowing member has the capacity to contract and to sue and be sued.
Marginal note: Local revenue account
Marginal note: Expenditure not authorized by law
13.1 Despite subsection 13(2), a First Nation is authorized to make an expenditure of local revenues other than under the authority of a law made under paragraph 5(1)(b) in one of the following circumstances:
Marginal note: Local revenues
Marginal note: Non-application of certain provisions
15 Paragraphs 83(1)(a) and (b) to (g) and section 84 of the Indian Act do not apply to a First Nation. In addition, any regulations made under paragraph 73(1)(m) of that Act do not apply to a First Nation in respect of the borrowing of money under a law made under paragraph 5(1)(d).
Marginal note: Definitions
16 The following definitions apply in this Part.
means the First Nations Tax Commission. ( Commission )
means a person paying taxes or fees under a law made under paragraph 5(1)(a) or (a.1). ( contribuable )
Marginal note: Commission
Marginal note: When agent of Her Majesty
Marginal note: Appointment of Chief Commissioner
Marginal note: Appointment of commissioners
Marginal note: Status
21 The Chief Commissioner shall hold office on a full-time basis, while the other commissioners shall hold office on a part-time basis.
Marginal note: Reappointment
22 A commissioner may be reappointed for a second or subsequent term of office.
Marginal note: Remuneration
Marginal note: Chief Commissioner — functions
24 The Chief Commissioner is the chief executive officer of the Commission and has supervision over, and direction of, the work and staff of the Commission.
Marginal note: Deputy Chief Commissioner — functions
25 In the event of the absence or incapacity of the Chief Commissioner, or if the office of Chief Commissioner is vacant, the Deputy Chief Commissioner shall assume the duties and functions of the Chief Commissioner.
Marginal note: Head office
Marginal note: Rules of procedure
27 The Commission may make any rules that it considers necessary for the conduct of, and the fixing of a quorum for, its meetings.
Marginal note: Staff
Marginal note: Mandate
29 The purposes of the Commission are to
Marginal note: Powers
30 In furtherance of the purposes set out in section 29, the Commission may enter into cooperative arrangements and shared-cost ventures with national and international organizations to consult on or sell products or services developed for First Nations who have made property taxation laws.
Marginal note: Local revenue law review
Marginal note: Restrictions
Marginal note: Review on request
the Commission shall conduct a review of the matter in accordance with the regulations.
Marginal note: First Nations Gazette
Marginal note: Standards
Marginal note: Functions and powers
Marginal note: Information sharing agreements
35.2 The Commission may enter into agreements with a First Nation, entity, including an entity referred to in subsection 50.1(1), or individual or any level of government concerning the sharing of information for research, analysis and publication purposes.
Marginal note: Regulations
37 In this Part, means the First Nations Financial Management Board.
Marginal note: Establishment
Marginal note: Not agent of Her Majesty
39 The Board is not an agent of Her Majesty.
Marginal note: Appointment of Chairperson
40 On the recommendation of the Minister, the Governor in Council shall appoint a Chairperson to hold office during good behaviour for a term not exceeding five years, subject to removal by the Governor in Council at any time for cause.
Marginal note: Appointment of additional directors
Marginal note: Election of Vice-Chairperson
Marginal note: Reappointment
43 Directors may be reappointed for a second or subsequent term of office.
Marginal note: Status
44 The Chairperson shall hold office on a full-time basis and the other directors shall hold office on a part-time basis.
Marginal note: Remuneration
Marginal note: Rules of procedure
46 The board of directors may make any rules that it considers necessary for the conduct of its meetings.
Marginal note: Head office
47 The head office of the Board shall be at a location determined by the Governor in Council.
Marginal note: Staff
Marginal note: Mandate
49 The purposes of the Board are to
Marginal note: Review of financial management system
Marginal note: Review and monitoring
Marginal note: Review of financial management system — non-scheduled entities
Marginal note: Review and monitoring
Marginal note: Required intervention
51 On receipt of a notice from the First Nations Tax Commission under paragraph 33(3)(b) or from the First Nations Finance Authority under subsection 86(4), the Board shall either require the First Nation to enter into a co-management arrangement in accordance with section 52 or assume third-party management of the First Nation’s local revenues in accordance with section 53, as the Board sees fit.
Marginal note: Imposed co-management
Marginal note: Third-party management
Marginal note: Required information
54 At the request of the Board, a First Nation that has made a local revenue law shall provide to the Board any information about the First Nation’s financial management system and financial performance that the Board requires for a decision regarding a co-management arrangement or third-party management of the First Nation’s local revenues.
Marginal note: Standards
Marginal note: Functions and powers
Marginal note: Information sharing agreements
55.2 The Board may enter into agreements with a First Nation, entity, including an entity referred to in subsection 50.1(1), or individual or any level of government concerning the sharing of information for research, analysis and publication purposes.
Marginal note: Regulations
56 The Governor in Council may, on the recommendation of the Minister made having regard to any representations by the Board, make regulations
Marginal note: Regulations
56.1 For the purpose of enabling an entity referred to in any of paragraphs 50.1(1)(a) to (e) to obtain the services of the Board, other than co-management and third-party management services, the Governor in Council may make any regulations that the Governor in Council considers necessary, including regulations
Marginal note: Definitions
57 The following definitions apply in this Part.
means the First Nations Finance Authority. ( Administration )
means a First Nation that has invested in a short-term investment pool managed by the Authority. ( membre investisseur )
[Repealed, 2023, c. 16, s. 34]
means a borrowing member or investing member. ( membre )
means moneys raised under laws made under paragraphs 5(1)(a) and (a.1) and payments made to a First Nation in lieu of a tax imposed by a law made under paragraph 5(1)(a). ( recettes fiscales foncières )
, in respect of a First Nation that is a member, means the chief or a councillor of the First Nation who is designated as a representative by a resolution of its council. ( représentant )
means a security of the Authority issued under paragraph 75(1)(b). ( titre )
[Repealed, 2023, c. 16, s. 34]
Marginal note: Establishment
58 There is hereby established a non-profit corporation without share capital, to be known as the First Nations Finance Authority.
Marginal note: Membership
59 The members of the Authority shall be its borrowing members and investing members.
Marginal note: Not agent of Her Majesty
Marginal note: Board of Directors
Marginal note: Function of Deputy Chairperson
62 In the event of the absence or incapacity of the Chairperson, or if the office of Chairperson is vacant, the Deputy Chairperson shall assume the duties and functions of the Chairperson.
Marginal note: Term of office
Marginal note: Quorum
64 Two thirds of the directors constitute a quorum at any meeting of the board of directors.
Marginal note: Majority vote
65 Decisions by the board of directors shall be made by a majority vote of the directors present.
Marginal note: Remuneration of directors
67 Directors shall be paid a fee for attendance at meetings of the board of directors, as fixed by the by-laws of the Authority.
Marginal note: Duty of care
Marginal note: President
Marginal note: Annual general meeting
70 The Authority shall hold an annual general meeting of representatives for the purpose of
Marginal note: By-laws
71 The board of directors may make by-laws
Marginal note: Head office
72 The head office of the Authority shall be on reserve lands at a location determined by the board of directors.
Marginal note: Annual budget
73 At the beginning of every year, the President shall prepare an annual budget of the Authority and present it to the board of directors for approval.
Marginal note: Mandate
74 The purposes of the Authority are to
Marginal note: Powers of board of directors
Marginal note: Application to become borrowing member
Marginal note: Ceasing to be borrowing member
Marginal note: Priority
Marginal note: Limitations — loans
79 The Authority shall not make a loan to a borrowing member unless the First Nations Tax Commission has approved a law made by the borrowing member under paragraph 5(1)(d) in respect of that loan.
Marginal note: Restriction
80 A borrowing member that has obtained a loan from the Authority that is secured by property tax revenues and has a term of one year or longer shall not subsequently obtain such a loan from any other person as long as the loan from the Authority remains unpaid.
Marginal note: Limitations — short-term loans
81 The Authority shall not make a loan that has a term of less than one year to a borrowing member for a purpose described in subparagraph 74(a)(ii) unless the loan is made in anticipation of local revenues set out in a law made by the borrowing member under paragraph 5(1)(b).
Marginal note: Sinking fund
Marginal note: Surpluses
Marginal note: Debt reserve fund
Marginal note: Credit enhancement fund
Marginal note: Default by first nation
Marginal note: Short-term pooled investment funds
Marginal note: Annual report
Marginal note: Assignment — revenues payable by Her Majesty
Marginal note: Regulations
89 The Governor in Council may, on the recommendation of the Minister after consultation by the Minister with the Authority, make regulations
Marginal note: Council resolution
Marginal note: Approval by members
Marginal note: Initial payment of moneys
Marginal note: Liability for future management
93 Following the payment of moneys under section 92, Her Majesty is not liable for the management of those moneys.
Marginal note: Past liability
94 This Act does not affect the liability of Her Majesty or a First Nation for any act or omission in respect of moneys occurring before a payment referred to in section 93.
95 Sections 61 to 69 of the Indian Act do not apply in respect of moneys paid to a First Nation under section 92 of this Act.
Marginal note: Definition of
96 In this Part, means a service provided on reserve lands by or on behalf of a First Nation, including in relation to the provision of water, wastewater management, drainage, waste management, animal control, recreation, transportation, telecommunications and energy.
Marginal note: Laws respecting the provision of services
Marginal note: Coming into force
98 A law made under subsection 97(1) comes into force on the later of
Marginal note: Judicial notice
99 In any proceedings, judicial notice may be taken of a law made under subsection 97(1).
100 The Statutory Instruments Act does not apply in respect of a law made under subsection 97(1).
Marginal note: Definition of
101 In this Part, means the First Nations Infrastructure Institute.
Marginal note: Establishment
Marginal note: Not agent of His Majesty
103 The Institute is not an agent of His Majesty in right of Canada.
Marginal note: Appointment of first directors
104 On the recommendation of the Minister, the Governor in Council shall appoint the first ten directors of the board of directors, including a Chairperson, who are to hold office during good behaviour for a term not exceeding five years, subject to removal by the Governor in Council at any time for cause.
Marginal note: Appointment of subsequent directors — Governor in Council
Marginal note: Qualifications
106 The board of directors shall be composed of individuals from across Canada, including members of First Nations, who are committed to improving infrastructure outcomes for First Nations and entities referred to in subsection 50.1(1) and who have the experience or capacity to enable the Institute to fulfil its mandate.
Marginal note: Election of Vice-Chairperson
107 The board of directors shall elect a Vice-Chairperson from among the directors.
Marginal note: Removal of directors
108 The board of directors may remove a director appointed under subsection 105(3) for cause at any time in accordance with the rules and procedures established under subparagraph 113(b)(i).
Marginal note: Reappointment
Marginal note: Status
110 The Chairperson shall hold office on a full-time basis and the other directors shall hold office on a part-time basis.
Marginal note: Remuneration
Marginal note: Chairperson — functions
Marginal note: Powers of the board
113 The board of directors may
Marginal note: Head office
113.1 The head office of the Institute shall be on reserve lands at a location determined by the board of directors.
Marginal note: Staff
Marginal note: Mandate
113.3 The purposes of the Institute are to
Marginal note: Powers
Marginal note: Review of infrastructure project
Marginal note: Review for continued compliance
Marginal note: Review of First Nation laws
Marginal note: Standards
Marginal note: Functions and powers
Marginal note: Information sharing agreements
113.91 The Institute may enter into agreements with a First Nation, entity, including an entity referred to in subsection 50.1(1), or individual or any level of government concerning the sharing of information for research, analysis and publication purposes.
Marginal note: Regulations
113.92 The Governor in Council may, on the recommendation of the Minister made having regard to any representations by the Institute, make regulations prescribing fees that the Institute may charge for services and the manner in which the fees may be recovered.
Marginal note: Definitions
114 The following definitions apply in this Part.
means the First Nations Tax Commission, the First Nations Financial Management Board or the First Nations Infrastructure Institute. ( institution )
Marginal note: Exclusion from federal public administration
Marginal note: Financial year
116 The financial year of each institution is the period from April 1 to March 31, unless otherwise prescribed by regulation.
Marginal note: Expenditure of revenues
117 Subject to any terms and conditions that the Treasury Board may direct, for the purposes of the institution, an institution may expend, during a financial year or the following year, any revenues that it receives in that financial year through the conduct of its operations.
Marginal note: Corporate plans
Marginal note: Books and systems
Marginal note: Annual auditor’s report
Marginal note: Special examination
Marginal note: Report
Marginal note: Examiner
Marginal note: Consultation with Auditor General
124 The auditor or examiner of an institution may at any time consult the Auditor General of Canada on any matter relating to an audit or special examination.
Marginal note: Right to information
Marginal note: Restriction
126 Nothing in this Part or in any directions of the Minister shall be construed as authorizing the auditor or examiner of an institution to express any opinion on the merits of matters of policy, including the merits of
Marginal note: Qualified privilege
127 An oral or written statement or report made under this Part by an auditor or examiner has qualified privilege.
Marginal note: Audit committee
Marginal note: Disclosure of material developments
129 The chief executive officer of an institution shall, as soon as reasonably practicable, notify the Minister and any commissioner or director of the institution not already aware of them of any financial or other developments that, in the chief executive officer’s opinion, are likely to have a material effect on the performance of the institution, relative to its objectives or requirements for funding.
Marginal note: Annual report
Marginal note: Annual meeting
Marginal note: Conflict of interest
Marginal note: Liability of His Majesty
Marginal note: No appropriation
134 No payment to the First Nations Tax Commission, First Nations Financial Management Board, First Nations Finance Authority or First Nations Infrastructure Institute may be made under an appropriation by Parliament authorized under an Act of Parliament to enable the Commission, Board, Authority or Institute to satisfy any claim referred to in subsection 133(1).
Marginal note: No compensation
135 No person has a right to receive any compensation, damages, indemnity or other relief from Her Majesty in right of Canada, or from the First Nations Tax Commission, for any acquired, vested or future right, or for any prospect of such a right, that is affected by a law approved by the First Nations Tax Commission under subsection 31(3), or for any duty or liability imposed on that person as a result of such a law.
Marginal note: Limit of liability — commissioner, director, employee, etc.
136 No civil proceedings lie against any of the following persons for anything done or omitted to be done in the exercise or performance, or purported exercise or performance, in good faith of any power or duty under this Act or regulations made under this Act:
Marginal note: Limit of liability — co-management or third-party management
136.1 Despite anything in federal or provincial law, if the First Nations Financial Management Board has required a First Nation to enter into a co-management arrangement in respect of the First Nation’s local revenues in accordance with section 52 or has assumed management of a First Nation’s local revenues in accordance with section 53, neither the Board nor any director or employee of the Board or person acting on behalf of the Board is by reason of that fact liable for any liability of the First Nation.
Marginal note: Personal liability for costs
136.2 No director or employee of the First Nations Financial Management Board or person acting on behalf of the Board is personally liable for costs
Marginal note: Limit of liability
137 No civil proceedings lie against a member of a council or an employee of a First Nation for anything done, or omitted to be done, during the course of the exercise or purported exercise in good faith of any power, or the performance or purported performance in good faith of any duty, of that member or employee in accordance with this Act, regulations made under this Act or a law made by the council of a First Nation under this Act.
Marginal note: Conflict with other laws
Marginal note: Official languages
Marginal note: Regulations
140 The Governor in Council may make regulations
Marginal note: Regulations
Marginal note: Regulations — organizations referred to in paragraph 50.1(1)(e)
Marginal note: Regulations — joint reserve lands
141.2 For the purpose of enabling a First Nation to benefit from the provisions of this Act, or obtain the services of any body established under this Act, in respect of reserve lands that have been set apart for the use and benefit of that First Nation and one or more other First Nations, the Governor in Council may make any regulations that the Governor in Council considers necessary, including regulations
Marginal note: Regulations
142 The Governor in Council may make regulations
Marginal note: ITAB employees
Marginal note: Continuation of directors
144 Persons who are directors of the First Nations Finance Authority Inc., a corporation incorporated under the Canada Business Corporations Act , on the day on which section 58 comes into force shall continue as directors of the First Nations Finance Authority until new directors are elected.
Marginal note: Continuation of existing by-laws
Marginal note: Continuation of existing by-laws
Marginal note: Review and evaluation
146 Within seven years after the day on which this Act receives royal assent, the Minister, after consultation with the First Nations Tax Commission, First Nations Financial Management Board and First Nations Finance Authority, shall review the provisions and operation of this Act and the operations of those institutions, and submit a report to each House of Parliament on that review, including any changes that the Minister recommends relating to the evolution of the mandate and the operation of those institutions.
147 [Amendment]
148 [Amendment]
149 [Amendment]
150 [Amendment]
151 [Amendment]
152 [Amendment]
153 [Amendment]
154 [Amendments]
Marginal note: Order in council
Footnote * 155 The provisions of this Act, other than section 154, come into force on a day or days to be fixed by order of the Governor in Council.
Return to footnote * [Note: Section 154 in force on assent March 23, 2005; Act, other than section 154, in force April 1, 2006, see SI/2006-59.]