AMO reveals Reconciliation blueprint for municipalities

In a landmark effort to advance Reconciliation between Indigenous communities and municipalities across Ontario, the Association of Municipalities of Ontario (AMO) has unveiled its Indigenous Reconciliation Action Plan (IRAP).

The plan was introduced at AMO’s recent annual conference, which drew approximately 3,000 attendees to Ottawa last month.

The plan is an ambitious and collaborative document shaped by a year-long engagement process led by Tawi:ne Consulting Inc. Tawi:ne is an Indigenous-owned and -operated consulting firm specializing in community engagement and policy development. Tawi:ne was selected through a competitive RFP process.

Under the leadership of Sara Loft, owner of Tawi:ne, the firm worked closely with AMO’s Indigenous Advisory Council (IAC) to bring the plan to life.

“This was the vision of the IAC,” Loft said. “Our role was to assist with the engagement, writing, and research that would form the foundation of the Indigenous Reconciliation Action Plan.”

Originally scoped for eight months, the project expanded to a full year to accommodate the breadth of voices eager to contribute. Typically, Loft said, these plans take up to two years. But thanks to the commitment from all involved, Loft added, the team was able to complete the plan in one year.

Robust Engagement Process

Joining Loft in the effort was associate Olga Semenovych – who also gave a shout out to colleagues Shady Hafez, and Reg Niganobe. The team spearheaded the engagement process that Semenovych describes a robust and inclusive approach that reached across the province.

“Our approach was to talk to First Nations communities, and we wanted to hear from them about different types of relationships that they have with municipalities,” she said. “In some cases, actually, we had a community and the municipality come together and share both of their perspectives because they work closely together.”

The team held multiple meetings with the IAC and conducted individual interviews with its members. They also engaged with the Chiefs of Ontario Leadership Council, the Ontario Federation of Indigenous Friendship Centres, the Ontario Native Women’s Association, and the Métis Nation of Ontario’s Regional Councils. Each group provided critical insights into their experiences with municipal partnerships.

“We asked everyone the same set of questions,” Semenovych said. “What’s working? What needs improvement? What advice do you have for AMO and municipalities?”

One of the most striking aspects of the engagement was the inclusion of joint sessions between Indigenous communities and their municipal counterparts. These conversations revealed both the potential and the pitfalls of collaboration.

Loft highlighted two key concerns that emerged during community engagement: the absence of Indigenous consultation in development projects – which can result in the disruption of culturally sensitive sites and costly delays – and the persistent underfunding of Indigenous service organizations, particularly in urban areas. She noted that frontline workers often operate with minimal resources, a challenge intensified by the pressures of the COVID-19 pandemic and limited support from municipalities.

Municipalities themselves were eager to participate. At AMO’s 2024 conference, Tawi:ne hosted a table where municipal leaders shared their experiences and aspirations. Semenovych noted a recurring theme: the need for practical resources.

“What was interesting from my perspective is learning about the different capacities within municipalities, especially the small and the rural ones, and how much support they really need to undertake this work,” she said. “There’s a big role for AMO to play, even providing some practical resources. That’s what we heard a lot from municipalities.”

Clear Path Forward

The IRAP, Semenovych said, addresses a widespread gap in understanding among municipalities about their responsibilities in Reconciliation efforts.

Semenovych said many municipalities were uncertain about their role, often believing Reconciliation was outside their authority. The plan, she said, provides clear direction, affirming that Reconciliation is a municipal responsibility and that IRAP outlines actionable steps to fulfil it.

“We did hear from municipalities that they really do look up to AMO for leadership,” Semenovych said, adding that AMO’s internal efforts – such as changes to staffing, procurement, and organizational culture – serve as a model for others. “AMO being a voice for municipalities at the provincial level … there’s a whole set of actions that focus on the policy and influencing piece. AMO can help to elevate a lot of the issues to the provincial level.”

By taking the lead, Loft said, AMO not only sets a precedent for municipalities but also positions itself as a key voice at the provincial level, advocating for policy shifts that reflect the realities and needs of Indigenous communities across Ontario.

Loft emphasized the importance of AMO’s response to the Truth and Reconciliation Commission’s Call to Action 92, which urges organizations to pursue systemic change and inclusion.

She pointed out that Ontario has the largest urban Indigenous population in Canada, with cities like Thunder Bay reaching 14 per cent.

“Recognizing the Indigenous population within municipalities – the economic driver, the inclusion – and recognizing biases that some municipal policies may hold, we can make changes internally to address those barriers and to improve the lives of everybody,” Loft said. “By recognizing that and making those changes incrementally, we’re ensuring the betterment of the lives of all the populations within municipalities.”

Marking a Monumental Moment

The IRAP, Loft said, is being hailed as both a blueprint and a call to action. She described being part of the IRAP launch as “monumental,” applauding AMO’s executive board and committee for their commitment to Reconciliation.

The next step, Loft said, is implementing the plan and making the necessary changes before AMO receives a progress report in three years.

One of the things Loft said she heard at the conference was what does this all mean? What does this mean for AMO? What does it mean for municipalities?

As such, she wanted to emphasize that municipalities need to do their own work and create their own plans that are going to be unique to them. But those efforts should reflect the spirit and actions embedded in AMO’s plan.

Semenovych was quick to add there is a section in the IRAP on municipal responsibility and Reconciliation so municipalities can read it and gain clear insights into why they should be doing this work and what exactly their responsibility is.

Loft said her team heard that a lot of people were proud to be involved in this process. They were thrilled and excited that finally this vision was finally coming to fruition. But there was also anticipation for how changes are going to be made and what impact that they will have on the Indigenous-municipal relations.

“The IRAP sets out a pathway and sort of a framework and shows the work that they put in to getting to this point,” Loft said. “The hope is that municipalities will sort of take it as a guide but not a checkpoint. It isn’t, ‘OK, AMO did this, so we don’t have to.’ Ultimately, that’s the hope for all the municipalities that really want to put this work in. And we heard that at the conference that they do.”  MW

✯ Municipal World Executive and Essentials Plus Members: You might also be interested in Jordan Hatton and Brian Arnott ’s article: Land code (Part 1): First Nations land management – The Indian Act.

Sean Meyer is digital content editor for Municipal World.

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