First Nations Land Management Act

From: Subject: First Nations Land Management Act - Indian and Northern Affairs Canada Date: Mon, 14 Jan 2008 13:12:20 -0500 MIME-Version: 1.0 Content-Type: multipart/related; type="text/html"; boundary="----=_NextPart_000_0000_01C856AF.18296250" X-MimeOLE: Produced By Microsoft MimeOLE V6.00.2900.3198 This is a multi-part message in MIME format. ------=_NextPart_000_0000_01C856AF.18296250 Content-Type: text/html; charset="iso-8859-1" Content-Transfer-Encoding: quoted-printable Content-Location: http://www.ainc-inac.gc.ca/pr/pub/matr/fnl_e.html First Nations Land Management Act - Indian = and Northern Affairs Canada

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The First Nations Land Management Act (FNLMA) was = passed by=20 the federal Parliament in 1999 on the initiative of fourteen = Indian=20 Act Bands wishing to escape the land management provisions of = the=20 Indian Act in order to improve their capacities and = opportunities=20 for economic development. The Act provides the term "first nation" = means=20 an Indian Act band named in a schedule. Additional First = Nations=20 may request the Governor-in-Council to have the Act applied to = them.

A Framework Agreement on First Nation Land Management between = Canada=20 and the 14 First Nations anticipated the legislation and describes = its key=20 components and is described as "a government to government = agreement=20 within the framework of the constitution of Canada".¹⁶⁰ = The=20 Agreement states that it is not a treaty within the meaning of s. = 35 of=20 the Constitution Act, 1982.

Each community opting to come under the FNLMA is = required to=20 adopt a land code in accordance with the Framework Agreement which = is to=20 replace the land management provisions of the Indian Act. = Validly=20 adopted land codes have the effect of law. The Framework Agreement = anticipates the adoption of First Nation laws to address the = specific=20 issue of matrimonial real property as part of a comprehensive land = code.=20 Article 5.4 of the Framework Agreement provides:

In order to clarify the intentions of the First = Nations=20 and Canada in relation to the breakdown of a marriage as it = affects First=20 Nation land:

a First Nation will establish a community process in its = land code=20 to develop rules and procedures, applicable on the breakdown of = a=20 marriage, to the use, occupancy and possession of First Nation = land and=20 the division of interests in that land;=20
for greater certainty, the rules and procedures referred to = in=20 clause (a) shall not discriminate on the basis of sex;=20
the rules and procedures referred to in clause (a) shall be = enacted=20 in the First Nation's land code or First Nations laws;=20
in order to allow sufficient time for community consultation = during=20 the community process referred to in clause (a), the First = Nation shall=20 have a period of 12 months from the date the land code takes = effect to=20 enact the rules and procedures;=20
any dispute between the Minister and a First Nation in = respect of=20 this clause shall, notwithstanding clause 43.3, be subject to=20 arbitration in accordance with Part IX;=20
for greater certainty, this clause also applies to any First = Nation=20 that has voted to approve a land code before this clause comes = into=20 force.

The FNLMA=20 requires each community to establish a community consultation = process for=20 "the development of general rules and procedures respecting, in = cases of=20 breakdown of marriage, the use, occupation and possession of first = nation=20 land and the division of interests in first nation land" among = other=20 required elements of the land code¹⁶¹ Subsection 17(1) = provides=20 that a First Nation shall, following community consultations, = "establish=20 general rules and procedures in cases of breakdown of marriage, = respecting=20 the use, occupation and possession of first nation land and the = division=20 of interests in first nation land." Subsection 17(2) requires each = first=20 nation within twelve months after its land code comes into force, = to=20 incorporate the general rules and procedures into its land code or = enact a=20 first nation law containing the general rules and procedures. = Under=20 subsection 17(3) the First Nation or Minister may refer any = dispute=20 relating to the establishment of the general rules and procedures = to an=20 arbitrator in accordance with the Framework Agreement.

Notable aspects of the treatment of the matrimonial real = property issue=20 under theFNLMA = are:

The Agreement and the Act are ambiguous on the question of = whether=20 laws adopted by First Nations are an exercise of delegated = federal power=20 or are an exercise of inherent First Nations jurisdiction;=20
While the requirement to address the matrimonial property = issue=20 within 12 months of adopting a land code is worded in mandatory = language=20 in s. 17, the implementation of this commitment is dependent on = at least=20 three separate actions by the First Nations in question: first = on=20 consultations being undertaken, then on the drafting of rules = and=20 procedures and finally on the incorporation of the rules and = procedures=20 into the land code or enactment as a first nation law under = theFNLMA;=20
There is no apparent means for individual members of First = Nations=20 to enforce the mandatory requirement to enact rules and = procedures=20 addressing the matrimonial real property issue;=20
A requirement for non-discrimination on the basis of sex is=20 contained in the Framework Agreement and appears to be = referentially=20 incorporated into the Act by s. 17(1);=20
The requirement for non-discrimination on the basis of sex = refers=20 only to the rules and procedures and not to the law that is = ultimately=20 enacted;=20
The requirement to address matrimonial real property applies = to=20 breakdown of "marriage" - it is not clear whether this is = intended to=20 apply to customary marriages or to common law relationships;=20
TheFNLMA = explicitly=20 provides for the power of First Nations to adopt land codes = dealing with=20 interests in first nation land held pursuant to allotment under = the=20 Indian Act or "pursuant to the custom of the first = nation", as=20 well as licences and leases¹⁶² and provides explicit=20 authority to pass "rules and procedures"¹⁶³ in cases = of=20 breakdown of marriage.¹⁶⁴ (It is not clear whether = this power=20 includes matters relating to domestic violence.)=20
Band council lawmaking power in this area is subject to = community=20 approval defined as 25% plus one of eligible voters (this now = includes=20 members living off-reserve as a result of the Supreme Court of = Canada=20 decision in Corbiere);=20
The lack of an interim or default statutory regime pending = the=20 adoption of First Nations matrimonial property laws;=20
The statute and the Framework Agreement do not specifically = address=20 the issue of First Nations jurisdiction to determine matrimonial = property rights in situations of violence;

So far, four of the fourteen First Nations to which theFNLMAapplies = have=20 adopted a matrimonial property law (Mississaugas of Scugog Island = First=20 Nation, Muskoday First Nation, Georgina Island First Nation and = Lheidi=20 T'Enneh First Nation). The four laws are quite similar to one = another.

The Chippewas of Georgina Island First Nation passed a = Matrimonial=20 Real Property Law under theFNLMAin = December 2000.=20 One of the preambular paragraphs declares the intent to provide = "rights=20 and remedies, without discrimination on the basis of sex, with = respect to=20 spouses who have or claim interests in First Nation land upon the=20 breakdown of their marriage". The law applies only to interests in = First=20 Nation land or claimed pursuant to the law. The law does not apply = to=20 situations involving two spouses, neither of whom is a member of = the First=20 Nation.

Matrimonial home is defined as:

an interest in First Nation land that is or, if = the=20 spouses have separated, was at the time of separation, ordinarily = occupied=20 by the person and his or her spouse as their family residence, and = where a=20 parcel of First Nation land that is an interest in First Nation = land for=20 purposes of this law includes a matrimonial home and is normally = used for=20 a purpose other than residential, the matrimonial home is only the = part of=20 the interest in First Nation land that may reasonably be regarded = as=20 necessary to the use and enjoyment of the family residence.

The definition of "spouse" in this law may include marriages = under=20 provincial law as well as customary law (the issue is not clear) = but does=20 not appear to include common law marriages:

are married to each other; or=20
have together entered into a marriage that is voidable or = void, in=20 good faith on the part of the person relying on this clause to = assert=20 any right under this law.

Part 2 of the law contains provisions relating to domestic = contracts.=20 Part 3 provides the Lands Advisory Board with authority to = administer=20 mediation for spouses unable to conclude their own domestic = contract=20 regarding their respective interests in matrimonial real property. = This=20 includes provision for "compulsory mediation." The costs of = mediation are=20 to be paid equally by each spouse. Successful mediation is to = result in a=20 written separation agreement that contains the agreement of the = parties=20 respecting interests in First Nation land; and is to include = provision for=20 all interests in First Nation land held by either spouse, or both=20 spouses.

Focus Group participants expressed a strong interest in = mediation=20 processes and emphasized the need for these to reflect First = Nation=20 traditions and values respecting dispute resolution. However, = difficulties=20 could arise where mediation is mandatory and a First Nation woman = is=20 leaving a relationship that involved violence. Many women feel = intimidated=20 by the man and may agree to a settlement because they fear the=20 consequences of refusing. Specific mediation techniques are = clearly needed=20 to address these situations.

It is not clear from the mediation requirement in the = Matrimonial=20 Property Law whether both parties will also have access to = independent=20 legal advice on whatever agreement may be reached.

Part 4 provides for access to a court of competent jurisdiction = (the=20 Ontario Superior Court of Justice or the Unified Family Court of = Ontario)=20 where mediation under Part 3 is not successful. In such cases, a = court of=20 competent jurisdiction may deal with interests in First Nation = land held=20 by either spouse, or both spouses, in a manner consistent with the = provisions of the Family Law Act (Ontario). This means provincial=20 matrimonial real property law relevant to the ownership, = possession or=20 occupancy of real property, the division of interests in real = property,=20 and net family property representing the value of interests in = real=20 property would apply on the relevant reserves on a case by case = basis (as=20 parties bring applications to court for this purpose). (It should = be noted=20 that any approach involving the further application of provincial=20 matrimonial property laws were regarded by some Focus Group = participants=20 as not supportive of general First Nation goals of reasserting = community=20 control over property issues and reclaiming First Nations = traditions.)

There are no provisions addressing situations where parties = cannot=20 afford the cost of the compulsory mediation. This may be a barrier = to=20 lower income spouses, and ultimately a barrier to access to the = courts=20 where a more difficult and wealthier spouse holds a CP to the = matrimonial home and=20 is less inclined to settle out of court.

Overall, the Georgina Island Matrimonial Property Law is = quite=20 comprehensive. Among other matters, the law provides that:

the courts may make any order in relation to interests in = First=20 Nation land held by a spouse, or by both spouses, that the court = may=20 make in respect of real property situated in the province of = Ontario,=20 including orders to transfer an interest in First nation land to = a=20 spouse absolutely or for partition and sale of an interest in = First=20 Nation land held by both spouses;=20
a spouse may apply for an order declaring the right of = possession to=20 the interest in First Nation land;=20
regardless of which spouse holds an interest in First Nation = land=20 that is a matrimonial home, the court may on application order = that one=20 spouse be given exclusive possession, including interim or = temporary=20 orders (and provides guidance for situations where children are=20 involved);=20
the possession of an interest in First Nation land under the = Matrimonial Real Property Law by a person who is not a = member is=20 not assignable and shall be deemed to terminate when that person = ceases=20 to use or occupy that interest personally.

Laws, adopted by Mississaugas of Scugog Island First Nation and = Muskoday First Nation, are similar to the Georgina Island = Matrimonial=20 Real Property Law. Each of these laws represent a huge step = forward=20 compared to the situation under the Indian Act. The First = Nations=20 under the FNLMA can = call on the=20 assistance and resources of the Lands Advisory Board to further = develop=20 and refine laws in this area as required.

¹⁶⁰The Framework Agreement on = First Nation=20 Land Management can be found on the website http://www.fafnlm.com/.
^{161First=20
Nations Land Management Act, S.C. 1999, c.24, s.=20
6(1)(f).
¹⁶²First Nations Land Management =
Act, S.C.=20
1999, c.24, s. 6(1)(b).
¹⁶³The distinction drawn =
between=20
"rules and procedures" as opposed to "codes", and "laws" under the =
FNLMA=20
is not clear.
¹⁶⁴First Nations Land Management =
Act,=20
S.C. 1999, c.24, s. 17(1).
¹⁶⁵Modernization of =
Benefits=20
and Obligations Act, S.C. 2000, c. 12, s. 148-152.}

Back = to the=20 Index Page

Last=20 Updated: 2004-04-23

Important=20 Notices

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BACKGROUND-COLOR: #dceafa } .grey { BACKGROUND-COLOR: #cccccc } .align-left { TEXT-ALIGN: left } .align-right { TEXT-ALIGN: right } .align-centre { TEXT-ALIGN: center } .align-center { TEXT-ALIGN: center } .align-justify { TEXT-ALIGN: justify } .indent { MARGIN-LEFT: 20px; MARGIN-RIGHT: 20px } .indent2 { MARGIN-LEFT: 40px; MARGIN-RIGHT: 40px } .indent3 { MARGIN-LEFT: 60px; MARGIN-RIGHT: 60px } .tab { TEXT-INDENT: 40px } .image-middle { VERTICAL-ALIGN: middle } .image-left { FLOAT: left; VERTICAL-ALIGN: text-top } .image-right { FLOAT: right; VERTICAL-ALIGN: text-top } A href { TEXT-DECORATION: underline } A:focus { COLOR: #b80000; BACKGROUND-COLOR: #eeeeee } A:active { COLOR: #b80000; BACKGROUND-COLOR: #eeeeee } A:hover { COLOR: #b80000; BACKGROUND-COLOR: #eeeeee } TD.padding5 { PADDING-RIGHT: 5px; PADDING-LEFT: 5px; PADDING-BOTTOM: 5px; = VERTICAL-ALIGN: top; PADDING-TOP: 5px } TD.notop { BORDER-BOTTOM: #fff 0px solid } TD.padding5b { PADDING-RIGHT: 5px; PADDING-LEFT: 5px; PADDING-BOTTOM: 5px; = VERTICAL-ALIGN: bottom; PADDING-TOP: 5px } TD.nobottom { BORDER-TOP: #fff 0px solid } TD.notoporbottom { BORDER-TOP: #fff 0px solid; BORDER-BOTTOM: #fff 0px solid } A.sidebar:link { COLOR: #ffffff; BACKGROUND-COLOR: transparent; TEXT-DECORATION: none } A.sidebar:visited { COLOR: #ffff99; BACKGROUND-COLOR: transparent; TEXT-DECORATION: none } A.sidebar:active { COLOR: #ffffff; BACKGROUND-COLOR: transparent; TEXT-DECORATION: none } A.sidebar:hover { BACKGROUND: none transparent scroll repeat 0% 0%; COLOR: #ffcc66; = TEXT-DECORATION: none } A.sidebar2:link { FONT-WEIGHT: bold; COLOR: #fff; BACKGROUND-COLOR: transparent; = TEXT-DECORATION: none } A.sidebar2:visited { FONT-WEIGHT: bold; COLOR: #fff; BACKGROUND-COLOR: transparent; = TEXT-DECORATION: none } A.sidebar2:active { FONT-WEIGHT: bold; COLOR: #000000; BACKGROUND-COLOR: transparent; = TEXT-DECORATION: none } A.sidebar2:hover { FONT-WEIGHT: bold; BACKGROUND: none transparent scroll repeat 0% 0%; = COLOR: #ffffff; TEXT-DECORATION: none } A.nav1:link { FONT-WEIGHT: bold; FONT-SIZE: 12px; COLOR: #ffffff; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav1:visited { FONT-WEIGHT: bold; FONT-SIZE: 12px; COLOR: #ffffff; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav1:active { FONT-WEIGHT: bold; FONT-SIZE: 12px; COLOR: #ffffff; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav1:hover { FONT-WEIGHT: bold; FONT-SIZE: 12px; BACKGROUND: none transparent scroll = repeat 0% 0%; COLOR: #ffffff; TEXT-DECORATION: none } A.nav1a:link { FONT-SIZE: 12px; COLOR: #ffffff; BACKGROUND-COLOR: transparent; = TEXT-DECORATION: none } A.nav1a:visited { FONT-SIZE: 12px; COLOR: #ffffff; BACKGROUND-COLOR: transparent; = TEXT-DECORATION: none } A.nav1a:active { FONT-SIZE: 12px; COLOR: #ffffff; BACKGROUND-COLOR: transparent; = TEXT-DECORATION: none } A.nav1a:hover { FONT-SIZE: 12px; BACKGROUND: none transparent scroll repeat 0% 0%; = COLOR: #ffffff; TEXT-DECORATION: none } A.nav2:link { FONT-WEIGHT: bold; FONT-SIZE: 12px; COLOR: #000000; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav2:visited { FONT-WEIGHT: bold; FONT-SIZE: 12px; COLOR: #000000; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav2:active { FONT-WEIGHT: bold; FONT-SIZE: 12px; COLOR: #000000; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav2:hover { FONT-WEIGHT: bold; FONT-SIZE: 12px; BACKGROUND: none transparent scroll = repeat 0% 0%; COLOR: #000000; TEXT-DECORATION: none } A.nav2a:link { FONT-WEIGHT: bold; FONT-SIZE: 9pt; COLOR: #000000; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav2a:visited { FONT-WEIGHT: bold; FONT-SIZE: 9pt; COLOR: #990000; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav2a:active { FONT-WEIGHT: bold; FONT-SIZE: 9pt; COLOR: #cc0033; BACKGROUND-COLOR: = transparent; TEXT-DECORATION: none } A.nav2a:hover { BACKGROUND: none transparent scroll repeat 0% 0%; COLOR: red; = TEXT-DECORATION: none } .fipbutton { FONT-WEIGHT: bold; FONT-SIZE: 10pt; BACKGROUND: #000000; COLOR: = #ffffff; FONT-FAMILY: arial, helvetica, sans-serif; TEXT-DECORATION: = none } .fipbutton A { FONT-WEIGHT: bold; FONT-SIZE: 10pt; BACKGROUND: #000000; COLOR: = #ffffff; FONT-FAMILY: arial, helvetica, sans-serif; TEXT-DECORATION: = none } .fipbutton { PADDING-RIGHT: 2px; PADDING-LEFT: 2px; PADDING-BOTTOM: 2px; WIDTH: 20%; = PADDING-TOP: 2px; BORDER-BOTTOM: #ffffff 1px solid } .orgbutton { FONT-WEIGHT: bold; FONT-SIZE: 12px; BACKGROUND: #990000; COLOR: = #ffffff; FONT-FAMILY: arial, helvetica, sans-serif; TEXT-DECORATION: = none } .orgbutton A { FONT-WEIGHT: bold; FONT-SIZE: 12px; BACKGROUND: #990000; COLOR: = #ffffff; FONT-FAMILY: arial, helvetica, sans-serif; TEXT-DECORATION: = none } .orgbutton { PADDING-RIGHT: 2px; PADDING-LEFT: 2px; PADDING-BOTTOM: 2px; WIDTH: 20%; = PADDING-TOP: 2px } .navbartitle { FONT-WEIGHT: bold; FONT-SIZE: 9pt; BACKGROUND: #003366; COLOR: #ffffff; = FONT-FAMILY: arial, helvetica, sans-serif; HEIGHT: 25px; = TEXT-DECORATION: none } .navbartitle A { FONT-WEIGHT: bold; FONT-SIZE: 9pt; BACKGROUND: #003366; COLOR: #ffffff; = FONT-FAMILY: arial, helvetica, sans-serif; HEIGHT: 25px; = TEXT-DECORATION: none } .navbartext { FONT-SIZE: 9pt; BACKGROUND: #6666ff; COLOR: #ffffff; FONT-FAMILY: = arial, helvetica, sans-serif; TEXT-DECORATION: none } .navbartext A { FONT-SIZE: 9pt; BACKGROUND: #6666ff; COLOR: #ffffff; FONT-FAMILY: = arial, helvetica, sans-serif; TEXT-DECORATION: none } HR.center90 { WIDTH: 90% } HR.center75 { WIDTH: 75% } HR.left75 { WIDTH: 75%; TEXT-ALIGN: left } HR.right75 { WIDTH: 75%; TEXT-ALIGN: right } HR.center25 { WIDTH: 25% } HR.left25 { WIDTH: 25%; TEXT-ALIGN: left } HR.right25 { WIDTH: 25%; TEXT-ALIGN: right } HR.center50 { WIDTH: 50%; TEXT-ALIGN: center } HR.left50 { WIDTH: 50%; TEXT-ALIGN: left } HR.right50 { WIDTH: 50%; TEXT-ALIGN: right } .width-left-nav { WIDTH: 132px } .width-FIP-gap { WIDTH: 18px } .width-head-foot { WIDTH: 450px } .blackmenu { WIDTH: 20% } .width-date-notice { WIDTH: 200px } .width18 { WIDTH: 18px } .width132 { WIDTH: 132px } .width150 { WIDTH: 150px } .width450 { WIDTH: 450px } .nowrap { WHITE-SPACE: nowrap } #slide-nav { PADDING-RIGHT: 2px; DISPLAY: inline; PADDING-LEFT: 2px; FONT-WEIGHT: = bolder; FONT-SIZE: medium; PADDING-BOTTOM: 2px; WIDTH: 10px; COLOR: = white; PADDING-TOP: 2px; BACKGROUND-COLOR: #990000; TEXT-DECORATION: = none } .strike { TEXT-DECORATION: line-through } @media Print =20 { page { MARGIN: 10% } H1 { page-break-inside: avoid } H2 { page-break-inside: avoid } H3 { page-break-inside: avoid } H4 { page-break-inside: avoid } BLOCKQUOTE { =09 } UL { =09 } OL { =09 } DL { =09 } } ------=_NextPart_000_0000_01C856AF.18296250 Content-Type: text/css; charset="iso-8859-1" Content-Transfer-Encoding: 7bit Content-Location: http://www.ainc-inac.gc.ca/2002-templates/ssi/inac2.css BODY { FONT-SIZE: 95% } P { FONT-SIZE: 95% } BLOCKQUOTE { FONT-SIZE: 95% } TABLE { FONT-SIZE: 95% } TD { FONT-SIZE: 95% } TH { FONT-SIZE: 95% } INPUT { FONT-SIZE: 95% } SELECT { FONT-SIZE: 95% } FORM { FONT-SIZE: 95% } INPUT { FONT-SIZE: 95% } BUTTON { FONT-SIZE: 95% } TEXTAREA { FONT-SIZE: 95% } OPTION { FONT-SIZE: 95% } FIELDSET { FONT-SIZE: 95% } LABEL { FONT-SIZE: 95% } UL { FONT-SIZE: 98% } LI { FONT-SIZE: 98% } DD { FONT-SIZE: 98% } DL { FONT-SIZE: 98% } DT { FONT-SIZE: 98% } H1 { FONT-SIZE: 135% } H1.spch { FONT-SIZE: 125% } H2 { FONT-SIZE: 125% } H3 { FONT-SIZE: 110% } H4 { FONT-SIZE: 110% } H5 { FONT-SIZE: 110% } H6 { FONT-SIZE: 100% } .size-larger { FONT-SIZE: 140% } .size-large { FONT-SIZE: 120% } .size-small { FONT-SIZE: 90% } .size-smaller { FONT-SIZE: 80% } .s3 { FONT-SIZE: 95% } .s2 { FONT-SIZE: 95% } .s1 { FONT-SIZE: 80% } .cntct { FONT-SIZE: 90% } .footnote { FONT-SIZE: 80% } SUP { FONT-SIZE: 80% } A.nav1a:link { FONT-SIZE: 95% } A.nav1:link { FONT-SIZE: 95% } A.nav1a:visited { FONT-SIZE: 95% } A.nav1:visited { FONT-SIZE: 95% } A.nav1a:active { FONT-SIZE: 95% } A.nav1:active { FONT-SIZE: 95% } A.nav1a:hover { FONT-SIZE: 95% } A.nav1:hover { FONT-SIZE: 95% } A.nav2a:link { FONT-SIZE: 90% } A.nav2:link { FONT-SIZE: 95% } A.nav2a:visited { FONT-SIZE: 90% } A.nav2:visited { FONT-SIZE: 95% } A.nav2a:active { FONT-SIZE: 90% } A.nav2:active { FONT-SIZE: 95% } SELECT { FONT-SIZE: 9pt } .fipbutton { FONT-SIZE: 95% } .fipbutton A { FONT-SIZE: 95% } .orgbutton { FONT-SIZE: 95% } .orgbutton A { FONT-SIZE: 95% } .navbartitle { FONT-SIZE: 95% } .navbartitle A { FONT-SIZE: 95% } .navbartext { FONT-SIZE: 95% } .navbartext A { FONT-SIZE: 95% } ------=_NextPart_000_0000_01C856AF.18296250--