Case Study: Navigating Complexity through Shared Principles – The ATR Framework for the Calgary Metropolitan Region
A Regional First: Creating a Pathway for Collaboration
Forum Community Relations was contracted to support the Calgary Metropolitan Region Board (CMRB) in the development of a regional Additions-to-Reserve (ATR) Framework—the first of its kind in the region. The initiative was rooted in a shared recognition: ATR processes, while federally administered, significantly affect and involve local governments. With ATR proposals expected in the region due to recent First Nations settlements, a proactive approach was needed.
The resulting framework was co-developed with participation from all 8 regional municipalities, CMRB staff, and representatives from two First Nations—Siksika Nation and Bearspaw First Nation, each bringing unique histories, governance systems, and cultural perspectives.
The final framework received formal support from both Siksika Nation Chief & Council and the CMRB Board, marking a significant milestone in regional Indigenous-municipal collaboration.
Why an ATR Framework?
An Addition-to-Reserve is a process by which land is added to an existing reserve or used to create a new reserve. It may be initiated for reasons such as:
Legal obligations or agreements
Community-driven economic or cultural purposes
Tribunal decisions related to land claims
ATR processes require collaboration between First Nations, the federal government (Indigenous Services Canada), and local municipalities—particularly for Municipal Servicing Agreements (MSAs) and land-use compatibility. With multiple governments involved, clarity, consistency, and relationship-building are essential.
The Process: From Complexity to Common Ground
Forum facilitated a process that engaged participants with different levels of interest and capacity:
Contributors participated in multiple meetings and offered draft feedback
Reviewers provided input on draft materials
Observers were kept informed and updated throughout the process
Guided by research and regional context, Forum led structured dialogues that resulted in a set of shared guiding principles to navigate ATR processes. These included commitments to:
Early and respectful engagement
Mutual learning
Embracing both Indigenous and Western legal and governance traditions
Recognizing inherent rights
Working "in a good way"
These principles are not prescriptive but are intended to guide municipalities in responding to ATR proposals in ways that foster trust, transparency, and collaboration.
Key Takeaway: Principles Before Process
One of the most powerful lessons from this initiative was the value of principle-based dialogue in navigating complexity.
With multiple jurisdictions, diverse cultures, and varying levels of understanding, tackling ATR as a policy or technical process alone would have stalled. Instead, the creation of a shared set of principles provided a common foundation for discussion—even when specific situations, interests, or interpretations differ.
“When things seem too complex to tackle, developing shared guiding principles helps us find common ground. The application of those principles will always be situation-dependent, but the process of defining them together creates trust and direction.”
— Anne Harding, Forum Community Relations
From Framework to Practice
The ATR Framework now provides municipalities across the Calgary Metropolitan Region with a non-binding, yet practical and values-based tool for engaging in ATR processes. It outlines roles and responsibilities, offers examples of how principles can be put into action, and includes public communications tools to support understanding.
While the framework does not replace government policy or override First Nations' autonomy, it equips local governments to respond thoughtfully and collaboratively when ATR proposals arise—supporting reconciliation through action.
