COWICHAN TRIBES
THE QUW’UTSUN SNUW’UY’ULH (TEACHINGS)
Tl’i’ to’ mukw’ mustimuhw
Each person is important
Hwial’asmut ch tun’ s-ye’lh
Take care of your health
’Iyusstuhw tun’a kweyul
Enjoy today
Hwial’asmut tu tumuhw
Take care of the earth
Hiiye’yutul tst ’u to’ mukw’
stem ’i’u tun’a tumuhw
Everything in nature is part of our family – we are all relatives
To’mukw’ ‘i’ ‘u tun’u tumuhw ‘i’ ‘o’ la’lum’utul tst
Live in harmony with nature
Lhq’il ch ‘u kwthun’ suluthut ‘i’ tun’ sqwal
Be honest and truthful in all you do and say
Ti’ tul’ atul’ tst
Learn from one another
Thuthi’stuhw tun’ shqwaluwun ‘u tun’ ts’lhmustimuhw
Respect the rights of one another
Yath ch ’o’ lhq’il’
Be positive
Mukw’ tu shhw’a’luqw’a’ ’o’ tth’ele’s tu shhwuli
The family is the heart of life
Ts’iiyulh ch ’u tu ni’ s-aamustham-mut
Give thanks for what you have been given
Stsielhstuhw tu Sul-hween
Honour the Elders
Thuluqtul ch ’u kwthun’ kwunmun
Share what you have
‘I’ yet ch kwthun’ syuw’i’na’qw ‘i’ kwthu ni’
xtsutus
Respect your leaders and their decisions
‘I’ yet ch kwthun’ sht’unuxun
Respect your neighbours
Ha’ ch ts-tamut ‘i’ nuwus ch ‘o’ tl’ul’im’t
Take responsibility for your actions
Ts’its’uw’ atul. Nuts’umat kwun’ syaays shhwuys kwtho’ mukw’
Help one another and work together for the good of all
Do the best you can, be the best you can be All things are connected
We continue to work with our Hul’q’umi’num’ speakers to translate our snuw’uy’ulh.
ABOUT THIS REPORT
This annual report provides updates regarding Cowichan Tribes’ operations and financial performance during the fiscal year 2023 - 2024 (April 1, 2023 to March 31, 2024).
The report focuses on organizational milestones and progress that has been made in priority areas. We are proud to feature the work and accomplishments of Cowichan Tribes’ departments and economic development entities in the service of our citizens. Readers will note that the five themes that are featured are essential to achieving our long-term objectives relating to mental and physical health, culture, language, employment, self-governance, and environmental stewardship.
In accordance with Cowichan Tribes’ Financial Administration Law, this report also includes information from our audited financial statements for the fiscal year. It is important to present our financial reporting in a transparent and accountable manner and improvements have been made to streamline this information. The full financial statement is available on our website.
Huy ch q’u for taking the time to review our annual report!
ACKNOWLEDGMENTS
We are grateful to Quw’utsun Sul-hween (Elders), youth, and citizens for guiding our work. We recognize Cowichan Tribes’ leadership and staff for their efforts to make Cowichan Tribes a healthier, safer, and stronger nation.
We are grateful to all who contributed to creating this report including Chief and Council, artist Charlene Johnny, and Cowichan Tribes staff.
ABOUT THE ARTIST
Charlene Johnny is a Quw’utsun artist based in Vancouver, BC. She skillfully blends traditional Coast Salish design elements with modern aesthetics, drawing inspiration from the natural world and its creatures.
With over twelve years of experience, Charlene has honed her craft under various mentors, working across mediums such as silversmithing, graphic design, and mural painting. Her work is deeply rooted in nature, reflecting her heritage and contemporary vision.
QUW’UTSUN PEOPLES AND GOVERNMENT
Since time immemorial, Quw’utsun Mustimuhw (Cowichan people) have lived on and stewarded the land and sea in our territory. Our ways of being are firmly grounded in the Hul’q’umi’num’ language and the Quw’utsun Snuw’uy’ulh (teachings). With over 5,500 members, Cowichan Tribes is the largest First Nation Band in British Columbia by population. About half our members live on Cowichan Tribes reserve lands.
Our core traditional territory spans 376,308 hectares (929,844 acres), yet our total reserve area, distributed over nine reserves, is currently 2,400 hectares (5,900 acres). We have seven traditional villages: Qwum’yiqun’, Xwulqw’selu, S’amunu, Lhumlhumuluts’, Xinupsum, Tl’ulpalus, and Kwa’mutsun.
We are governed by a Chief and 12 Councillors, within the framework of the Indian Act. Cowichan Tribes has over 400 employees and total annual revenues this fiscal year of over $123 million.
We have delegated responsibilities for a variety of member services including Children & Families, Education, Health, Housing, Recreation, and Social Development. Other services we provide include Language, Cowichan River Hatchery, Culture, Emergency Services, Fisheries, Indian Registry and Citizenship, Lands, Governance, Sul-hween (Elders) Program, Operations and Maintenance, Capital Projects, Treaty Negotiation, Job Training and Youth Services.
We continue working to strengthen the Hul’q’umi’num’ language and Quw’utsun culture and are working to achieve full self-governance. Cowichan Tribes leadership table, management, and staff are all committed to delivering highquality services to our citizens and working together for a safer, healthier, and stronger nation.
COWICHAN TRIBES POPULATION
COWICHAN TRIBES DEMOGRAPHICS (ON-RESERVE) - 2021 CENSUS DATA
OUR GUIDING VALUES
The Quw’utsun Snuw’uy’ulh
Cowichan Tribes staff, managers, and leaders’ values and decisions are guided by the Quw’utsun Snuw’uy’ulh.
(Learn more about Cowichan teachings on page 1.)
Nuts’a’maat Shqwaluwun (One Mind, One Heart, One Spirit)
Nuts’amaat shqwaluwun is the basis of how we work together. It is essential for us to work together respectfully with one mind, one heart, and one spirit for the benefit of all.
OUR VISION
What we are working towards
Tun’ni’utu squw’utsun’al’lh syuwen, ts’I’ts;wutultst kws s’uy’elhs, kw’amkw’ums, tu stielh mustimuhw.
Through Quw’utsun heritage, we are working together respectfully for a healthier, safer, and stronger nation.
OUR MISSION
Nilh tu Quw’utsun mistimuhw tl’im ‘o’ hi wa’qw ye i’mushstuhwsyu’wentst, snuw’uy’ulhtst kw’am kwum’ tu shqwulawuns sis’o’tslhqwnamut ‘utu syaays, ‘i’kw’ni’tatul’utus.
Cowichan Tribes is a community-driven organization promoting the respect of our culture and traditions and empowering the individuality and success of our people and nation.
COWICHAN TRIBES OVERVIEW
CHIEF & COUNCIL (2024-2028)
Back Row Left to Right (standing)
Q’isulestse Howard George, Tasha Brooks, Swutth’tus Calvin Swustus Jr., Sulqw’tenatunaat Jen Charlie, Sulsulxumaat Chief Cindy Daniels (middle), Xul Troy Elliott, Xatl’ustun-tunaat Amanda Sylvester, Swutth’tus Calvin Swustus Sr., Yu Kwiliye’ Terri Allen.
Front Row Left to Right (seated)
Queletstunaat Audrey George, Looxèltunaat Francine Alphonse, Qwulti’stunaat Debra-Ann Toporowski, Yulkwetse’ Christopher Alphonse.
MESSAGE FROM OUR CHIEF
‘Uy’ skweyul si’iem nu siiye’yu,
This annual report features the accomplishments and financial performance of our government and economic development entities between April 1, 2023, and March 31, 2024. During this period, there were several historic achievements that reflect generations of knowledge and cultural preservation by our Elders and decades of groundwork by our leaders and staff. Their efforts have been essential to exerting our inherent rights and title and jurisdiction over our people and territory.
Specifically, I would like to highlight the signing of the Xwulqw’selu Watershed Planning Agreement with the Province of BC and two successful ratification votes: the Custom Election Law and the Snuw’uy’ulhtst tu Quw’utsun Mustimuhw u’ tu Shhw’a’luqw’a I’ Smun’eem (The Laws of the Cowichan People for Families and Children). I raise my hands to our citizens for their participation in both the development of these laws and ultimately voting in favour of them. By moving away from environmental management, electoral, and child welfare systems imposed on us by colonial governments, and towards ones that respect our cultural and traditional knowledge, we are leaving a positive legacy for our future generations.
Working in the service of our citizens in an elected capacity requires a deep commitment to our Snuw’uy’ulh and our community. Huy tseep q’u to our leaders for their contributions, including Xtli’li ye’ Lydia Hwitsum for her years of service as chief, retiring Councillors Dora Wilson, Albie Charlie, Stuart Pagaduan, and Darin George, and Stephanie Atleo, who stepped away from Council in fall of 2023 to offer her expertise in a new way as our Director of Governance.
It was an honour to be elected chief on March 7, 2024. I’ve had the pleasure of serving as a Councillor since 2002, and also fulfilled the roles of Acting Chief for several months in 2021, General Manager between April 2017 to September 2018, and Acting Chief Administrative Officer from October 2022 to September 2023. These experiences have impressed upon me the importance of bringing people together to accomplish great things.
We have a knowledgeable and committed new Council, comprised of citizens who are passionate about the improvements we can make over the next four years. I am optimistic about the future for our community and I look forward to working with our Council, citizens, Organizational Leadership Team, and our partners.
Ts’its’uw’ atul. Nuts’umat kwun’ syaays shhwuys kwtho’ mukw’ (Help one another and work together for the good of all).
Huy tseep q’u,
Sulsulxumaat
Chief Cindy Daniels
GOVERNANCE
Quw’utsun Mustimuhw (Cowichan citizens)
Elect Chief and Council and hold them accountable.
Chief and Council
Set the governance direction for Cowichan Tribes and help manage relationships with other governments and partners.
The Chief and Council Code of Conduct Policy is a guide for best practices for the well-being and interests of the Cowichan community. Council are the elected leaders of Cowichan and have traditional, moral, and legal duties to citizenship to govern and conduct themselves in an honest, professional, ethical, and transparent manner at all times.
Chief and Council appoint the Chief Administrative O cer (CAO).
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COWICHAN TRIBES COMMITTEES
• Adoptions Committee
• Capital Assets Management Committee
• Citizenship Committee
• Community Safety Working Group
• Coordination Agreement Table – Child and Family Wellness Jurisdiction
• Education Committee
• Education Jurisdiction Working Group
• Elders Tobacco Tax Committee
• Finance and Audit Committee
• Fishing Committee
• Health Advisory Committee
• Housing Committee
• Human Resources Committee
• Jurisdiction Working Group
- Child and Family Wellness
• Justice Committee
• Lalum’utul’ Smun’eem Advisory Committee
• Land Investigation Committee
• Legal and Policy Committee
• Own Source Revenue Committee
• Service Delivery Sub Committee
• Sul-hween Committee
• Tumuhw’ Committee
• Treaty Committee
• Treaty Elders Advisory Committee
• Youth and Recreation Committee
MESSAGE FROM OUR ACTING CHIEF ADMINISTRATIVE OFFICER (CAO)
I was honoured to be asked to serve as Acting CAO for much of the 2023-2024 fiscal year. As readers will learn from this report, it has been a productive year and I am incredibly proud of the positive impact we have accomplished together. Cowichan Tribes’ responsibilities and services span those of federal, provincial, regional, and municipal governments. As a result, it takes dedicated leadership and teamwork to deliver the extensive array of programs, services, events, planning, and self-governance initiatives our departments provide for the benefit of Quw’utsun Mustimuhw. I raise my hands to our Organizational Leadership Team and staff.
The themes we have chosen to feature in this year’s annual report reflect priority topics and activities including: Governance, Community Engagement, Infrastructure and Housing, Community Safety, and Partnerships. I hope you enjoy reading about the important accomplishments and progress that has been made in these areas in the pages that follow.
New this year in our annual report, is our focus on partnerships. Like many other First Nations, our community has complex health, housing, social, and financial needs, due to the effects of colonization and intergenerational trauma. Addressing these needs, including mental health, addictions, and community safety challenges requires wraparound services, infrastructure, compassion, and expertise. It also requires partnerships across our departments and with external agencies. I would like to recognize our staff who foster these partnerships and the organizations they work with each day, particularly those working in housing, health services, harm reduction, mental health, and with our youth. Another department with robust partnerships as part of their environmental guardianship is Lulumexun. They are working collaboratively to clean up the shoreline, monitor our marine environment, and conduct research and advocacy to protect salmon and restore the health of the Quw’utsun and Xwulqw’selu Rivers.
I would also like to draw attention to the creation of our Community Safety Working Group. This Working Group brings together senior leaders from multiple departments at Cowichan Tribes to meet regularly with our counterparts at the Municipality of North Cowichan and City of Duncan, including first responders from RCMP, fire departments, and BC Ambulance. The borders between our jurisdictions are seamless, so we have been exploring ways to work together to improve safety.
Lastly, I want to thank our citizens for their engagement with us this year through attending events, participating in programs, providing input and feedback, and casting your votes. Your participation, ideas, and perspectives matter.
Huy tseep q’u,
Dana Thorne
Dana (Sunaxwumaat) Thorne, MBA
OPERATIONS
The conduct of Cowichan Tribes staff is guided by our Human Resource Policy, which has been adopted to ensure fair, equitable, and consistent treatment of all employees. The policy acknowledges and addresses the goals of leadership and management in producing and maintaining a productive and secure workplace environment for employees and employer.
Chief Administrative Officer (CAO)
• Reports to Chief & Council
• Responsible for operations, project management, and implementation
• Provides strategic guidance and direction
DEPARTMENTS
• Administration
• Citizenship
• Communications
• Cowichan River Hatchery
• Emergency Services
• Finance
• Governance
• Human Resources
• Information Systems
• Lalum’utul’ Smun’eem (Child & Family Services)
• Lulumexun (Lands & Self-Governance)
• Operations & Maintenance
• Quw’utsun Syuw’entst Lelum (Culture & Education)
• Records Management
• Oversees departments
• Is supported by the Deputy Chief Administrative Officer and Chief Financial Officer (CFO)
• Social Development
• Sustainable Housing & Capital Projects
• Treaty
• Ts’ewulhtun Health Centre
INTERDEPARTMENTAL WORKING GROUPS
• Operational Leadership Team (OLT)
• Pandemic Response
• Public Safety Working Group
• Occupational Health and Safety Committee
• Opioid Crisis Response
OUR LONG-TERM OBJECTIVES
1 | Quw’utsun Mustimuhw are healthy and value their cultural identity
2 | All Quw’utsun Mustimuhw are gainfully employed in a manner of their choosing
3 | Cowichan Tribes is recognized as a leading organization and employer
4 | We are self-sufficient and self-governing to the fullest extent possible
5 | Quw’utsun Mustimuhw are learning Hul’q’umi’num’
6 | Our natural resources are managed and protected for current and future generations
OUR STRATEGY - THE COWICHAN FOUR C’S
As an organization, Cowichan Tribes is working to achieve its long-term objectives through the Four C’s:
CULTURE
Quw’utsun culture and identity are strengthened through efforts to advance self-governance, as well as language and education with the Quw’utsun Snuw’uy’ulh (teachings) guiding our actions and relationships.
COMMUNITY-FOCUSED
We are engaging regularly with our membership in a transparent way to build trust and empower active participation in the long-term success of our Nation.
COLLABORATION COMMITMENT TO RESULTS
We are working together respectfully and efficiently as a Nation and band organization to meet the needs of the Quw’utsun community in collaboration with our partners.
We are an accountable, transparent, and resultsoriented organization creating positive impacts for community members in alignment with the Comprehensive Community Plan.
EMPLOYEES AND HUMAN RESOURCES AT A GLANCE
The Human Resources (HR) team oversaw 85 recruitments over the year and supported 441 employees across 18 departments. Cowichan Tribes continues to be an affirmative action employer, with 74% of employees being Quw’utsun Mustimuhw and Hwulmuhw (status).
The department oversees Occupational Health & Safety across the organization, ensuring compliance with legislative requirements while placing a strong focus on the health and wellness of our employees. Over the past 12 months, HR met objectives through organizing and celebrating annual events and recognizing important days that promote staff wellness and tackle important subjects like isolation, mental health, social connection and cultural/spiritual health, such as:
• Men’s Health Week Event
• Pride March
• Pink Shirt Day
• National Day of Mourning
• BC Shake Out
• Employee Anniversary Recognition
• Staff to Staff Awards
In addition to several staff events, an employee appreciation luncheon was hosted in September, and a holiday luncheon in December.
The department re-initiated the yearly Staff to Staff awards in 2023, where all employees were invited to cast votes through a confidential survey at year end to promote, recognize, and celebrate each other’s successes. In addition to the teams’ numerous nominations, the HR Department and Sustainable Housing Department were voted “Outstanding Department” and the HR Director was voted “Most Supportive”.
HIGHLIGHTS FROM THE PAST YEAR
SUL-HWEEN (ELDERS) PROGRAM
• A new self-organized advisory committee was created by Cowichan Elders to provide input into the Sul-hween program.
• The monthly Good Food Bag program was launched to improve Elders’ access to affordable fresh fruit and vegetables.
GOVERNANCE
• The position of Director of Governance was created and filled.
• On September 15, 2024, a successful ratification vote was held for the Cowichan Tribes Custom Election Law.
• The first election under the rules of the Custom Election Law was held in March 2024.
• The new Council Code of Conduct was adopted.
• The Complaints and Appeals Board was established.
CHILD & FAMILY JURISDICTION
• On November 24, 2023, Cowichan Tribes citizens voted in favour of the Snuw’uy’ulhtst tu Quw’utsun Mustimuhw u’ tu Shhw’a’luqwa’a’ i’ Smun’eem (Laws of the Cowichan People for Families and Children).
KOKSILAH WATERSHED
• On May 12, 2023, Cowichan Tribes and British Columbia signed a government to government agreement, S-xats-thut tst, the Xwulqw’selu Watershed Planning Agreement, to create the province’s first Water Sustainability Plan.
LAKE COWICHAN WEIR REPLACEMENT
• Cowichan Tribes and the Cowichan Valley Regional District, as co-chairs of the Cowichan Watershed Board successfully advocated for provincial funding for a higher weir at Lake Cowichan. Discussions with the provincial government regarding water governance and liability solutions continue.
NEW YOUTH CLINIC
• A drop-in clinic for youth was started on the first and third Tuesday of each month between 3:30 pm to 5:30 pm at the Slhexun sun’ts’a’ Clinic, located at 121 Ingram Street.
YOUTH SERVICES
• The department launched an after school program Tuesday –Friday from 3:00 pm to 5:00 pm for ages 6-11.
KWUN’ATSUSTUL COUNSELLING
• A Men’s Group was established on Tuesdays at 6:00 pm to encourage men’s health and spiritual and mental wellbeing through positive relationships and activities.
• A new weekly Skw’wulwexe Women’s Circle was developed to provide a safe place for women to connect, share, heal, and grow together. The Circle is held on Tuesdays from 10:00 am to 12:00 pm.
PUBLIC WORKS
• A recruitment was started for a Director of Public Works to bring together the Capital Projects and Operations & Maintenance Departments.
• Waste Management: In September 2023, Chief and Council approved recommendations for the Cowichan Tribes Solid Waste Management Plan in support of greater public education, improved solid waste infrastructure, and stronger bylaws.
• Feasibility Studies: Capital Projects started feasibility studies for several community buildings, including a health centre, and a youth and recreation centre.
• Acquisitions: Capital Projects supported Lalum’utul’ Smun’eem with the purchase of two properties, including Gibbins Road Farm and 360 Duncan Street.
• New Education Facility: The Yuthuy’thut Adult Training (YTT)/ Quw’utsun Hu-yi’xwule’ (QHS) building was replaced with a modern structure that can accommodate future growth.
• Parking Facility: The River Road parking compound was enhanced with a paved surface, new fencing and lighting, and an electric gate to keep department assets secure.
32 UNIT BOYS ROAD HOUSING COMPLEX
• Tenants were able to move into their new homes and a ribbon cutting ceremony was held in July 2023.
EDUCATION
• Quw’utsun Syuw’entst Lelum (Culture & Education) welcomed a new Executive Director of Education.
• The Education Jurisdiction team made substantial progress on the development of the draft Education Law.
PUBLIC SAFETY WORKING GROUP
• A new Public Safety Working Group was created, chaired by Cowichan Tribes Acting CAO, with participation from Sustainable Housing, Emergency Services, Lulumexun, Human Resources, Communications, Indigenous Policing Services/ North Cowichan Duncan RCMP, City of Duncan, Municipality of North Cowichan, Fire, Ambulance, and Bylaw teams. The Working Group meets regularly to provide updates and discuss ways to work collaboratively to address shared community safety challenges.
SOCIAL DEVELOPMENT
• The Mel Shun Um Pre-Employment Supports team supported two groups of Social Development clients through their improved curriculum to help them move forward with their employment, education, and other goals. The first cohort had nearly 30 participants with approximately half continuing to completion. Five went on to full-time employment and one entered Post-Secondary Education. The second cohort of 35 participants started the program in January 2023.
COMMUNICATIONS
• The Cowichan Tribes communications app is available to citizens and can be found in the App Store and Google Play under Hawk Communications. The app is an effective way to receive updates and event information.
• The new Cowichan Tribes Department Guide was issued in Fall 2023 and Spring 2024.
EMERGENCY SERVICES
• Emergency Services was connected to the North Island 9-1-1 system to inform the department regarding local emergencies so they can assist when needed with specialized equipment and skills.
• A new Emergency Social Services volunteer team was created and training was provided to team members.
FIRST NATIONS DRINKING WATER SETTLEMENT
• A full-time clerk was available to assist affected citizens with filling out and submitting their claim forms prior to the March 7, 2024 deadline.
COWICHAN FOOD SOVEREIGNTY
Lulumexun is committed to enhancing our food sovereignty through multiple programs and projects including:
• Food fish distributions on April 13, 2023, August 16, 2023, and December 14, 2023; fish was also provided for numerous community events, and a draw for two elk tags was held in October 2023. There was also an Elders food distribution on June 28, 2023 of beef, chicken, and prawns.
• Projects to increase the presence of traditional estuarine and estuary-adjacent plants in the Cowichan Estuary, including as a partner in the Nature’s Trust of BC Cowichan Estuary Restoration project and work with Dr. Jennifer Grenz of UBC’s Indigenous Ecology Lab to document the Quw’utsun intertidal food system.
• Improving our citizens’ access to the marine foods through environmental monitoring, research, restoration, and advocacy programs.
PREMIER’S INNOVATION AND EXCELLENCE AWARD
• Congratulations to our Governance and Lalum’utul’ Smun’eem teams for their work with the BC Ministry of Children and Family Development in advancing Indigenous Jurisdiction in Child and Family Services and Bill 38Indigenous Self-Government in Child and Family Services Amendment Act. The Ministry was awarded a Premier’s Innovation and Excellence Award in the partnership category and Cowichan Tribes was recognized as part of the winning team for their contributions.
PRIORITY UPDATES
In this section we provide an overview of our Nation’s activities in these priority areas:
GOVERNANCE
COMMUNITY ENGAGEMENT
COMMUNITY SAFETY
INFRASTRUCTURE & HOUSING
PARTNERSHIPS
GOVERNANCE 01.
While there is no blueprint for how to re-exert our authority over our people and lands, Cowichan Tribes is a leading First Nation when it comes to advancing self-governance.
“We pursue this work to break the cycles of trauma so many of us have experienced under the Indian Act and colonial governments. We are guided by our culture, Elders, and leadership to ensure a better future for our community, with healthy, thriving families, lands, and waters.”
Stephanie Atleo, Director of Governance (November
2023)
TL’UQTINUS
For many years now, the Quw’utsun Nation Alliance has been in court to uphold our title to our village at Tl’uqtinus and our right to fish for food in the area. Historically, Quw’utsun Mustimuhw would conduct their winter activities from their villages in Cowichan Bay and the Cowichan Valley. In the spring, they would travel through the Gulf Islands to hunt and gather various resources, including herring, salmon, camas, and sea mammals, before moving to village lands on the Fraser River. Most would spend many months fishing, trading, and collecting other resources like reeds and berries before returning to their winter villages.
The Tl’uqtinus case was in session to hear oral arguments in Victoria June 19-30, 2023. Quw’utsun Nation Alliance Chiefs were in attendance to represent the member Nations. The Court also heard oral arguments at Duncan Courthouse July 5-7, 2023, and the Elders Program provided rides to our Elders to attend. In September 2023, Lulumexun chartered a boat to take our Elders and leadership across to see the Tl’uqtinus lands and to engage in prayer and ceremony. A decision in the case is expected in Fall 2024.
CHILD AND FAMILY JURISDICTION
On November 24, 2023, Cowichan Tribes citizens changed the trajectory of our Nation’s future by voting in favour of the Snuw’uy’ulhtst tu Quw’utsun Mustimuhw u’ tu Shhw’a’luqwa’a’ i’ Smun’eem (Laws of the Cowichan People for Families and Children). The successful vote paved the way for full jurisdiction over Child and Family Services to return to our Nation so we can govern our children and families guided by our snuw’uy’ulh (cultural teachings) and our family customs.
While Lalum’utul’ Smun’eem gained delegated authority over child and family wellness in 1996,
Raising our children our Quw’utsun way
“Generations of our children have experienced the trauma of removal from their families and communities and loss of language and culture through residential schools, the 60’s Scoop, and the colonial child welfare system. This historic vote sets our smun’eem (children) and future generations on a new path, one that ensures they are surrounded by their families, their Quw’utsun culture, tl’l’tul tst (love), and supports.”
Lydia Hwitsum, Past Chief (November 2023)
Basic support services will be available to all Cowichan Tribes families to strengthen family relationships, parenting and life skills, health care, language and culture. Additional support services will be offered to families facing challenges such as poverty, inadequate housing, substance misuse, or mental health issues. Other support services may include domestic violence programs, services for smun’eem with special needs, mediation, in-home support, respite care, and more.
The next steps for 2024-2025 include the creation of a Child and Family Services Authority: Stsi’elh stuhw’ew’t-hw tun Smun’eem (Honouring Our Sacred Children and Families) with a Board of Directors. The Board will appoint a CEO for the management of the Authority and implementation of our Law. Cowichan Tribes Council will have responsibilities to support the Authority, make regulations, and ensure it is functioning properly, but will not be involved in day-to-day operations or case decisions. Staff levels are expected to grow to nearly double that of Lalum’utul’ Smun’eem. Many of the new staff will concentrate on prevention and family support services.
For more information regarding our journey to reclaim authority over children and families, please visit: https://ourchildlaw. cowichantribes.com/
“We
can’t wait to begin the transition to our law and its holistic approach to family well-being and proactive supports to prevent situations requiring late stage intervention.”
Addie Price, Acting Director of Lalum’utul’ Smun’eem, Child and Family
Services
(November 2023)
CUSTOM ELECTION LAW
The work to develop and implement a Custom Election Law to guide how we select and elect our leadership has been underway since 2006. Cowichan Tribes has been engaging with community members to get their input through meetings, open houses, surveys, and door-todoor invitations to participate. The feedback that we received was used to create our own way of deciding our leadership, and moving away from a process that was imposed on us.
The final draft of the Custom Election Law was shared with citizens in June 2023. Information about the Law and engagement opportunities were provided through the Quw’utsun Newsletter, on our website, and through our social media channels. A series of events for community members to learn more and ask questions was held over the course of the summer. Online voting took place between August 30 and September 15. The in-person vote was held September 15, 2023.
The successful ratification vote was a major accomplishment for our Nation and moves us another step away from the Indian Act. The Custom Election Law increases council terms to four years, updates eligibility requirements, and creates clearer process for managing electoral issues and Chief and Council complaints with the creation of an independent Complaints and Appeals Board.
Custom Election Law: https://cowichantribes. com/election-code
Complaints and Appeals Board: https://www. quwutsunappeals.ca/
Between January and March 2024, the first Chief and Council nomination process and election was held governed by our new Custom Election Law.
EDUCATION JURISDICTION
An Education Declaration was prepared through the Sul-hween Committee to ensure the development of our education law is grounded in our Snuw’uy’ulh, customs and traditions. The development of the education law has been proceeding with input from the Education Jurisdiction Working Group. The working group began development of the law to direct the implementation of education jurisdiction on October 30, 2023.
The law will outline responsibilities of a Quw’utsun Syuw’entst Lelum Board to oversee the delivery of education for Cowichan Tribes. The education law will establish accountability for education on Cowichan land and will include:
• Guiding principles
• Rights and duties of students, and parents, and a parents committee
• Access to education programs
• Authority and jurisdiction of the Quw’utsun Syuw’entst Lelum Board
• Collaboration with the First Nation Education Authority on matters of teacher certification, development of curriculum and course approval, graduation requirements, and school certification
• Provisions related to finance, school property, liability; and employees of the Quw’utsun education system; and
• An appeal process.
The draft education law will be reviewed by the Culture and Education Committee and move forward to Chief and Council. The final phase, expected in fiscal year 2024-2025, will provide Cowichan citizens with opportunities to review, provide input, and vote on the ratification of the new education law as outlined in the Education Law-Making Protocol of Cowichan Tribes.
XWULQW’SELU SUSTAINABILITY AGREEMENT
On May 12, 2023, Cowichan Tribes and the Province of British Columbia signed an historic agreement to enter a co-governance relationship. The signing of the S-xats-thut tst (We Agree) -Xwulqw’selu Watershed Planning Agreement recognizes Cowichan Tribes and the province as equal authorities with distinct legal traditions and responsibilities, and lays the foundation for the work ahead. Next, the parties will develop a Water Sustainability Plan, the first of its kind in the Province.
This Agreement and the Water Sustainability Plan recognize Quw’utsun Hwulmuhw Mustimuhw legal traditions and unextinguished rights and serve as a tool to have a hard look at our relationship to resources in the watershed, such as water and land use.
The Agreement calls on everyone in the Quw’utsun community, including our citizens, Cowichan Valley residents, local food producers, industrial organizations, and more, to come together for the betterment of the watershed. There are 11 principles based on Quw’utsun snuw’uy’ulh guiding the work ahead. The first principle speaks to the necessity of working collaboratively: Nats’amat kws yaay’us ‘utu qa’ – We come together as a whole to work together to be stronger partners for the watershed.
Leadership from Cowichan Tribes and the Province gathered along the Xwulqw’selu Sta’lo, grounding this work within the greater Quw’utsun Watershed. Both authorities discussed the significance of entering this Agreement and spoke about the respective commitments made by each party. The agreement signing and lunch celebration was held at the Quw’utsun Cultural and Conference Centre.
For more information about this work, please visit: https://www.koksilahwater.ca
“The Xwulqw’selu watershed is under pressure and we know the current path is not sustainable - for fish, for the ecosystem, or for people. We need to come together to develop a plan that protects the watershed’s health and sustains Cowichan Tribes and the Cowichan Valley communities for generations to come.”
Lydia Hwitsum, Past Chief
(May 2023)
COMMUNITY ENGAGEMENT 02.
Cowichan Tribes is committed to diverse, frequent, and meaningful community engagement to inform our work. There are many ways that we connect with and seek input from community members, including through our communications channels, events, and more formal feedback methods like surveys, committees, advisory groups, ratification votes, and elections.
QUW’UTSUN NEWSLETTER IMPROVEMENTS
This fiscal year, significant changes were made to the Quw’utsun Newsletter. Printed copies of the monthly Quw’utsun Newsletter are delivered to homes on Cowichan Tribes’ reserves and are available in our departments and at the Si’em Lelum Gym. Changes were made to the newsletter delivery process to ensure it is delivered at the beginning of each month. We raise our hands to our Landscape Crew for performing this important work to ensure our citizens receive their newsletter in a timely manner. Citizens that subscribe to the Quw’utsun Newsletter receive a digital copy via email. The Quw’utsun Newsletter is also shared on Cowichan Tribes’ Facebook page, app, and website.
New this year, was the creation of our Fall and Spring Department Guides to provide information about each Cowichan Tribes department and their regular, ongoing programs and services. It is intended to be kept as a handy reference guide until the next edition. This move also addresses community feedback to ensure the Quw’utsun Newsletter is a shorter, more compelling read, featuring updates regarding key initiatives, employment and training opportunities, seasonal information, events, and workshops.
LAUNCH OF THE COWICHAN TRIBES COMMUNICATIONS APP
Cowichan Tribes was one of the early Nations to sign on for the Hawk Communications App developed by Hawk Communications and Naut’sa mawt Tribal Council, and funded by Indigenous Services Canada. We have had the opportunity to provide feedback and influence the development of new features. The App is a new tool to assist our citizens with staying up to date on updates and events. The benefit of the app is that it is a more direct communications link to our citizens than social media, which can be inconsistent in sharing information with interested followers. The app is available to Cowichan citizens by searching for Hawk Communications in the App Store and Google Play.
SURVEYS
Hul’q’umi’num’ language survey: Quw’utsun Syuw’entst Lelum (Culture & Education) conducted a survey to shape how Hul’q’umi’num’ language education is delivered in our schools and community. The responses from Elders, citizens, youth, and staff provided valuable input and an improved understanding of community priorities regarding language and culture revitalization.
Community Health & Wellness Survey: The Ts’ewulhtun Health staff engaged with citizens to develop a new Community Health and Wellness Plan for the next 10 years. Community Health Representatives visited homes, met with Elders, and attended events to help gather survey responses and ensure citizens ideas and priorities guide how health programs and services are provided. The completed plan is expected in the 2024-2025 fiscal year.
Land & Marine Plan Survey Findings: The results report for the Land & Marine Use Plan Survey were released. The survey results will guide policies and future development and land use in our territory.
COMMUNITY ENGAGEMENT SESSIONS
Community engagement sessions provide opportunities for citizens to gather to learn more about priority initiatives, provide feedback, and ask questions. Extensive community engagement was undertaken as part of the development, public education, and ratification processes for the Custom Election Law and Child and Family Wellness Legislation Project.
To make the voting process as easy as possible for Cowichan citizens, online voting is available for two weeks via OneFeather and in person voting is available on voting day.
Custom Election Law Ratification Vote Results
Child and Family Law Ratification Vote Results
Voted YES 347 Voted NO 69 Voted in favour
FEATURED EVENTS
Each year, Cowichan Tribes departments host dozens of special events, workshops, training sessions, community meetings, information sessions, vaccination clinics, camps and fun activities for youth and children, and much more. Here are just a few of the events that took place this year:
Trick or Treating at
Love Out of the Shadows for families struggling with substance misuse
April 27, 2023
Annual Audit meeting (in person and Zoom)
October 18, 2023
Island Elders’ Lunch
May 31, 2023 Honouring Community Grief
June 14-16, 2023
Annual Open House
May 17, 2023
Halloween Party at Si’em Lelum Gym
October 31, 2023
Child and Family Law Ratification Vote
November 24, 2023
“Tl’i’stamu tsun” (I hold you dearly)Holding Our Children Through Grief and Loss
October 14-15, 2023
Pre-Term Birth Study Community Presentation
October 11, 2023
Coats for kids
October 5, 2023
Grief & Loss Workshop
November 28, 2023
Quw'utsun Community Christmas Dinner
December 6, 2023
Christmas Hamper Delivery to Elders and Families
December 8, 2023
Hul’q’umi’num’ Christmas Concert
December 15, 2023
National Indigenous Peoples Day
June 21, 2023
Cowichan Valley Pride March
June 25, 2023
The Occupational Health and Safety Committee hosted this opportunity for our staff. Cowichan Tribes is an inclusive employer and we were pleased to support this event.
Custom Election Law Ratification Vote
September 15, 2023
Opioid Awareness Day
August 31, 2023
Back to School Backpacks
August 24, 2023
December 21, 2023
Walking Together to Connect with Community (Co-hosted by Ts'ewulhtun Health and Indigenous Policing Services)
March 7, 2024
Boys Road Complex Ribbon Cutting Celebration
July 19, 2023
Embracing Life Summer Family Movie Nights
July & August 2023
Hosted Tribal Journeys Paddlers
July 20-21, 2023
We welcomed travelers at Tl’ulpalus Beach, transported them to Si’em Lelum Gym and Fields where they stayed overnight and were provided with supper and breakfast. Huy tseep q’u to our staff and volunteers for helping us host the paddlers in a good way.
Chief and Council Inaguration Livestreamed on Facebook
March 13, 2024
Brock Gowanlock Jersey Presentation with the Grey Cup and Youth Flag Football Clinic
March 18, 2024
March 18-22, 2024
Elders Elvis Christmas Dinner
Hip Hop Cowichan Spring Break Camp
NAIG ATHLETES RECOGNITION
On August 17, 2023, Cowichan youth who competed at the 2023 North American Indigenous Games (NAIG) in Halifax were honoured at a special dinner and ceremony hosted by our Youth Services Department. Athletes were recognized for representing our community at this international competition, their commitment to their sports, and their exceptional athletic and leadership skills. We are so proud of these athletes!
Athletes in attendance:
• Shiloh Louie - U16 Girls Soccer, Gold
• Ava Jack - U16 Girls Soccer, Gold
• Lucetta Wilson - U16 Girls Soccer, Gold
• Ethan Wilson - U16 Boys Soccer, Gold
• Noah Gray - U19 Boys Canoe/Kayak, 1 Gold, 3 Silver, 1 Bronze
• Kaitlyn Atleo - U19 Girls Soccer, Bronze
• Myles Paige - U19 Boys Soccer, Gold
• Kiona Williams - U14, Girls Basketball
• Olivia Johnny - U19 Girls Soccer, Bronze
Athletes not in attendance:
• James Sullivan - U16 Boys Soccer, Gold
• Miranda Beatsen - U16 Girls Soccer (Team Manitoba)
• Ethyn Williams - U19 Boys Basketball, Bronze
• Ellashani George - U19 Girls Canoe / Kayak 2 Gold, 1 Silver, 2 Bronze
NEW ADVISORY OPPORTUNITIES
ELDERS
Sul-hween program staff supported Elders with the creation of their own volunteer Advisory Committee to provide input into the Elders Program.
The nomination meeting was on May 5, 2023, with voting one week later on May 12, 2023.
The Advisory Committee is comprised of the following:
• Chair & Treasurer - Ed Elliott
• Vice Chair - Sharon George
• Fundraising - Georgina Crocker
• Communications - Merle Seymour
• Member at Large - Lemo Smith
XWULQW’SELU STEWARDSHIP COMMUNITY GUIDANCE GROUP
Over the summer, Lulumexun put out the call for citizens to apply to serve on the Xwulqw’selu Stewardship Community Guidance Group to ensure the Watershed Planning Process and the Riparian Guardians program are grounded in the priorities of Quw’utsun Mustimuhw.
The Guidance Group will:
• Share stories, knowledge, language, ideas, and learn about ways to practice syuw’entst and Snuw’uy’ulh in the Xwulqw’selu watershed.
• Discuss and offer guidance on questions related to the watershed, and its stewardship, and use by Quw’utsun Mustimuhw.
• Help to spread the word about these initiatives and connect with Quw’utsun Mustimuhw.
• Learn about and consider other interests in the watershed.
The group meets six times per year and is comprised of youth, Elders, and community members with connections, knowledge, and interest in the Xwulqw’selu watershed. Guidance Group members include: Philomena Williams, Jedson August, Samuel George, Joe Elliot, and Jared Williams. They are supported by the Lulumexun Director and facilitation team members.
COMMUNITY SAFETY
MMIGW WALK
Cowichan Tribes takes issues impacting the safety of our citizens very seriously. On May 5th, we co-hosted a walk in partnership with Tsow Tun Le Lum Society in honour of the National Day of Awareness for Murdered and Missing Indigenous Women and Girls. Huy tseep q’u to the hundreds of supporters who joined us.
PUBLIC SAFETY WORKING GROUP
In fall 2023, Cowichan Tribes Acting CAO established a new Public Safety Working Group, with participation from Sustainable Housing, Emergency Services, Lulumexun, Human Resources, Communications, Indigenous Policing Services/North Cowichan Duncan RCMP, City of Duncan, Municipality of North Cowichan, Fire, Ambulance, and Bylaw teams. The Working Group meets regularly to provide updates and discuss ways to work collaboratively to address shared community safety challenges.
CALL TO ACTION
Following the tragic loss of a youth with ties to our community in May 2023, Cowichan Tribes issued a call to action on community safety and an appeal for anyone with information to report it to the RCMP. Cowichan Tribes issued personal safety recommendations and departments provided counseling supports and resources to community members.
In addition, a community meeting with North Cowichan Duncan RCMP and Indigenous Policing Services was held on June 29th. The meeting was an important opportunity for our people to gather and talk about how we can work with RCMP and IPS to reduce crime and increase community safety. Attendees shared their experiences and how drugs and crime in our community are affecting them and their families.
“Too many of our community members have experienced the unspeakable loss of a family member at a young age. We need to work together community-wide to combat crime and demand safety by reporting any and all suspicious activities to the RCMP.”
Lydia Hwitsum, Past Chief (May
2023)
EMERGENCY SERVICES
This year, the Emergency Services department’s mandate expanded beyond emergency planning and preparedness and the department’s name changed from Emergency Management to Emergency Services. With growing expertise and equipment capacity, the team is now providing additional services, and preparing for, and responding to, more types of emergencies.
CONNECTION TO 9-1-1
A major accomplishment this year was the Emergency Services department’s connection to the North Island 9-1-1 system for real-time notification regarding emergency events (fire, medical, and rescue) within Cowichan Tribes lands. This new service notifies the department regarding local emergencies so they can assist when needed with specialized equipment and skills. Department staff also provide timely updates to leadership and support to citizens. The team has radios, pagers, and computers to coordinate an effective response while in the field. They have already attended several emergency events that required services and support (such as heavy equipment and evacuee support services) beyond traditional fire and medical services. The 911 connection does not replace any current services being provided under contract by organizations such as the British Columbia Ambulance Service or local fire departments.
WILD FIRE
Emergency Services was pleased to be able to deploy a team member to provide assistance with structural coordination efforts to protect homes and businesses in Westbank First Nation territory, West Kelowna, and Kelowna. We raise our hands to all of the emergency responders, including Khowutsun Forest Services for lending their support to fight the devastating fires across the province.
EXTREME WEATHER CENTRES
The Emergency Team activated a Cooling Centre for our community members during a heat warning from August 14-17, with the support of staff from Si’em Lelum Gym, Capital Projects, Human Resources, and Communications. Open from 10:00 am to 8:00 pm at the Si’em Lelum Gymnasium, and offering water, Gatorade, fruit and snacks, the Cooling Centre was greatly appreciated by approximately 120 families, Elders, and youth. Film and construction crews from nearby projects were especially grateful to have a cool spot to take a break while working outdoors.
While Cowichan Tribes does not have any available infrastructure to provide overnight shelter in extreme weather, our departments actively supported advocacy efforts alongside local services organizations for a regional extreme weather shelter. Over the winter, the Cowichan Valley Regional District was able to activate a temporary shelter at the Cowichan Community Centre during weather conditions that met provincially mandated requirements. Cowichan Tribes provided information on our communications platforms regarding extreme weather shelter availability.
MARINE RESPONSE
Cowichan Tribes took proactive measures following the sinking of a wooden trawler in Cowichan Bay on July 11, 2023. Staff from Cowichan Tribes’ Oil Spill Response program and Emergency Services teams worked closely with the Canadian Coast Guard and a local contractor to assess the scene, both by vessel and drone.
The Coast Guard directed a contractor to deploy absorbent pads and containment boom around the spill site. Contractors noted the vessel did not have an engine, and as a result limited amounts of fuels were aboard. Cowichan Tribes’ crew, with support from Malahat Nation and Pauquachin Nation, proactively deployed a protection boom (a floating barrier) to safeguard Tl’ulpalus beach from contamination. Tl’ulpalus beach requires protection for our canoe paddlers and to support the restoration necessary for the site to one day re-open for community shellfish harvesting.
PUBLIC EDUCATION
On May 6, 2023, our Emergency Services team took part in the Cowichan Emergency Management Preparedness Expo. They joined Cowichan Search and Rescue, municipal fire departments, FireSmart, RCMP, BC Wildfire Service, Royal Canadian Marine SAR and ShakeOut BC. The Emergency Management team received positive feedback on how well prepared they were and the great information they provided to the community.
Emergency Services also participated in the Cowichan Tribes Open House and National Indigenous Peoples Day celebration. Their displays featured equipment available to respond to emergency events. They also spoke with citizens regarding emergency plans and ways they can prepare themselves and their families, such as practicing fire drills and having a grab and go bag.
Emergency Services also participated in Fire Prevention Week from October 8-14, 2023 with a visit to Lelumuylh Daycare. They provided each student a bag with fire safety materials that included: an activity coloring book, home escape planning sheet, stickers, tattoos, home fire safety pamphlet, and their own personal fire helmet.
EMERGENCY SOCIAL SERVICES
In November and December 2023, Emergency Services put out the call to the community for volunteers for the department’s new Emergency Social Services team. With the activation of an Emergency Operations Centre, the Emergency Social Services team will assist community members with applications and other paperwork for funding support for food, clothing, lodging, and transportation.
The team also provides emotional support. Volunteers participate in paid training sessions monthly and the service is expected to be ready at the end of 2024. This team has further been supported with several Union of British Columbia (UBCM) Grants totaling $60,000.
EMERGENCY PLANNING AND PREPAREDNESS
• In preparation for flood season, the Emergency Services team provided selfserve sand bag stations at the Clem Clem and Quamichan Big Houses.
• The Emergency Services team completed the build out of a wildfire structural protection trailer to the British Columbia Wildfire Service Standard. Cowichan Tribes has deployed this trailer to support regional activities.
• A new Emergency Support Services container was placed at the gym to hold emergency reception centre items such as cots, and sleeping bags to support community during mass evacuations.
• The team also updated the Hazard Risk Vulnerability Assessment for the community.
TRAINING OPPORTUNITIES
All-terrain vehicles: Emergency Services and Lulumexun worked in collaboration to conduct training for all-terrain vehicles.
Tiger Dam Training: In preparation for the winter storm season, Cowichan Tribes staff and contractors received additional training and practice in setting up Tiger Dams - a tool that protects buildings and infrastructure in the event of flooding.
Incident Command Training: In an effort to enable cohesive and standardized responses to emergency responses in our community, Cowichan Tribes Emergency Services
hosted training in Incident Command Systems (ICS) levels 200 and 300 in November 2023 for their staff as well as Administration and Lulumexun.
Spill Response and Hazardous Waste: Over four days in February 2024, local partners from Cowichan Tribes, Stz’uminus First Nation, RCMSAR Unit 34, North Cowichan Fire Department, and Western Canada Marine Response Corporation (WCMRCO) gathered to learn and collaborate.
The first course was Basic Marine Oil Spill Response which covered how to:
• Properly assess oil spills
• Identify different types of spills and the corresponding response options
• be safe around these types of incidents
A second course was offered to certify responders in Hazardous Waste Operations and Emergency Response (HAZWOPER).
Lulumexun: To improve the crew’s ability to respond to emergency situations and monitor and protect Quw’utsun Tumuhw, the S-hwuhwa’us Thi’lut Kw’atl’kwa team dedicated the winter months to comprehensive training, both in-class and practical. Training included:
• Marine certifications for vessels up to 15t
• Swift Water Rescue and Swift Water Awareness certificate.
INFRASTRUCTURE & HOUSING
NEW INFRASTRUCTURE
Youth, ages 12-17, participating in the Quw’utsun Hu-yi’xwule’ Skwoulew’t-tw’ (QHS) Middle School and adults from the Yuthuy’thut Adult Training (YTT) program now enjoy a bright and modern facility. In Hul’q’umi’num’, Quw’utsun Hu-yi’xwule’ means “Cowichan Young Eagles” and Yuthuy’thut means “preparing one’s self.”
The new building is comprised of six modular units and combined to form a single building with three large classrooms, a student kitchen with eating space, larger student washrooms, and an enhanced front entry with a seating area for guests, staff offices, and a staff room. The project was designed to accommodate a second floor and included water main and BC Hydro service upgrades.
“The previous building had outlived its lifespan. This is a forward thinking project, with room to grow as our enrollment increases. Huy tseep q’u to the Cowichan Tribes Capital Projects team for managing the construction of this wonderful new facility for us. We are excited about the growth that will follow the passing of our Education Law and setting up our Education Authority,”
Roxanne Harris, Executive Director of Quw’utsun Syuw’entst Lelum’ Culture and Education Centre
PARKING COMPOUND REPLACEMENT
This year, the River Road parking compound shared by Administration, Emergency Services, Lulumexun, Sustainable Housing, Ts’ewulhtun Health, and Lalum’utul’ Smun’eem received a major facelift. Our departments have important equipment that they need to mobilize quickly, including trailers for emergency events. The parking compound was repaved, received new fencing, and an electric gate was installed. Additional security features were added to ensure the vehicles our teams need to support our community are safe.
LOW PRESSURE SEWER STEP SYSTEM
Construction was completed for the Low Pressure Sewer Project – Zones 1,2,3,4,5-2. Zone 1 (Shmaqwathut Road), Zone 2 (Glenora Road), Zones 3 (Koksilah Road), and Zone 4 (Boys Road Area) have all been successfully connected to municipal sewer and are operational. The next area to be connected to a Low Pressure Sewer system is Zone 7 (Lhumlhumuluts’). Construction is expected to begin in Spring 2024.
BOYS ROAD COMPLEX
While the majority of construction was complete in early 2023, tenants were able to move during the late spring and we celebrated with a ribbon cutting ceremony in July. Huy tseep q’u to all the hands that got the project over the finish line, creating 32 brand new homes for Quw’utsun Mustimuhw. There are a variety of units, including studios, one bedrooms, and two bedrooms to accommodate families, Elders and young people. Sixteen units are rental units managed by the Sustainable Housing Department and 16 one-bedroom units are for Lalum’utul’ Smun’eem to support young moms and youth as they age out of care. There is also a multi-purpose space with a kitchen, as well as a water fountain, playground, sport court, and public washroom facilities.
ACQUISITIONS
Lalum’utul’ Smun’eem and the Administration Department acquired the land and building located at 360 Duncan Street. With support from Capital Projects, the property was purchased in December 2023 to be used by Lalum’utu’ Smun’eem for programming in support of their Child and Family Wellness Legislation.
The building has a commercial kitchen, office space, and retail space which will be utilized for programming as well as (20) studio suites and (1) one-bedroom suite to be used for children who are aging out of care. There are two additional commercial tenants who will remain in the building.
This marks the third property acquisition supported by Capital Projects in 2023, with additional property acquisitions on Gibbins Road and Highfield Road. These sites will also support Lalum’utul’ Smun’eem.
ONGOING AND FUTURE INFRASTRUCTURE PROJECTS
• Allenby Road Project with the BC Ministry of Transportation & Infrastructure (MOTI)
• Low Pressure Sewer Project Zone 7
• Boys Road (Subdivision) sewer/water and community improvements
• Ts’alha’um Water System (Tzart-lam IR#5 Riverbottom Road)
• Water and/or sewer projects for Miller Road, Club Road, Quamichan Road West, Jack Road, and Ryan Road
• River Road Stormwater
• Asset Management Project
• Boys Road Flood Risk Assessment
ONGOING AND FUTURE COMMUNITY DEVELOPMENTS
• Mini-Pitch installation
• Longhouse inspections
• Band Office parking lot and landscaping updates
• Administration building redesign
• Youth and recreation centre
• Health centre
• Koksilah Nursery-Fish Freezer and Community Smokehouse
• Quw’utsun Smun’eem Elementary expansion
• Kilpahlas Beach Master Plan
• Administration Building roof replacement (2025)
• Genoa Farm Treatment Centre
• Office space for Public Works and Emergency Services
SUSTAINABLE HOUSING AT A GLANCE
87% of homes were built between 2000-2023
661 H OMES ON COW ICHAN T RIBE S LAN D 182 OF THE SE HOM ES ARE RE NTAL UNITS THE RE A RE Private Certificate of Possession Private Elder Certificate of Possession
AN ESTIMATED OF 5.9 MILLION IS NEEDED TO MANAGE THESE RENOVATION REQUESTS 80+ RENOVATION REQUESTS HAVE BEEN SUBMITTED TO THE SUSTAINABLE HOUSING DEPARTMENT
73% of the homes on-reserve are Certificate of Possession
82% of homes on-reserve have 3 or more bedrooms
A recent survey suggests that 66% of citizens who live off-reserve would prefer to move to Cowichan Tribes land.
29 UNITS WERE ADDED TO THE HOUSING STOCK IN 2023
HOUSING AND HEALTH
Members have identified access to affordable and safe housing as a key indicator of good health. Lack of housing was o en associated with addiction and mental, physical, and emotional harm.
HOUSING PROJECTS
• The Canadian Mortgage and Housing Corporation Special Contribution Roofing Project: total of $520,259 for 28 roofs, which included one complete interior demo/ repair ($110,000). The Cowichan Tribes own source revenue contribution to that was approximately $50,000.
• There were 53 citizens working through the On-Reserve Housing Loan Program (ORHLP).
• One private home was completed through the ORHLP.
• One private home was under renovation through the ORHLP.
MAINTENANCE FOR RENTAL UNITS
• Repairs: Three rental units underwent repair due to significant tenant damage. One home required $78,000 for repairs.
• Appliances: Spent $55,850 repairing or replacing appliances in rental units, many of them before life expectancy due to tenant damage and pest damage.
• Pest Control: Spent $22,873 on pest control.
BEHIND THE SCENES
• Sustainable Housing Department staff along with legal counsel continued to diligently work through the Cowichan Tribes housing policy. It is expected to be adopted in the fall of 2024.
• Department staff and Housing Committee members started updating the committee terms of reference to reflect best practice and enhanced service to citizens. The Terms of Reference are expected to be adopted by Chief and Council the fall of 2024.
• Housing staff continued to be committed to collaboration through open and clear communication and interdepartmental meetings.
PARTNERSHIPS 05.
Internal and external partnerships are essential to meeting our longterm goals relating to physical, mental, cultural, environmental, and economic wellbeing.
Here are three examples of the partnerships that Cowichan Tribes is involved in on behalf of our citizens.
LAKE COWICHAN WEIR REPLACEMENT
Successful advocacy for the river and all it sustains
Significant groundwork has been done over the past 30 years by Cowichan Tribes, the Cowichan Watershed Board, Cowichan Valley Regional District (CVRD), and community groups in the region to gain support for a higher weir. A water use plan, engineering, feasibility and design, and an upstream impact assessment were all completed prior to this year. A federal infrastructure grant had also been secured. All that remained was for the provincial government to provide funding and collaborative government-togovernment partnership regarding liability and licensing for this vital project to move forward.
In July 2023, an estimated 84,000 juvenile salmon and trout died due to a low water flows, high temperatures, and other contributing factors. By September 2023, the Quw’utsun Sta’lo’ (Cowichan River) had to be supported by 20 pumps for 39 days to keep water flowing from the lake over the existing weir.
“The well-being of our territory and our people, our Quw’utsun Mustimuhw, is inseparable from the well-being of the Quw’utsun Stal’o. I am pleased to recognize the provincial government for this essential funding to replace the Lake Cowichan weir, which combined with federal funding, will support more suitable water flows for the river, salmon and wildlife, and our communities. We will continue to work with the Province to develop a collaborative and sustainable water-governance model to ensure the health of the watershed well into the future.”
Chief
Cindy Daniels (March 2024)
Over the course of 2023, Cowichan Tribes and the CVRD, as co-chairs of the Cowichan Watershed Board, ramped up their advocacy campaign to secure provincial funding for the Lake Cowichan Weir Replacement. Through a series of letters and meetings with the province, Cowichan Tribes leadership emphasized the importance of the provincial government coming on board to raise the weir at Lake Cowichan.
As part of the 2024 BC budget, $14 million was announced for the weir replacement which is essential to provide adequate flows of water to sustain the health of the river and all the living creatures that rely upon it. We look forward to the next steps with the province in advancing liability protection, and a collaborative approach to water governance that respects Cowichan Tribes inherent rights.
NEW FOUNDATIONS WITH COWICHAN HOUSING ASSOCIATION
Cowichan Tribes and Cowichan Housing Association (CHA) secured $800,000 in grant funding through Infrastructure Canada’s Reaching Home program administered by the United Way of BC.
The funding is in support of the New Foundations project which will provide recovery housing for adults on their healing journey.
The project has two phases, the first of which was to acquire a suitable property. The first phase was completed this year with the purchase of the New Foundations site at 447 Festubert Street in Duncan by CHA. The second phase is to develop the property into housing and will proceed in subsequent years.
COWICHAN ESTUARY RESTORATION PROJECT
The Cowichan Estuary Restoration Project is led by the Nature Trust of British Columbia (NTBC), with project partners including Cowichan Tribes, Ducks Unlimited Canada (DUC), the BC Ministry of Water, Land and Resource Stewardship, BC Ministry of Forests, Fisheries and Oceans Canada (DFO), Environment and Climate Change Canada (ECCC), and Habitat Conservation Trust Foundation.
Once complete, the restoration project will reestablish over 70 hectares of natural tidal marsh. The restored marshland will help conserve biodiversity by increasing habitat for juvenile salmonids, birds, and other wildlife species. The project is intended to revitalize the Cowichan Estuary and increase its resiliency to sea-level rise in our changing climate. Maximum flood levels will be reduced and the estuary’s ability to dissipate storm surge will improve, benefiting local communities now and into the future. Specifically, modeling has shown that the removal of the dyke will not increase seasonal flooding of Cowichan lands.
2023
Preparations for the removal of the Dinsdale Farm dike were completed, including raising Lochmanetz Road and the farm access road, construction of distributary channels, and preliminary work on the flood fringe forest.
Khowutzun Development Corporation (KDC} was contracted to conduct work as part of Phase 1.
The Cowichan Estuary Restoration Project aligns with Cowichan Tribes’ long-term goals of:
• Invasive species removal and habitat restoration.
• Reintroduction of native plant species and honouring traditional agricultural practices.
• Ensuring a healthy Cowichan Chinook Salmon population.
• The return of a healthy and abundant shellfish harvest.
• Advancing food sovereignty for Quw’utsun Mustimuhw.
We look forward to continuing to support this project’s progress in 2024.
2024
The Dinsdale Farm dike will be removed. The flood fringe forest restoration area along Cowichan Bay Road and sediment augmentation works at Koksilah Marsh will also be completed. The remnant agricultural dike will be removed at Koksilah Marsh.
We recognize the governments, government agencies, and diverse organizations we partner with
Xwulqw’selu Connections YSTAR Discovery Youth
FINANCIAL REPORT
MESSAGE FROM OUR CHIEF FINANCIAL OFFICER (CFO)
I am pleased to present the Cowichan Tribes’ financial report for the year that ended March 31, 2024. The financial statements are the responsibility of management and the information is prepared and provided pursuant to the Cowichan Tribes’ Financial Administration Law. Cowichan Tribes maintains effective internal accounting controls and governance and operational policies. We also have procedures designed to safeguard assets and provide reliable information for presentation to our stakeholders, as well as decision-making by Chief and Council and senior staff.
We continued to achieve governance milestones including:
• The adoption of Cowichan Tribes’ Custom Election Law in January 2024.
• Our first full year of operation under the Shtunni’s Tu Hwulmuhw, the new Citizenship code and regulation.
• Signing the Xwulqw’selu Watershed Planning Agreement with the province. It is BC’s first watershed planning process under the Water Sustainability Act.
• Successful ratification of our law assuming jurisdiction over Child and Family Services.
Tenant occupation of the new 32-unit residential apartment building on Boys Road started in June 2023. This is Cowichan Tribes’ first residential building with focus on up to 2-bedroom style homes rather than the traditional 3-to-5 bedroom homes to accommodate the different lifestyle needs of citizens. One of the three buildings is dedicated to the families that are supported by Lulum’utul’ Smun’eem. The total cost of project was $9.3M and we received a $4M contribution from CMHC towards the project under the Rapid Housing Initiative.
Our community continues to face challenges on the illicit drug crisis and community safety concerns. The Opioid Crisis Working Group continues to partner with various stakeholders in Cowichan Valley to find the support for those who are affected.
The projects we completed and those underway could not have advanced without the collaborative relationships we have established among our citizens, elected leaders, staff, and various stakeholders; we are grateful for everyone’s efforts and willingness to partner.
I would like to thank Chief and Council for their guidance and vision to make Cowichan Tribes a better place for our citizens. I would also like to applaud the entire Cowichan Tribes’ staff team for their dedication and adaptability in fulfilling their duties. Despite challenges and uncertainty, we were able to continue to make progress on our strategic plan while continuing to provide services. I look forward to continuing to accomplish great things together.
Yui Tromp, CPA, CA Chief Financial Officer
FINANCIAL HIGHLIGHTS
REVENUE EXPENSES LONG-TERM DEBT INVESTMENT IN NATION BUSINESSES
Revenue in the current fiscal year has increased modestly (1%) compared to the prior year while still maintaining an upward trend as shown over the past five years. Notably, an additional $7.3M was added to deferred revenue (i.e, capital funds received but not yet spent) in the year, which will further increase revenue in subsequent years.
Although Cowichan Tribes still relies heavily on funding from external funding agencies, there continues to be an increase in economic development activities by Cowichan owned businesses.
Expenditures increased by 20% compared to the prior year. This increase was budgeted and is the result of working towards objectives outlined in the strategic plan. Wages and benefits continue to account for roughly 30% of total expenses, consistent with years prior, and there was also an increase in consulting and contracted services ($4M) as projects progress.
Overall, Cowichan has continued to increase its investment in economic development activities, education initatives, child and family services, housing maintenance, capital projects, civil services, emergency services, healthcare, policy development, and implementation and capacity building to continue to work towards goals set out by our citizens.
Long-term debt has decreased by $0.9M compared to prior year. 66% of the outstanding debts are non-housing debt and are related to economic development initatives. Subsequent to yearend, in June 2024, the $7.9M loan from First Nations Finance Authority was repaid in full.
Cowichan Tribes will continue to renew the mortgages with the All Nations Trust, who provides loans for our CMHC project homes at lower interest rates than compare to standard banking loans.
Investments in our Nation’s business enterprises have had an overall net positive return ($1.4M) with the exception of Costa Canna Production LLP (-$3.1M). When combining the profits and losses of all entites, a net loss of $1.7M results.
Notable investments include net profits for Khowutzun Gaming Corporation ($1.6M), Khowutzun Forest Services LP ($0.8M), and Quw’utsun Kw’atl’kwa Fisheries LP ($0.8M). There were net losses for Mustimuhw Information Solutions Inc. (-$1.1M) due to investment in research and development and Costa Canna Production LLP which had operating losses from 2022/23 and 2023/24 picked up by Cowichan Tribes in the current year.
ECONOMIC DEVELOPMENT UPDATES
MUSTIMUHW INFORMATION SOLUTIONS INC
Mustimuhw is a fully owned and governed Cowichan Tribes business. Mustimuhw builds, maintains, and sells software applications that support community service delivery in the areas of health and child and family services. The software Mustimuhw creates is used in support of hundreds of First Nations across the country. Active in seven provinces, Mustimuhw continues to experience year-on-year customer and revenue growth since the company’s creation in 2014. Gross annual revenue this year was $4.5 million.
Mustimuhw had a productive year. This includes completing a multi-year Digital Supercluster Project to advance a new software platform that leverages modern technology to support Nations in managing their information to greater benefit. Work on this platform will continue over the next two years. In support of this effort, a partnership was developed with Trinity Western University’s Nursing Department to engage community knowledge keepers to better understand First Nation models of information management, and particularly how these relate to holistic social determinants of health approaches.
Mustimuhw also worked closely with Stsi’elh Stuhw tu Smun’eem in the configuration and adoption of the new Mustimuhw Family Journey software module to support their transformative service efforts for Quw’utsun citizens.
A growing number of child and family service organizations also chose to move forward this year with this module and the company supported client adoption and usage.
A number of data integrations were completed for a health module to provincial data repositories to better support information continuity opportunities. Next year, the vision is to continue to progress on the new platform while also growing the customer base for the current platform.
KHOWUTZUN DEVELOPMENT CORPORATION (KDC)
Financial Overview for the 2023-2024 Fiscal Year:
• Total project revenue: $7,606,159.
• Amount contracted to Cowichan Citizen-owned civil contractors: $3,622,865.
• Royalty paid to Cowichan Tribes for pit run: $44,215.
Projects Update: KDC Civil Roundtable has been actively involved in several successful projects this past year, demonstrating a solid commitment to quality and timely delivery:
1. Cowichan River Work: Planned sediment extraction from Cowichan River to be used in KDC projects, with royalties paid to Cowichan Tribes. Estimated Start: September 2024.
2. Student Housing, North Island College: Development of a multi-generational, accessible, and Indigenized housing facility at the Comox Valley campus, including 217 beds and family suites.
Scope of Work: Excavation, slab-on-grade preparation, backfill, drain tile, grading, and compacting.
Timeline: September 2023 to April 2024.
3. National Centre for Indigenous Law, University of Victoria: KDC, in partnership with Chandos, is working on the first-of-its-kind National Centre for Indigenous Laws at the University of Victoria. This facility will support the learning and practice of Indigenous Laws within Canadian Common Law and the Indigenous Legal Orders Program at UVic.
Scope of Work: Site servicing, including excavation, drain tile, civil works (sewer, sanitary, water), grading, compacting, backfilling, and slabon-grade preparation.
Timeline: January 2023 to July 2024.
4. Cowichan Hospital Replacement Project:
Partnering with EllisDon and Hall, this new hospital will be three times the size of the current facility, primarily powered by clean electricity, enhancing energy and water efficiency while reducing GHG emissions by 75%. It will also include culturally safe spaces and services.
Scope of Work: Trucking services provided to BD Hall, involving 10,654 hours for transporting aggregates.
- Construction of temporary and permanent parking lots, and site clearing and preparation for the East Parking Lot.
Timeline: Various tasks commenced between March and June 2023, with completion dates from June 2023 to April 2024.
5. VIU Buildings Demolition, 222 Cowichan Way
Scope of Work: Demolition of two buildings.
Timeline: October to November 2023.
6. Cowichan Estuary Restoration Project: In partnership with the Nature’s Trust of BC, this project aims to restore critical estuary habitats on Vancouver Island, supporting species such as Pacific Salmon and various birds.
Scope of Work: Demolition of an old dike and preparatory work on Dinsdale Farm.
Timeline: August to September 2023.
7. Rivers Edge Project
Located at 222 Cowichan Way, Rivers Edge is a thoughtfully designed mixed-use development featuring two 6-storey wood-frame buildings with an underground parkade. The project integrates Cowichan’s culture and the natural beauty of the Cowichan Valley, creating a harmonious living environment that honours the land and its people. The complex aims to provide affordable, enriched living options for families, couples, retirees, and young professionals. The design emphasizes creative spatial planning and offers stunning views of the Cowichan River and Mount Prevost, enhancing the overall living experience for all residents.
Timeline: The project is expected to take approximately 30 months, with the groundbreaking expected in September 2024.
TRAINING
Introduction to Carpentry and Formwork
In July 2023, KDC celebrated the successful completion of a 4-week Introduction to Carpentry and Formwork training program. KDC began with eight participants, out of which six were able to complete the program. It is worth noting that two out of the six participants who completed the program were women.
Bears’ Lair Dream Camp
KDC hosted the second Bears’ Lair Dream Camp for youth aged 11-18 from March 11-14, 2024, at Quw’utsun Cultural and Conference Centre. Dream Camps inspire youth to explore opportunities, continue their education, pursue training, and consider entrepreneurship as a path to selfreliance. Over three interactive days, participants worked in teams to learn the fundamentals of owning and operating a business. They received mentorship and coaching while forming friendships and gaining insights into turning their business ideas into reality.
Khowutzun Freegrow Tree Shelters started in November 2019 in partnership with Khowutzun Development Corporation and John Kendall. It started off with four staff members manufacturing and selling nearly 60,000 3-foot x 6-inch tree shelters in the first year. Now, the staff produce and sell over 150,000 units each year. The organization has received grants to improve production, capacity building, training, and providing new machinery to support economic development.
QUW’UTSUN KW’ATL’KWA ENTERPRISES LP
A newly established business of Cowichan Tribes in 2020, QKE’s focus is on building an organization that mentors and trains employees in commercial fishing. The business holds commercial licenses for prawns, halibut, crab, and salmon.
COSTA CANNA RETAIL LLP
There are currently four stores operating (two in Duncan and two in Victoria) on Vancouver Island. The stores are actively receiving “Direct Deliveries” from United Greeneries Ltd. The partnership and Cowichan Tribes are continuing to advance Section 119 initiatives with the provincial government.
COSTA CANNA RETAIL LLP (DOING BUSINESS AS UNITED GREENERIES LTD.)
United Greeneries (UG) is the cannabis production partnership with Cowichan Tribes and a nonIndigenous partner. The production facility is located in Duncan near the IR#1. To advance the businesses, UG has been developing new strategies for the cannabis production markets, including international exports.
KHOWUTZUN GAMING CORPORATION (KGC)
Chances Cowichan had its second-best year ever in fiscal year 2024 in terms of profit. Business has been recovering from the 16-month closure that casinos in BC saw during the Covid 19 pandemic.
The biggest challenge was staffing. Since reopening after the Covid closure, Chances Cowichan have not yet been fully staffed. The lack of staff has been part of the reason for extra profit, but it has taken a toll for team members. Chances Cowichan cut back bingo sessions, and keep the kitchen closed two days per week. The personnel issue is starting to improve, and they look forward to offering more bingo sessions and opening the kitchen fully in the near future.
REVENUE SUMMARY
REVENUE BY SOURCE 2023/2024
OWN SOURCE REVENUE
AUDITED FINANCIAL STATEMENTS
Consolidated Statement of Operations and Accumulated Surplus
Continued on next page
CONCLUSION
HUY TSEEP Q’U | THANK YOU for your interest in Cowichan Tribes’ organizational and financial performance over the 2023-2024 fiscal year. As demonstrated in these pages, there has been substantial progress in addressing challenges and building out our programs and services for the community.
As a First Nation government, Cowichan Tribes’ responsibilities span across the three levels of colonial governments and we continue to advance the return of our jurisdiction in key areas. We sincerely appreciate the support and guidance of our citizens in this important work.
If you have any questions, please contact us. 5760 Allenby Road Duncan, BC V9L 5J1 (250) 748-3196 www.cowichantribes.com
