TOWNSHIP OF ESQUIMALT STAFF REPORT
MEETING DATE: April 8, 2024 Report No. ADM-24-014
TO: Council
FROM: Vicki Gannon, Director of Human Resources and Community Relations
SUBJECT: Flying Esquimalt Nation’s and Songhees Nation’s Flags Permanently at Municipal Hall
RECOMMENDATION:
Recommendation
That Council review the information as outlined in Staff Report ADM-24-014, and provide staff with direction to formally communicate with Esquimalt Nation and Songhees Nation seeking input and direction to permanently display the Esquimalt Nation’s flag and Songhees Nation’s flags at Municipal Hall.
Body
EXECUTIVE SUMMARY:
Mayor Desjardins has had informal conversations with Chief Thomas and Chief Sam who have stated that Esquimalt Nation and Songhees Nation are interested in permanently flying the First Nations’ flags at Municipal Hall, and further that there is interest in a ceremonial unveiling of the flags.
The flying of the two Nations’ flags, alongside the Township flag is a reminder that the Township of Esquimalt is situated on the traditional lands of the Songhees and Esquimalt People, and demonstrates the Township’s commitment to take further steps to visibly honour and respect these Nations. Having the three flags flying alongside one another also demonstrates the Township’s commitment to ongoing reconciliation and collaboration with the two Nations.
Once Council provide staff with direction, formal communication will be sent to Esquimalt and Songhees Nations requesting their input and approval regarding flag installation, and a ceremonial unveiling.
BACKGROUND:
At the Township, flags are currently flown as follows, noting that all flags are lowered to half-mast by Public Works and Parks staff when requested:
• Municipal Hall: There is a flagpole with a cross-bar at the front of Municipal Hall. The Canadian Flag flies highest in the middle, in the position of priority, and the Provincial and Esquimalt flags fly on the lower cross-bar. Flags may be changed-out throughout the year for other flags during special events such as Pride Week or BC Francophonie Day,
• Public Works: Canadian Flag
• Memorial Park: Canadian Flag
• Archie Browning: Canadian Flag (changes to Port Angeles during Rib Fest)
• Temporary Fire Hall: Canadian Flag
• Recreation Centre: Canadian Flag
• Saxe Point: Canadian flag
ANALYSIS:
Staff have researched other municipalities who have permanently raised First Nations’ flags, and were provided with the following information:
• Victoria (Sept 2023): Three permanent flag poles outside Pandora Avenue entrance to City Hall - The two Nations’ flags are flown on either side of the Municipal Flag, with the Canadian flag on top of the building, and the Provincial flag in Centennial Square. Only the Canadian and Provincial flags are lowered when flags are flown at half-mast.
• Ladysmith (June 2023): Flags at Municipal Hall permanently, L to R - Canada, Provincial, Ladysmith, Stz’uminus First Nation. All flags at Municipal Hall are lowered when flags are flown at half mast. They also fly Stz’uminus Flag at Transfer Beach permanently.
• Nanaimo (2015 - 2017/Feb 2020): Flags off Municipal Hall Roof permanently. Please refer to Attachment 1 (Nanaimo’s City Hall flags), L to R - Provincial, Snuneymuxw, Nanaimo. Flags flown off of the roof are not lowered.
• Port Alberni (2021): Flags at Municipal Hall permanently, Hupacasath First Nation and Tseshaht First Nation fly on either side of the Canadian flag, and beside the city and provincial flags. They added two new flag poles, but because they were on a slope and deemed to be lower than the other three, there was agreement to fly the First Nations’ flags along with the Canadian on the existing flag poles, and fly the municipal and provincial flag on the new poles (separated by a walk-way). All flags are lowered when flags are flown at half-mast.
• Sooke (2019): Flags at City Hall permanently, L to R - Canada, Provincial, T’Sou-ke First Nation, Sooke. All flags are lowered at half-mast.
• Vancouver (May 2023): Prior to May, 2023 the City of Vancouver flew three flags in Stanley Park: Canadian, Provincial, and the Union Jack. These three flags were replaced permanently with the three Nation’s flags: Musquem, Squamish and Tsleil-Waututh.
It should be noted that staff have been advised that Esquimalt Nation and Songhees Nation are not interested in having their flags flown alongside the Canadian or Provincial flags. Further, the Nations’ flags are not lowered to half-mast as a sign of mourning.
OPTIONS:
The manner in which flags may be displayed in Canada is not governed by legislation but by established practice and convention, and the correct protocol is outlined on both the Federal and Provincial governments’ websites.
Listed below are options to fly Esquimalt Nation’s flag and Songhees Nation’s flag at Municipal Hall that comply with established practice, as well as with the informal direction that staff have been given to date regarding the Nations’ preferences.
Staff can collaborate with the two Nations’ outlining all options, and work to identify preferred options to permanently fly the two Nations’ flags for Council’ consideration.
Please note that all options include the removal and re-positioning of the existing pole that is currently outside of Municipal Hall, as it is a cross-bar flagpole with one flag flying in the position of priority.
Option 1:
• Fly the Canadian Flag on the rooftop of Municipal Hall using a vertical flagpole. The flag can be lowered to half-mast.
• Put three new flag poles in the front of Municipal Hall as per Attachment Two (Placement of 3 Flagpoles); fly Esquimalt Nation’s flag and Songhees Nation’s flag with the Municipal Flag in the middle. These three flags will not be lowered when flags are flown at half-mast.
• Fly the Provincial flag alone, off the back entrance. As the flagpole is at a 45-degree angle off the building, this flag will not be lowered.
Option 2:
• Fly both the Canadian Flag and the Provincial Flag on the rooftop of Municipal Hall using two vertical flagpoles. These flags can be lowered to half-mast.
• Put three new flag poles in the front of Municipal Hall as per Attachment 2 (Placement of 3 Flagpoles); fly Esquimalt Nation’s flag and Songhees Nation’s flag with the Municipal Flag in the middle. These three flags will not be lowered when flags are flown at half-mast.
Option 3:
• Put two new flag poles in the front of Municipal Hall as per Attachment 3 (Placement of 2 Flagpoles); fly the Canadian flag and the Provincial flag. Both flags will be lowered when flags are flown at half-mast.
• Put three new flag poles on the roof of Municipal Hall as per the attached image from the City of Nanaimo (Attachment 1); fly Esquimalt Nation’s flag and Songhees Nation’s flag with Municipal Flag in the middle. Flags will not be lowered.
COUNCIL PRIORITY:
Strong Relationships and Partnerships
FINANCIAL IMPACT:
The cost of each option described above varies, but all options are estimated to be under $50,000. As part of the annual budget process currently underway, a supplemental budget request for $50,000 is included. Staff will utilize the operating budget to fund an unveiling ceremony event.
COMMUNICATIONS/ENGAGEMENT:
Once Council provides direction, staff will be engaging with Esquimalt Nation and Songhees Nation to collaborate regarding the placement of permanent flagpoles and associated events.
TIMELINES & NEXT STEPS:
• Council to provide staff with direction.
• Staff to collaborate with Esquimalt Nation Council and Songhees Nation Council regarding the positioning of the flagpoles to fly the Nations’ flags permanently, and to organize a celebratory unveiling of the flags.
• Installation of new poles is subject to material availability and may take several months due to supply chain issues. Installation is expected to be done by Public Works. Installation of flagpole(s) on Municipal Roof will be completed following the anticipated roof renewal this Summer.
REPORT REVIEWED BY:
1. Joel Clary, Director of Engineering and Public Works
2. Ian Irvine, Director of Finance, Reviewed
3. Deb Hopkins, Director of Corporate Services, Reviewed
4. Dan Horan, Chief Administrative Officer, Concurrence
LIST OF ATTACHMENTS:
1. Attachment 1 - Nanaimo’s City Hall flags
2. Attachment 2 - Placement of 3 Flagpoles
3. Attachment 3 - Placement of 2 Flagpoles