The Canada Centre for Mapping and Earth Observation (CCMEO) at Natural Resources Canada (NRCan), in partnership with the Canadian Council on Geomatics (CCOG)
April 25, 2025
Disclaimer
Neither Natural Resources Canada nor any of its employees makes any express or implied warranty or assumes any legal liability or responsibility for the accuracy, completeness or usefulness of the contents of this report. Reference in the report to any specific commercial product, process, service or organization does not necessarily constitute or imply endorsement, recommendation or favouring by Natural Resources Canada. The views and opinions of round table participants expressed in this report do not necessarily state or reflect those of Natural Resources Canada.
This document was prepared or accomplished by TDV Global in their personal capacity. The opinions expressed in this summary do not necessarily reflect the views and opinions of Natural Resources Canada.
Table of Contents
Executive summary
Purpose
The Round Table on Strengthening Indigenous Participation in Canada’s Geospatial Future convened as part of a collaborative effort to co-led by the Canada Centre for Mapping and Earth Observation (CCMEO) and the Canadian Council on Geomatics (CCOG) to seek views from partners and stakeholders on how to modernize Canada’s Spatial Data Infrastructure (SDI). While this session aimed to bring together Indigenous governments and organizations to share their perspectives, most round table participants were not Indigenous, and as such, the discussion did not reflect the diversity of Indigenous voices, experiences, and perspectives across the country as intended.
Participants provided suggestions focused on strengthening Indigenous participation across the range of strategic pathways that make up the United Nations Integrated Geospatial Information Framework (UN-IGIF):
- Governance (Governance and Institutions, Legal and Policy, Financial)
- Technology (Data, Innovation, Standards)
- People (Partnerships, Capacity and Education, Communications and Engagement)
This round table was one of eight round tables that also explored topics of governance, technology, people, more generally, and the topics of infrastructure and public safety.
Key insights
Round table participants identified the following strengths, areas for improvement, and recommendations, which will need to be verified and supplemented by Indigenous organizations and communities:
1. Governance
- There is no Indigenous geospatial governance strategy.
- Formal Indigenous representation within the Canadian Geospatial Data Infrastructure (CGDI) is lacking.
- Federal policies insufficiently align with Indigenous data sovereignty principles like OCAP® (Ownership, Control, Access, and Possession).
- Indigenous communities face access barriers to essential datasets such as land tenure, resource inventories, and environmental monitoring data.
2. Technology
- There is inadequate internet connectivity in rural and remote Indigenous communities.
- Emerging technologies (e.g., drones, artificial intelligence (AI), remote sensing) are underused due to limited access or training.
- Metadata standards and Geographic Information System (GIS) platforms are not aligned with Indigenous knowledge systems.
- Many traditional territories remain unmapped or are mapped at a low resolution, inhibiting planning and resilience work.
3. People
- There are systemic barriers to Indigenous participation in GIS careers and geospatial projects.
- Access to culturally relevant training and mentorship programs is limited.
- Many communities lack internal GIS capacity, restricting participation in data management and decision-making.
- There are no peer networks to support shared learning and collaboration among Indigenous practitioners.
Recommended actions
- Co-develop practical tools, templates, and guidance to for applying OCAP® and FAIR principles in geospatial data governance.
- Expand funding for Indigenous geospatial capacity building (e.g., GIS staffing, training, infrastructure development, etc.).
- Prioritize investments in high-speed internet, cloud-based solutions, and IT services in remote and rural Indigenous communities.
Conclusion
Participants in the Round Table on Strengthening Indigenous Participation in Canada’s Geospatial Future reinforced the urgency of embedding Indigenous perspectives, sovereignty, and leadership into the modernization of Canada’s spatial data infrastructure. They highlighted the transformative potential of inclusive, collaborative geospatial governance and recommended that a clear path forward for placing Indigenous communities at the centre of Canada’s geospatial future be co-developed.
For continued engagement, visit Let's Talk Natural Resources.
Acknowledgements
This report would not have been possible without the contributions of individuals and organizations who took the time to participate in the round table. We extend our gratitude to the participants from industry, academia, Indigenous organizations, NGOs, and federal, provincial, and municipal governments for their valuable insights into Canada's geospatial infrastructure.
Introduction
CCMEO and CCOG are using the global best practice model of the UN-IGIF as a framework for assessing the current state and for planning the future evolution of Canada’s geospatial data ecosystem - the Canadian Geospatial Data Infrastructure (CGDI). The CGDI is the collection of geospatial data, and the standards, policies, applications, and governance that facilitate its access, use, integration, and preservation in Canada.
Phase 1 entailed a stocktake exercise using three data collection methods: 1) individual/small group interviews with provincial/territorial and federal geospatial data producers and users; 2) a written inventory/survey to collect more detailed information from interviewee organizations; 3) a research-based desk study undertaken by a third party.
Phase 2 shifted from assessing the CGDI to gathering diverse perspectives to help shape the modernization and evolution of how Canada manages and uses spatial data. Using a round table approach, stakeholders and partners were invited to share their perspectives to help guide Canada’s geospatial future, making it more responsive, innovative, and effective. The results of the round tables will be considered by the Canadian Council on Geomatics (CCOG) in the development of a collaborative geospatial strategy.
The Pathways to Collaboration: Strengthening Indigenous Participation in Canada’s Geospatial Future Strategic Pathway Round Table convened virtually on March 17, 2025. The session focused on means to strengthen Indigenous participation in geospatial information management across the strategic pathways identified through the United Nations Integrated Geospatial Information Framework (UN-IGIF):
- Governance and Institutions (Governance and Institutions, Legal and Policy, Financial)
- Technology (Data, Innovation, Standards)
- People (Partnerships, Capacity and Education, Communications and Engagement)
The following sections provide details on the challenges, solutions, opportunities, and thoughts of round table participants on each of these strategic pathways.
NOTE: While this round table focused on identifying challenges and opportunities for strengthening Indigenous participation in Canada’s geospatial future, it is important to acknowledge that most participants in the round table were not Indigenous or representatives of Indigenous organizations or communities, but representatives of academia, the private sector, and different levels of public government across Canada. For this reason, the views shared in this summary do not adequately represent Indigenous voices, experiences, or perspectives and should not be interpreted as such. The limited Indigenous participation in this round table and the broader round table consultations is a significant gap that will need to be addressed through efforts to build respectful, long-term partnerships with First Nations, Inuit, and Métis communities to co-develop approaches that reflect Indigenous rights, data sovereignty, and priorities in the future SDI.
Results
Strategic Pathways 1-3: Governance and institutions, legal and policy, financial
Key challenges identified
- No national strategy: Absence of a national Indigenous geospatial governance strategy is a gap in Canada’s spatial data infrastructure. While Indigenous communities are active contributors to geospatial initiatives, they are often working within systems that do not reflect their priorities or rights.
- Lack of formal representation: There is a lack of formal Indigenous representation within the Canadian Geospatial Data Infrastructure (CGDI), which limits opportunities for Indigenous governments to shape the policies, standards, and data practices that affect their lands and communities.
- Misalignment with data sovereignty: Current federal policies and governance structures are insufficiently aligned with Indigenous data sovereignty principles, such as OCAP® (Ownership, Control, Access, and Possession). Without this alignment, Indigenous communities may lose control over their data once it enters public systems.
- Barriers to data access: Indigenous communities face access barriers to essential datasets, such as land tenure records, natural resource inventories, and environmental monitoring data. These limitations can undermine local planning, decision-making, and self-determined land stewardship.
Solutions and opportunities
- Indigenous advisory body: Establish a dedicated Indigenous-led geospatial advisory body to ensure Indigenous leadership is embedded in decision-making processes at the national level. This body could provide strategic guidance, coordinate regional priorities, and advocate for data sovereignty across governments.
- National Indigenous strategy: Create a national strategy for Indigenous geospatial governance, developed collaboratively and grounded in OCAP® and CARE (Collective benefit, Authority to control, Responsibility, Ethics) principles. This strategy would provide clear direction and consistency, while allowing for community-specific approaches.
- Stable funding: Secure long-term, stable funding for Indigenous-led geospatial initiatives, enabling communities to invest in land stewardship, data infrastructure, and governance tools without reliance on short-term projects.
- Indigenous data sovereignty: Recognize Indigenous government as sovereign partners in the governance of Canada’s geospatial infrastructure, with equal authority over data concerning their territories and ways of life.
Participant voices
- Industry participant: “We treat Indigenous groups as government entities. But there’s no clear licensing or frameworks for Indigenous data stewardship.”
- Industry participant: “OCAP® is foundational, but every community interprets it differently. We need shared guidance and support.”
- Indigenous-owned industry participant: “Indigenous communities are overburdened with consultation requests but under-resourced to manage data governance and attend the Indigenous mapping workshops.”
Strategic Pathways 4-6: Data, innovation, standards
Key challenges identified
- Connectivity and infrastructure gaps: Infrastructure gaps, most notably the lack of reliable high-speed internet in remote and rural Indigenous communities. This limitation makes it difficult to access cloud-based GIS platforms, remote sensing tools, and collaborative data environments.
- Underutilization of emerging technologies: Emerging technologies such as drones, artificial intelligence (AI), and real-time mapping applications are underutilized by Indigenous communities. These technologies are widely used in environmental monitoring and disaster preparedness, yet access remains constrained by funding, training, and licensing barriers.
- Metadata and knowledge system disconnect: There is a disconnect between current metadata standards and Indigenous knowledge systems. GIS platforms and data classification methods are not always compatible with Indigenous ways of representing place, which may include oral histories, seasonal knowledge, and non-Western spatial categories.
- Low-resolution mapping issues: Many traditional territories remain unmapped or captured only at low resolution, limiting the ability of communities to participate in climate adaptation, land use planning, and infrastructure development efforts.
Solutions and opportunities
- Community-controlled repositories: Funding secure, community-controlled data repositories that allow Indigenous communities to manage their own data, determine access conditions, and integrate with broader national systems where appropriate.
- GIS tools: Develop and promote GIS tools tailored to Indigenous users, including mobile-first and offline-enabled platforms, which are more accessible in areas with limited connectivity.
- Investments in advanced technologies: Investment in AI, UAVs (Unmanned Aerial Vehicles), and other advanced technologies to enable Indigenous-led mapping, monitoring, and land management. Funding programs should be designed specifically to support Indigenous participation in these areas.
- Expansion of internet access: Close the digital divide by expanding internet access and upgrading geospatial infrastructure in underserved regions.
Participant voices
- Industry participant: “We’re monitoring the Earth constantly from space but not recognizing the value of the traditional ways of recording information on the ground.”
- Indigenous-owned industry participant: “There are definitely discrepancies in community access to internet and to IT companies willing to set up IT infrastructure.”
Strategic Pathways 7-9: Partnerships, capacity and education, communications and engagement
Key challenges identified
- Barriers to career entry: Systemic barriers limit Indigenous participation in geospatial careers and projects, including historical underrepresentation in STEM education, lack of outreach, and limited exposure to GIS in early education.
- Uneven access to training: Access to culturally relevant training and mentorship programs is uneven across regions, creating a patchwork of opportunity and limiting the ability of many communities to engage meaningfully with geospatial technologies.
- Lack of internal GIS capacity: Many Indigenous governments and organizations lack internal GIS capacity, including the personnel, software, and technical infrastructure required for data management and decision-making.
- Missing peer networks: There is an absence of formal peer networks or communities of practice for Indigenous GIS professionals, which contributes to isolation and hinders knowledge sharing across regions.
Solutions and opportunities
- Indigenous-led training programs: Launch mentorships, scholarships, and training programs that are developed in partnership with Indigenous organizations and rooted in Indigenous knowledge systems to build capacity.
- National peer networks: Create a national Indigenous geospatial community of practice to support ongoing learning, resource sharing, and collaboration among First Nations, Inuit, and Métis practitioners.
- Community-based careers: Support Indigenous-led data repositories and research teams, which can provide stable, community-based career pathways and reinforce long-term data stewardship.
- Integration of traditional knowledge systems: Integrate traditional knowledge frameworks into geospatial training, public policy, and data governance, ensuring that Indigenous ways of knowing are reflected in how data is used and interpreted.
Participant voices
- Industry participant: “Community leaders are not aware of GIS and its value proposition. Awareness at the leadership level is a missing piece.”
- Industry participant: “Indigenous Mapping Workshops are great—but too few can afford to attend. Awareness and funding are key.”
- Indigenous-owned industry participant: “We’re supporting GIS departments in communities but staffing and recruiting are constant challenges.”
Cross-cutting themes
Indigenous data sovereignty
- Affirming Indigenous principles: Participants emphasized the importance of OCAP®, CARE, and traditional knowledge integration in data governance.
- Community ownership priority: There should be community ownership and selective sharing of sensitive geospatial data.
- Federated governance needed: Federated models where Indigenous groups govern their data alongside national partners are needed.
Funding and capacity
- Funding as major barrier: Lack of funding remains a primary obstacle to Indigenous engagement in GIS.
- Need for dedicated support: Dedicated funding programs that include staff, infrastructure, and training are needed.
- Call for sustainable investment: Sustainable investment is needed beyond short-term project cycles.
Awareness and trust
- Leadership awareness gaps: Widespread lack of awareness of geospatial tools and strategies at the leadership level in Indigenous communities.
- Trust through consistent engagement: Building trust in institutions requires respectful, long-term relationships, not one-off engagements.
- Data control and power: Recognition that data is power—and Indigenous communities must control their narratives and land-use data.
Next Steps
Suggested actions
- Co-develop practical tools, templates, and guidance to support Indigenous communities in applying OCAP® and FAIR principles in geospatial data governance.
- Expand funding for Indigenous geospatial capacity building (e.g., GIS staffing, training, infrastructure development, etc.).
- Prioritize investments in high-speed internet, cloud-based solutions, and IT services in remote and rural Indigenous communities.
Open questions raised by round table participants
- Who will lead the development of a First Nations Geospatial Strategy?
- What governance models ensure Indigenous sovereignty and co-leadership?
- How can Canada support localized training and infrastructure development?
- What national standards should guide metadata and GIS platform alignment with Indigenous principles?
Conclusion
Participants in the Pathways to Collaboration: Strengthening Indigenous Participation in Canada’s Geospatial Future Strategic Pathway Round Table reinforced the urgency of embedding Indigenous sovereignty, leadership, and knowledge into Canada’s geospatial future. They suggested that a forward path needs to respect sovereignty, provide sustained funding, strengthen technical and human capacity, and position Indigenous communities as co-leaders in national geospatial governance.
For continued engagement, visit: Let's Talk Natural Resources.