It is obvious not only from the plain meaning of this
provision but also from the circumstances surrounding the
execution of the 1965 agreement that the obligation to consult
with Indian bands and secure their concurrence was intended to
be a key component of the agreement. One only has to consider
what was said in a background memorandum prepared by Can-
ada for use at the 1963 Federal-Provincial Conference:
The utmost care must be taken . . . to ensure that the Indians are not again
presented with a fait accompli in the form of a blueprint for their future
which they have had no part in developing and which they have been given
no opportunity to influence. This means that the Federal Government
should make crystal clear that before any final arrangements are made, the
Indians must be fully consulted.
 Consider as well what was said by Mr. Tremblay, the federal Minister of Citizenship and Immigration, in October 1964
to the Federal-Provincial Conference, as summarized in the
minutes of the meeting:
Consultation with Indians. Mr. Tremblay, in introducing this topic, said that
it is an extremely important one as the success of any federal-provincial
effort to extend a provincial service will depend on the Indians accepting the
proposal and participating in its development. From past experience, we
believe acceptance and cooperation by the Indians will not be secured without adequate consultation with them.
 And, in a “circular” dated December 9, 1964, the Assistant
Deputy Minister of the Indian Affairs Branch of the federal
Department of Citizenship and Immigration advised his federal
colleagues that he would view it as a “serious breach of faith
with the Indian people if any provincial services were forced on
a Band against its wishes”:
It is departmental policy . . . to encourage the extension of provincial ser-
vices to reserves in those areas where Provinces are competent to provide
services but under no circumstances must action be taken towards this end
— that is to actually extend a service to a reserve — without the consent of
the Indians concerned[.]
If an agreement can be arrived at, the next step will be to explain it to each
individual Band in the Province and to ascertain whether the Band wishes
the provincial service extended to it. If it is unacceptable to any Band, no
extension of that particular service will be made to that Band and the ser-
vice provided by the Federal Government will continue.
It is important that the Indians understand Federal policy in this regard
and this circular may be helpful to you in your future discussions with them.
I would consider it to be a serious breach of faith with the Indian people if
any provincial services were forced on a Band against its wishes.