Professional Documents
Culture Documents
T-978-16 Judicial Review Judgment April 12-2017
T-978-16 Judicial Review Judgment April 12-2017
Docket: T-978-16
BETWEEN:
Applicants
and
Respondents
I. Introduction
[1] Eric Shirt, Shannon Houle, Valerie Steinhauer and Greg Cardinal [the Applicants],
challenge a decision by the Saddle Lake Cree Nation [SLCN] which removed each of the
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Applicants nomination for Chief and Council of the SLCN. For the reasons that follow. I am
granting the application and sending their eligibility determinations back to be re-determined.
II. Background
Treaty 6 nation, located in eastern Alberta. Their official language is Cree and their elections are
carried out in accordance with the Saddle Lake Tribal Custom Elections Regulations [the
Election Regulations]. The Election Regulations were taken from band meetings held in 1955
and 1960.
[3] This Court would prefer not to interfere with the democratic process of the SLCN out of
respect for their right to determine their own elections. However, sometimes it is necessary and it
can be helpful to hear what you already know. The Election Regulations have not changed since
1960 and though they may have been sufficient at the time, they are certainly lacking now.
[4] The Federal Court has supervisory jurisdiction over the election process including
electoral bodies such as an appeal committee and electoral officers (Algonquins of Barriere Lake
[5] On March 8, 2016, an election committee was appointed by then Chief Leonard
Jackson. On or about March 15, 2016, SLCN Chief and Council contracted Ron Lameman of
Beaver Lake Cree Nation to act as electoral officer for the 2016 election. The election committee
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was selected to assist him in the 2016 election. Notice of a nomination meeting was made and
[6] After the nomination meeting, a deadline for submitting eligibility protests was set for
allegedly did not meet the requirements of the Election Regulations. The written protests were all
given to the election committee. Despite being the electoral officer in charge, Ron Lameman
[7] The election committee met on June 6 and 7, deciding to remove the Applicants from the
official candidates list. The Applicants allegedly failed to meet residency requirements or were in
were provided to the candidates. The official candidates list (without the names of the
[8] The election committee met with Greg Cardinal, but his submissions were not considered
as the official candidates list had already been sent to the printers. Eric Shirt wrote a letter to
Chief, Council and the election committee which was dated June 10 and emailed on June 13,
2016. He did not receive a reply. Shannon Houle, who was running for re-election, protested her
removal from the list as well. Her nominator, Dr. James Makokis, wrote asking for an
explanation on June 9, 2015. No consideration was given to these submissions as the official
[9] The responses from Ron Lameman uniformly stated that any questions should be
addressed and directed to the election committee. He provided Cora Houle, Carl Cardinal and
III. Issues
B. Was the election committee properly appointed and did it have authority to make
[12] If the answer is yes to both, I will then determine if the decisions to remove the
[13] The procedural fairness and constitution of the election committee issues will be
reviewed on a correctness standard as they involve questions of law, jurisdiction and procedural
fairness (Weekusk v Thunderchild First Nation Band Council, 2014 FC 845 at para 10; Felix v
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Sturgeon Lake First Nation, 2014 FC 911 at para 35 [Felix]). The decisions to remove the
V. Analysis
A). The Election Regulations do not address many election issues before the Court including the
[15] The Applicants argue that there is no provision for an election committee in the Election
Regulations and that a Chief cannot appoint a committee on their own. Further, the Applicants
submit that the Chief appointed the individuals to the election committee without any criteria or
mandate. The election committee then removed nominees including the Applicants from the
[16] The Applicants say that even if the Chief could appoint an election committee the
committee members when making their determinations only relied on information from family
members and neighbours while ignoring statutory declarations, all of which makes their
decisions reviewable. Further contentions are that it was the electoral officers obligation to take
the nominations and determine their validity. The Applicants suggest the electoral officer took no
steps to address any of the nomination complaints; instead, forwarding them to the election
committee.
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[17] As well, the Applicants argue as they attempted to do before the election committee
that they could not be removed from candidacy on the basis of residence since this was found to
be unconstitutional by the Supreme Court of Canada (Corbiere v Canada (Minister of Indian and
Northern Affairs), [1999] 2 SCR 203). It was equally advanced that the bar on common-law
[18] The Election Regulations indicate that anything not covered by the regulations is
governed by sections 74-78 (formally ss. 73-78 of RSC 1952) of the Indian Act. Therefore, the
Applicants argue that under Special Nomination Meeting Procedures of the Indian Band
Election Regulations, CRC c 952, which is expressly included in section 75(1) of the Indian Act,
[19] The Applicants submit that they were eligible since Shannon Houle was a Councillor
from the previous term and swore a statutory declaration that she was a resident. Despite this, the
decision makers failed to contact Ms. Houle and removed her name without further evidence.
Similarly, an allegation was made that Valerie Steinhauer was in a common-law marriage
contrary to the Election Regulations and that the electoral committee failed to contact Ms.
Steinhauer. The only evidence presented to validate the allegation against her was an
unidentified man who answered the door of her residence and a comment from Ms. Steinhauers
mother from the patio next door stating I told her not to run.
[20] The Respondents counter that it has been longstanding custom that the sitting Chief and
Council appoint electoral officials. Further, they say that the election committee has evolved out
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of necessity to deal with nomination protests since as early as 1984 when Canada advised SLCN
that election disputes had to be resolved internally. The Respondents argue the current custom is
that an election committee decides whether nominees meet the qualifications in the Election
Regulations. They argue this custom was established in the 2010 election.
Nation, 2001 FCT 467, in which a nominee was removed from the candidates list despite no
procedure existing to do so. The consequence of allowing the judicial review, they say, is to
allow ineligible nominees to stand without any recourse for their removal.
[22] The Respondents position was that any reference in the Election Regulations to section
75(1) of the Indian Act has no authority. Rather, the bands own custom is the final authority on
[23] The Respondents argument is that no objections were made during the nomination
meeting indicating that the nomination process was held in conformity with their custom.
Furthermore, the Respondents declared it was not open to the sitting Chief and Council to
postpone the election or extend their time in office as the Applicants requested. There had to be a
method of dealing with nomination protests; the method they chose was through the election
[24] According to the Respondents, the election committee attempted to contact each of the
named Applicants upon receiving letters of protest against them. Two of the Applicants
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(Shannon Houle and Valerie Steinhauer) were given notice. The other two Applicants (Eric Shirt
and Greg Cardinal) were made aware of the eligibility requirements and that nominations may be
subject to protest.
speak with the election committee regarding their respective protest. They refused to avail
themselves of this opportunity. The position of the Respondents is that when procedural fairness
is offered but refused, it cannot then be later claimed as unfair. The election committee sought
out and obtained information confirming the protests against Eric Shirt, Greg Cardinal, and
[26] When Indian and Northern Affairs Canada [INAC] was contacted regarding the SLCN
election they wrote back in a letter dated June 1, 2016. INAC indicated that their only role
regarding the custom bands elections was the recording of the successful candidates. The last
paragraph reads: when a dispute arises concerning a community or custom election process, it
must be resolved in accordance with the related provisions in a communitys election code, or by
the courts.
[27] I acknowledge that this band has had election regulations governing elections of Chief
and Council for a significant length of time. Section 74 of the Indian Act and the Indian Band
Election Regulations therefore do not apply (Bone v Sioux Valley Indian Band No 290, [1996]
[28] The parties agree that there is no provision under the Election Regulations for the
appointment of an election committee or how criteria of how they operate. Neither is there a
the band election customs have never been passed by a Band Council Resolution [BCR] or a
[29] The Court was provided evidence that the band has formed an electoral reform committee
in the past to amend the Election Regulations. To date no amendments have successfully been
[30] Past jurisprudence has confirmed that band custom regarding band elections do not
always have to be in writing. The Indian Act gives no guidance as to how that custom is to be
identified (Heald DJ. in Bone, above, at para 27, quoting Strayer J. in Bigstone v Big Eagle,
[31] Madam Justice Strickland has addressed on in two recent decisions what is required to
establish unwritten band customs. She concluded that the establishment of band customs requires
evidence demonstrating that the action was firmly established, generalized and followed
consensus (Gadwa v Kehewin First Nation, 2016 FC 597 at para 62; Beardy v Beardy, 2016 FC
383 at para 97 [Beardy], citing Francis v Mohawk Council of Kanesatake, 2003 FCT 115 at
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paras 21-30; Prince v Sucker Creek First Nation #150A, 2008 FC 1268 at para 28; Metansinine v
Animbiigoo Zaagiigan Anishinaabek First Nation, 2011 FC 17 at para 28; Joseph v Yekooche
can elect leaders according to custom but it must meet certain fundamental requirements. For
example, a majority of a bands members must recognize the custom, not just Chief and Council.
The band members must not only agree as a community to the new custom, the community must
know they have agreed. In this case the majority of the membership would have had to agree that
the Chief, acting alone, would appoint three people to an appeal committee that would determine
[33] Further, a majority of the membership would have had to agree that deliberation on the
nominees qualifications would not be shared with the nominees, they would not be allowed to
respond to the allegations against them, and they would not receive reasons as to why they were
[34] The Respondents suggest that an unwritten custom can be established if the band has
conducted itself in the same way over several elections. I agree with the proposition that a
custom can be unwritten-but I do not agree that the SLCN election committee is a custom. Using
the two components described in McLeod Lake Indian Band v Chingee, [1998] FCJ 1185, 153
FTR 257 [McLeod], the SLCN election committee has not been repetitively created nor was it
adopted through a single act (like through amendment of the Election Regulations).
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[35] The affidavit of Finlay Moses, including a 2010 nomination meeting agenda, was
submitted as evidence that the election committee is an established custom. The agenda states
that [p]rotests on the question of candidates being allowed to run should be presented in writing
and in person. The minutes from the 2013 nomination meeting state that the Election
[36] A detailed letter, marked Urgent, was sent on June 13, 2016, regarding the
[37] This is the latest of a number of documents regarding band membership meetings and
awareness that the Election Regulations need to be updated. Filed as evidence are minutes of a
meeting dated September 20, 1984, where the interpretation of eligibility to be nominated was in
[38] Evidence is in the Certified Tribunal Record [CTR] that an Elections Law Committee
meeting was held on October 25, 2012. Many considerations were discussed on how to move
forward but the one that is important to the matter at hand is the section headed Appeals. It
records as follows:
[39] The evidence in the above paragraphs proves that the band is aware and discussing
election criteria which the band needs. Further records discuss whether the SLCN should extend
the duration of election terms from three to four year and how to set criteria for the positions of
Chief and Council. The minutes include a survey questionnaire for the members in order to
update their election laws. Further notes, minutes and notices indicate the elections committee
continued discussions but no record was presented of any change to the Election Regulations as a
result.
[40] All of this demonstrates that the band does not have a generally accepted custom
supported by a majority of the members. The evidence shows the band is trying to develop
election regulations that reflects what the members want but that they are not there yet.
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[41] I have insufficient proof that what occurred in this election was custom as set out in the
jurisprudence. What I do have is evidence that the election reform committee could not reach
elections (which is contradicted by the meeting minutes of the electoral reform committee
mentioned in Finlay Moses affidavit), it fails on the second, subjective component from
McLeod. The subjective component relies on a band meeting or other means to demonstrate that
there is consensus on the new custom. There is no evidence that the SLCN membership approved
of the election committee structure used in this election. The Respondents point to a lack of
objections at the nomination meeting as a sign of implicit approval. It is possible that the SLCN
membership didnt know what procedures were in place to resolve nominee disputes. The
meeting minutes from the nominee meeting provide no information to confirm that protest
[43] In a letter dated June 29, 2016, the Chief wrote As Chief of Saddle Lake Cree nation. I
did reply to a text from Shannon Houle, as per following. I appointed the committee not Sheila
cuz it was hard to get approved by council as we always ran into difficulty getting a quorum.
Following the letter is a hand written note dated Moi (possibly May or March) 23, 2016 which
says the acting Chief Lenny J Jackson appointed Lena Cardinal to be a member of the election
committee. Councillor George Cardinal named Carl H Cardinal to be a member. Cora Houle was
appointed to the election committee at a March 8, 2016 band council meeting. The CTR contains
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oaths of confidentiality signed by each of the election committee members dated June 3, 2016.
[44] The evidence before the Court is the Chief alone doing the appointing of Carl and Lena
many members, requirements of an elder, etc.). On these facts there is not even any public notice
[45] The appointment of the individuals to an election committee by the Chief alone cannot be
seen as band custom. The fact it was done in the 2010 and 2013 elections and no one complained
may be evidence of moving towards a custom but is not a definitive answer. A majority of the
band membership must agree for there to be a new custom and the membership must know about
it. I have an affidavit from Finlay Moses who says this is SLCN custom. Again, this is
insufficient evidence that a majority of the membership approved and knew of this custom.
nomination no less the creation of an election committee. Band members were entitled to know
the criteria, role, and process for the appointment of an election committee.
[47] I find that the 2016 SLCN election did not follow a custom approved by the majority of
band members who knew of the new custom. In fact the evidence is that there is no consensus of
[48] The resulting situation is unfortunate as everyone was trying to do the best for their
nation. The problem is that the Election Regulations from 1955 and 1960 are inadequate and the
alleged election customs have not developed with the support and approval of the community at
large.
D. Procedural fairness
[50] In Desnomie v Peepeekisis First Nation, 2007 FC 426 at paragraph 19, Justice Blais had a
matter where the First Nation election code did not offer any guidance as to how such a Council
of Elders ought to have been formed, so that it cannot be determined whether the procedure
followed was in accordance with the legislation. He went on to find that we must look to
principles of procedural fairness to determine whether the applicants rights were violated by the
Council of Elders, and whether the process followed to create the Council of Elders raises a
[51] Decisions that are administrative in nature and affect the rights, privileges or interests of
an individual will trigger the application of the duty of fairness (Baker v Canada (Minister of
Citizenship and Immigration), [1999] 2 SCR 817 at p 836 [Baker], referencing Cardinal v
Director of Kent Institution, [1985] 2 SCR 643 at p 653). This case involved a final
administrative decision having significant impact on rights, privileges and interests, thus
procedural fairness was required (Foster v Canada (Attorney General), 2015 FC 1065 at paras
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28 and 30). The parties do not dispute that the Applicants were owed a duty of procedural
[52] To determine what procedural fairness is necessary in this situation I could apply the
Baker analysis is required as the Federal Court of Appeal [FCA] provided guidance in Samson
Indian Band v Bruno, 2006 FCA 249 [Samson], which is applicable to the facts before me.
[53] In Samson, above, the trial judge concluded that a disqualified nominee for band Council
was denied natural justice since the appeal board denied them the opportunity to be heard. The
FCA agreed that at a minimum the board should have given the nominee an opportunity to make
submissions given the importance of a negative decision to the individual. In that case it did not
mean the applicant was entitled to a full oral hearing. However, they should have been provided
an opportunity to know the case against them and make submissions so that the boards
[54] The law is well established that custom cannot ignore or trump principles of natural
justice or the duty of fairness (Beardy, above, at para 126; Felix, above, at para 76). However,
the content of this duty is context specific and should include judicial respect for relevant custom
[55] As noted above, I do not have sufficient evidence to determine that the appointment
process of two election committee members by Chief alone is custom. Even if it is custom,
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appointments made without transparency or procedure for the committee to follow were
procedurally unfair.
[56] This applies equally to the procedure followed by the electoral officer. His role was set
points out that it is the electoral officers role to determine who meets eligibility qualifications in
the election code. Yet the evidence is he had nothing to do with nomination determinations as he
[57] Just as in Samson, the Applicants here were affected personally by the decision to refuse
their nomination for Chief or Council. The Applicants were entitled as a minimum to notice, an
opportunity to make submissions and a full and fair consideration of those submissions.
[58] Cora Houles evidence is that according to SLCN custom the protest letters are kept
secret and not shared with anyone outside the committee. She says that if a protested nominee
could be contacted [a]n opportunity was given to meet in person with the Committee to address
the grounds of protest. She also says that the committee made efforts to verify the protested
[59] Cora Houle indicates that the decision to remove the protested nominees names was
unanimously made at meetings held June 6 and 7 at the SLCN administration building. The
decisions to remove Eric Shirt, Shannon Houle, Valerie Steinhauer and Greg Cardinal were
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made on June 7, 2016 shortly after noon. The official candidates list without the Applicants was
[60] Cora Houles evidence is that they did not contact Eric Shirt because they had no contact
[61] A number of protest letters were submitted against Shannon Houle. Cora Houles
evidence is that the election committee told Shannon Houle in person on June 6, 2016 that the
committee needed to discuss her nomination. Cora Houles evidence is that Shannon Houle said
she would be right there but never appeared. Her office was locked and she refused to meet the
committee.
[62] Greg Cardinal was not contacted as they had no contact information for him. Cora Houle
indicated that another individual knew he did not live in Saddle Lake and that she spoke to a
neighbour of Greg Cardinals sister. The neighbour allegedly confirmed he did not live with his
sister and so they removed his name. After the decision was made the committee met with Greg
Cardinal on June 9, 2016 and listened to his explanation. However, since the official candidates
list was already at the printers without his name, his representations were not fairly considered.
[63] Protests were submitted against Valerie Steinhauer for being in a common law marriage.
Cora Houles evidence is that she and Carl Cardinal went to Valerie Steinhauers house on June
7, 2016 but she was not at home. They left a message with a man who answered the door that
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Valerie Steinhauer should call them. She called the election committee and was told that her
common-law spouse was at home when they visited. Valerie Steinhauer then hung-up the phone.
[64] In each of the four cases, the election committee abdicated any alleged responsibility in
moving forward to avoid some of the issues identified. When the parties are nominated they
should provide their contact information including phone, email, address or other methods of
[65] The election committees procedures for determining the residency of Eric Shirt,
Shannon Houle, and Greg Cardinal did not meet the minimum requirements of notice,
opportunity to make submissions and a full and fair consideration of those submissions. This is a
breach of natural justice given the importance of the decision to each of the Applicants. The
ineligibility of Valerie Steinhauer was based on her common-law relationship which I find was
procedurally unfair for the same reasons as the other three Applicants. However, she also objects
to the common law requirement as a breach of her section 15 Charter rights which I will address
below.
[66] Even if I am wrong in this, the election committees complete lack of reasons leads me to
believe that their negative determinations were unreasonable. The reasons included in affidavit
E. Charter
[67] There was no evidence produced concerning whether the Election Regulations are
Charter compliant. I do not need to make that determination as I have already found that the
nomination for election based on marital status alone would seem to be a discriminatory practice
and unconstitutional.
[68] Nor will I address the other issues raised by the parties since I am granting the
application.
VI. Conclusion
[69] This Court does not wish to interfere in leadership determinations of any First Nation out
of respect for their right to govern their own elections. However, if a band has exhausted all
internal opportunities for a remedy, the Federal Court remains ready to assist in a final
determination.
Election Regulations is required. The membership must know how Chief and Council are
elected.
[71] I was asked by the Respondents whether I would stay my determination until the next
band election in 2019 should the application be granted. There remains an underlying belief by
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the Respondents that the same problems will occur if I send the application back for a new
election. I disagree. I have faith in the Saddle Lake Cree Nation that they will craft and
implement a transparent, procedurally fair, and unbiased nomination and election process given
their experience overseeing their own elections for more than 60 years.
Because the integrity of the nominee process was undermined, their eligibility must be properly
determined. If any of the Applicants are deemed eligible, a new election must be held.
[73] I observe that an electoral officer has been hired as the designated person overseeing
nominees. A strong case would be made that the electoral officer could make eligibility decisions
as was the outcome of Samson. I would suggest that it could be reasonably open to the Chief and
Council to have the electoral officer determine disputes. If this is the case, the electoral officers
authority to do so should be explicitly contained in meeting minutes and/or a BCR with the entire
[74] In the alternative and much more reliably the band by majority can decide on criteria
for the composition of an election committee including how they are appointed, by whom, for
how long, their duties, and a procedure to follow regarding nomination disputes as well as other
electoral disputes. Then notice of the procedure to be followed must be given to the band
members.
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[75] I am not directing how the election regulations are to be structured and these are only
guiding principles for the membership that will determine the way to hold their election.
[76] If a new election must be held, it must be done in accordance with the Election
chosen by the band must be procedurally fair including a transparent process known to all
members. If a nominee is protested they must be notified and given an opportunity to respond.
Any decision to remove a nominee due to a protest must be made by an unbiased decision
maker(s) who gives full and fair consideration to the protest and nominees submissions. Since
none of these processes are currently defined in the Election Regulations they must either be
amended to reflect the above or a custom must be approved by a majority of the band
membership. The current Chief and Council will remain in place until and if the new election is
[77] Both parties sought costs. The Respondents provided me another election case where
costs in the amount of $10,000.00 were awarded on the basis that it was in the public interest.
The Applicants strenuously disagree that $10,000.00 was appropriate given there has never been
a challenge to the Election Regulations before and to award that amount would be inequitable.
[78] I will award a lump sum of costs. It is remarkable that for as long as the Election
Regulations have been used that this is the first dispute that could not be resolved by the SLCN.
That bodes well for the future of the band coming to an agreement on new election regulations.
This was a matter of public interest but the Applicants had costs to bring the matter forward and
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their costs were not reimbursed by the band. I will award costs in the total amount of $2,000.00.
The total costs ($2,000.00) are to be divided in equal shares to each of the Applicants and are to
JUDGMENT
1. The application is granted. The decision of the committee to remove the nominees from
and if any are found eligible then a new election must be held;
3. Costs are awarded in the lump sum amount of $2,000.00. That total amount is to be
divided equally among the Applicants and is to be paid forthwith to each individual
"Glennys L. McVeigh"
Judge
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APPENDIX A
THE FOLLOWING HAS BEEN TAKEN FROM THE MINUTES OF THE BAND MEETINGS
HELD ON THE SADDLE LAKE RESERVE IN 1955 AND 1960. ALL AREAS NOT
(b) No person can be nominated for an election if absent, unless he/she has
signified in writing his/her acceptance of the nomination.
(c) No person living in a Common Law marriage shall be eligible for nomination.
(d) No person who maintains his/her home off the Reserve shall be eligible for
nomination. (If he/she has his/her main place of residence or his/her family on the
Reserve and works off the Reserve, he/she shall become eligible. However, he/she
is allowed to miss only one regular meeting except for illness.
(e) No person convicted under the Criminal Code of Canada shall be eligible for
nomination.
(f) No person under the age of 21, as of the day of the nomination, shall be
eligible to nominate or be nominated.
Section (2):
Voting Regulations:
(a) Any Band member, over the age of 21 years, on the day of the election,
whether living on the Reserve or not, shall be eligible to cast a vote; with the
exception of Red Ticket Indians.
(b) Residents of the Goodfish Lake Reserve shall not be allowed to vote for Chief
or Councillor on the Saddle Lake Reserve.
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(c) Residents of the Saddle Lake Reserve shall not be allowed to vote for Chief or
Councillor on the Goodfish Lake Reserve.
(d) A person who is not a resident of either Reserve, but who is a member of the
Band, may vote once on the Reserve of his/her choice.
(b) There shall be nine Councillors for the Saddle Lake Reserve.
(c) There shall be four Councillors for the Goodfish Lake Reserve.
(d) The election of the Chief shall be held pursuant to the election of the
Councillors and the Chief shall come from among the elected Councillors.
(e) There shall be an interpreter* (one for the Saddle Lake Reserve and one for
the Goodfish Lake Reserve) appointed at a Band meeting for both the nomination
and election days.
(f) A Councillor or Chief guilty of improper conduct who has had a petition
requesting his/her removal, signed by 60& of the resident members of the
Reserve, shall be so dismissed by the Encumbent Electoral Officer and a bi-
election shall be called to fill the vacancy.
(g) The District Supervisor is the permanent Electoral Officer and it shall be his
responsibility for the calling of elections at the end of each three-year term. His
method of conducting nomination meetings (except for the closing of it), the
secret ballot, the opening, closing, and counting of the ballots shall be the same as
set forth in the Band Election Act, Section 73, of the Indian Act, as long as they
do not conflict with any regulations, rules or ordinances passed by the Band. The
Electoral Officer is authorized to appoint Poll Clerks, and authorized to pay the
cost of the election from Band funds after the count has been submitted to Council
and approved.
* Interpreter: shall be a person who can effectively interpret from the Cree
language into English language and from the English language into the Cree
language. This person shall not be a member of the Saddle Lake Band. He/She
shall be paid at a rate set by the Band Council.
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No person other than an elector who resides in a section may be nominated for the
office of councillor to represent that section on the council. Indian Act. Section
75, sub, 1.
No person may be a candidate for election as chief or councillor unless his name
SOLICITORS OF RECORD
DOCKET: T-978-16
APPEARANCES:
SOLICITORS OF RECORD: