Introduction
Last year, this chapter focussed on the social and economic
conditions of Aboriginal people. This year, the chapter focusses on the
Aboriginal Horizontal Framework. This Framework, developed over the past 18
months, arranges all federal programs and services directed specifically to
Aboriginal people in Canada under seven thematic headings. These seven themes
were developed as a response to the Canada-Aboriginal Peoples Roundtable. By
organizing the programs and services in this manner, the federal government
hopes to give a far clearer and more detailed picture of the extent and
objectives of federal programs targeted to Aboriginal peoples. It is also hoped
that the Framework will prove to be a useful tool to help federal departments
and agencies obtain better results by managing their programs more effectively.
The work on the Framework began on April 19, 2004, when Prime
Minister Paul Martin opened the first-ever Canada-Aboriginal
Peoples Roundtable. This marked a step forward in improving the relationship
between the Government of Canada and Aboriginal peoples. It was during this
Roundtable that the federal government made a commitment to improve program
results and the accountability relationships that frame their delivery. This
includes working with First Nations, Inuit, and Métis organizations, provinces,
and territories to clarify roles and improve the federal government's
transparency, accountability, and reporting on Aboriginal programs. In the
January 2005 accountability for results session, the federal government
committed to disclosing a detailed picture of direct federal program spending in
2004-05 targeted to Aboriginal peoples in Canada. This chapter, a first step in
meeting this commitment, contains figures on federal spending rolled up for all
programs within each thematic area.
In 2004-05, 34 federal departments and agencies have worked
together to develop the Aboriginal Horizontal Framework. The Framework's seven
thematic areas are as follows: health, lifelong learning, safe and sustainable
communities, housing, economic opportunities, land and resources, and governance
and relationships (See Figure 4.1). Federal departments identified sub-themes
and strategic outcomes to provide more structure and logic to numerous programs.
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The fully detailed Aboriginal Horizontal Framework is available
at the following Web site: http://www.tbs-sct.gc.ca/aaps-aapd.
It includes additional information on the specific programs, including actual
spending for 2004-05.
This is a first step toward increased transparency about-and
improved horizontal management of-federal programs; the data presented here are
therefore limited. The Framework, for example, does not capture the Aboriginal
share of programs of general application, which are available to all Canadians,
such as the benefits of employment insurance or the tax system. Nor does it
cover general application program spending in regions where First Nations and
Métis people and the Inuit, make up a proportionately high percentage of the
population, for instance, north of the 60th parallel. These limitations
underline that much further work is needed to refine the data, to complete the
spending picture, and to enhance the Framework to be a useful management tool.
The Framework is not meant to be static; it will evolve to
reflect new directions in federal policies and programs that emerge from the
engagement of Aboriginal peoples with governments. The goal is to keep the
Framework up-to-date so that it retains its usefulness for governments and
Aboriginal people.
The Government of Canada's contribution with respect to Aboriginal peoples
The federal government has a unique relationship with the
Aboriginal peoples of Canada. This special relationship is expressed through the
fact that Aboriginal peoples are the only citizens of Canada that are
specifically mentioned in the Constitution. The Aboriginal and treaty rights of
First Nations, Métis people and the Inuit are protected by section 35 of The
Constitution Act, 1982. Because of these constitutional rights, the federal,
provincial, and territorial governments are obliged by law to take Aboriginal
rights into consideration in their legal and political work.
For First Nations people, the Indian Act further defines
many aspects of their relationship with Canada. The Indian Act establishes
certain federal government obligations in relation to First Nations communities.
It also provides for the management of Indian reserve lands, Indian moneys, and
other resources.
In addition to treaties and legislation, the federal government
provides extensive programs in its efforts to reduce the disparity in life
opportunities between Aboriginal people in Canada and Canadians. On many
indicators of well-being, such as educational attainment, employment, or health,
the results for Aboriginal people are unacceptable. The importance of working
together with Aboriginal people and provincial and territorial governments to
address these concerns has been outlined not only by the Canada-Aboriginal
Peoples Roundtable but also in the October 2004 Speech from the Throne.
The goal of the Government of Canada is to create the conditions
for long-term success in learning, economic opportunities, modern institutions,
and governance, all while respecting historical rights and agreements. This
year's budget announced $1.4 billion as part of the Government of Canada's
commitment to a renewed partnership with Aboriginal people. It includes $735.0
million in new investments in housing, special education, and early learning and
childcare. These programs are aimed at ensuring that Aboriginal people and
communities share the country's prosperity, with a focus on children, youth, and
their families.
Several sectoral follow-up sessions arose as a result of the
Canada-Aboriginal Peoples Roundtable. Representatives of federal departments,
national Aboriginal organizations, and other experts all participated in these
sessions to discuss how to proceed in the following key policy areas: health,
lifelong learning, housing, economic opportunities, negotiations, and
accountability for results. The culmination of this work was the May 31, 2005,
policy retreat, where the Prime Minister and members of the federal government
met with leaders of five national Aboriginal organizations. Political accords
were signed with each of the national Aboriginal organizations and the federal
government. These accords reflect the commitment by all parties to ensure that
First Nations and Métis people and the Inuit can realize their aspirations and
share in the overall prosperity of Canada.
Federal government expenditures in Aboriginal programs
As displayed in the Aboriginal Horizontal Framework, in 2004-05,
34 federal departments, agencies and Crown corporations provided 360 programs
and services targeted to Aboriginal people with total expenditures of
approximately $8.2 billion (see figure 4.2). Indian and Northern Affairs Canada
(INAC) spends 61.5 per cent and Health Canada spends 21.0 per cent of this
amount toward core services for First Nations people on-reserve and the Inuit,
such as education, health, infrastructure, and social development. Other federal
departments also provide a wide range of programs and services that benefit
various Aboriginal groups, including First Nations people, the Inuit, Métis
people, Aboriginal women, urban Aboriginal people, and Aboriginal people living
in rural and remote communities.
In addition to the $8.2 billion, the federal government funds
pan-Canadian programs and provincial or territorial funding transfers that
benefit all Canadians, including Aboriginal peoples. Provinces and territories
also have their own suite of programs and services for Aboriginal people living
off-reserve and in the North to improve their quality of life.
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![Federal Government Expenditures in Aboriginal Programming by Thematic Area](/web/20060116191035im_/http://www.tbs-sct.gc.ca/report/govrev/05/cp-rc04-small_e.gif)
This chapter includes information on federal government
expenditures in the following seven thematic areas and their respective
outcomes:
1. Health: improved health of Aboriginal peoples;
2. Lifelong learning: maximized participation and
success in early learning, education, training, and skills development built
on Aboriginal heritage;
3. Safe and sustainable communities: Aboriginal
communities are safe, stable, and sustainable;
4. Housing: Aboriginal people have improved access to
suitable, adequate, affordable housing and related support;
5. Economic opportunities: sustainable wealth creation
and participation in the economy;
6. Lands and resources: sustainable use and management
of First Nations and Inuit lands and resources by First Nations people and the
Inuit; and
7. Governance and relationships: sound Aboriginal
governance and support of institutional capacity and clarification of the
respective roles in the relationship.
Supplemental Information
Aboriginal peoples
Aboriginal demographics
Performance context
The Aboriginal Horizontal Framework enables the Government of
Canada to begin working with Aboriginal communities and organizations to develop
meaningful performance measures to evaluate its performance and determine
whether its key commitments and goals are being met. Until these measures are
developed, indicators such as life expectancy and infant mortality rates, which
have been tracked by Statistics Canada for the 2001 Census, illustrate the
current level of progress. In the electronic version of the report, clicking on
indicators in the Performance Highlight table will lead you to detailed
information about current performance and trends.
Trend |
Indicator |
Performance Highlight |
▲ |
Life expectancy |
Between 1990 and 2001, life expectancy for First Nations
men increased from 66.9 years to 70.4 years. In the same period, life
expectancy for First Nations women increased from 74.0 years to 75.5
years. |
▲ |
Infant mortality |
Infant mortality rates for First Nations communities
dropped from 12.3 in 1991 to 6.4 deaths per 1,000 live births in 2000. |
Note: The legend summarizing the symbols used in the table
above can be found in the introduction, on page 2.
Why is it important?
Improving the health of Aboriginal people is fundamental to
creating the conditions for individuals and communities to participate
productively in society. Although the majority of Canadians are much healthier
than ever before, major disparities still exist between the health of Canadians
and that of Aboriginal people in Canada. The health status of Aboriginal people
remains substantially poorer than that of the general Canadian population,
despite improvements over the past 20 years.
The Government of Canada is working to improve the health of
Aboriginal communities, but there is still much to be done. On September 13,
2004, the Prime Minister chaired a special meeting with first ministers and
Aboriginal leaders to discuss joint actions to improve Aboriginal health and
adopt measures to address this disparity. Following the meeting, the federal
government announced a series of new commitments to improve health services and
reduce the gap in health status between Aboriginal people and non-Aboriginal
people, such as $200.0 million for the Aboriginal Health Transition Fund, $100.0
million for the Aboriginal Health Human Resources Initiative, and $400.0 million
for health promotion and disease prevention programs.
The Government of Canada's expenditures and programs related to the health
of Aboriginal people
Health Canada is the main federal department that provides
programming in this area and its programming is mainly targeted to First Nations
communities. In addition, in 2004-05, a total of 5 departments and agencies
contributed $1.8 billion to the pursuit of improved health of Aboriginal people
through the provision of 68 programs and services.
The primary federal role is to ensure access to health services
for First Nations and Inuit communities. For instance, the federal government
works to ensure that, regardless of residency, First Nations people and the
Inuit have access to the Non-Insured Health Benefits Program, including coverage
for drugs, dental benefits, vision care, provincial health premiums, crisis
intervention, and mental health counselling. The federal government also works
to ensure health promotion and prevention programs and public health activities
are available to First Nations communities and that primary care services are
available to First Nations people living in remote and isolated communities
where no provincial services exist. While the federal government provides
funding for such programs, First Nations communities often deliver the programs.
In the territories, the federal government has devolved health
services to the territorial governments. The federal government nevertheless
continues to deliver some targeted programs to First Nations people and the
Inuit in the territories, mostly in the areas of prevention and promotion
activities.
Clicking on the
links in the electronic version of the following table will lead you to detailed
program and expenditure information related to health programs.
Display text version
Supplemental Information
Safe water treatment
Performance context
The Aboriginal Horizontal Framework enables the Government of
Canada to begin working with Aboriginal communities and organizations to develop
meaningful performance measures to evaluate its performance and determine
whether its key commitments and goals are being met. Until these measures are
developed, indicators such as educational attainment, which have been tracked by
Statistics Canada for the 2001 Census, illustrate the current level of progress.
In the electronic version of the report, clicking on the indicator in the
Performance Highlight table will lead you to detailed information about current
performance and trends.
Trend |
Indicator |
Performance Highlight |
▬ |
Educational
attainment |
The percentage of Aboriginal people aged 25 to 34 who are
out of school and who have a college or university degree remained
relatively stable for each Aboriginal group from 1996 to 2001. The
percentage of Aboriginal youth aged 20 to 24 whose highest level of
schooling was incomplete secondary school or less declined from 1996 to
2001. |
Note: The legend summarizing the symbols used in the table
above can be found in the introduction, on page 2.
Why is it important?
Lifelong learning is defined as the acquisition of knowledge and
skills throughout an individual's lifespan. Participation in the full spectrum
of lifelong learning facilitates the ability of Aboriginal people to develop the
knowledge and skills to reinforce and strengthen their Aboriginal identity,
fully participate in the Canadian economy, and enjoy quality of life outcomes
comparable to those of Canadians. Studies have shown that education is the
single greatest contributor to closing the gap between Aboriginal
people and non-Aboriginal people. It is recognized that there is a strong
correlation between a culturally relevant curriculum, learning programs that
reflect Aboriginal values, traditions, and languages, and achieving positive
education outcomes for Aboriginal students. It is therefore essential that
lifelong learning take place within the context of language and cultural
renewal.
The Government of Canada's lifelong learning expenditures and programs for
Aboriginal people
In 2004-05, 14 federal departments and agencies contributed $1.9
billion toward the pursuit of maximized participation and success in early
learning, education, training, and skills development built on Aboriginal
heritage through the provision of 59 programs and services.
Did you know?
The Task Force on Aboriginal Languages and Cultures
released its
final report in July 2005. It makes recommendations to the Government
of Canada on actions to ensure the survival and longevity of Canada's
Aboriginal languages and cultures. |
In the area of early learning and childcare, the federal
government funds core services for First Nations and Inuit communities, such as
elementary and secondary education and special education. These programs are
administered and delivered at the community level. Budget 2005 announced
additional funding of $100.0 million for First Nations and Inuit early learning
and childcare and $120.0 million for special education for First Nations
children living on-reserve.(1) Provinces and territories provide early learning and
childcare programs and elementary and secondary education programs for children
living off-reserve, including for Inuit and Métis children.
The federal government also provides support to Aboriginal
learners in accessing post-secondary education. For instance, INAC provides
$297.6 million for Post Secondary Education for Inuit and Status Indian students
living on- and off-reserve. In addition, Canadian Heritage provides endowments
of $22.0 million to the National Aboriginal Achievement Foundation to provide
scholarships to all Aboriginal students, including Métis and Aboriginal
students living in urban centres.
Further along the lifelong learning continuum, the federal
government has implemented the Aboriginal Human Resources Development Strategy,
a major career and skills development program geared to First Nations and Métis
people and the Inuit. In keeping with the need expressed by all Aboriginal
peoples to acknowledge the importance of language and culture, there are over 28
programs offered by 6 departments and agencies in the following categories:
cultural heritage and history (2), Aboriginal languages and living cultures
(14), and artistic expression (12).
Clicking on the links in the electronic version of the following
table will lead you to detailed program and expenditure information related to
programs and services offered along the lifelong learning continuum.
Display text version
Why is it important?
Aboriginal communities are located within all regions of Canada,
on reserves, on lands owned and managed by Aboriginal people, on Crown land, and
in urban and rural settings. A safe and sustainable community provides a
socio-economic and physical infrastructure base for Aboriginal people to build
their lives upon and to respond to the diverse challenges they face. Fundamental
elements of safe and sustainable Aboriginal communities include access to basic
infrastructure services such as water, sanitation facilities, roads, and
electrical services. It also includes access to emergency services such as
effective, community-based crime prevention, police services, justice
approaches, correctional and parole services, and emergency management
assistance. Culturally appropriate policing, justice, and correctional
initiatives that are sensitive to the needs and current realities of Aboriginal
people are key components of safety in many Aboriginal communities.
Another element of safe and sustainable communities is
strengthened individual, family, and community well-being. This requires
effective social and community support that is inclusive, holistic, and
culturally based, both on- and off-reserve, with programming for Aboriginal
women and youth and support for Aboriginal friendship centres.
Did you know?
Half of the Aboriginal population in Canada resides in
urban areas. A network of 118 friendship centres across the country serves
the interest of urban Aboriginal people in the areas of social, cultural,
economic, and community development. Friendship centres produce a wide
range of positive achievements for Aboriginal people, including increased
pride and self-esteem and improved access to programs and services |
The Government of Canada's expenditures and programs for Aboriginal
communities that are safe, stable, and sustainable
In 2004-05, 15 federal departments and agencies contributed to
the pursuit of safe, stable, and sustainable Aboriginal communities through the
provision of 87 programs and services, with a total cost of $2.4 billion. The
goal of these programs and services is to ensure that the basic needs of
Aboriginal people are met and that the safety and well-being of individuals and
families are assured.
The majority of INAC programs provide funding to First Nations
communities to deliver basic services such as income assistance, child and
family services, and capital infrastructure, including support to help resolve
water quality concerns in First Nations communities. The 2005 Budget announced
an additional $125.0 million over five years to help better meet the needs of
First Nations communities in delivering such basic services.
Programs provided by federal departments help to promote
community well-being; these are generally inclusive of all Aboriginal peoples.
Examples include the Aboriginal pillar of the National Crime Prevention Program
or the Aboriginal Justice Strategy. Some programs are targeted to specific
Aboriginal groups, such as the Urban Aboriginal Strategy, which is a series of
pilot projects pioneering innovative ways to meet the unique needs facing the
urban Aboriginal population in Canada, non-status Indians, and Métis people.
Finally, in some areas the federal government is working with provinces,
territories, and Aboriginal groups to improve community stability and safety,
such as the tripartite First Nations Policing Program, which is helping First
Nations communities create a safer and more stable environment.
Did you know?
Recruitment of Aboriginal candidates to the Royal Canadian
Mounted Police is an effective way to provide culturally sensitive police
services to Aboriginal communities, while assisting the Royal Canadian
Mounted Police to remain representative of the communities they serve.
In 2004, the Royal Canadian Mounted Police had
approximately 850 police officers that self-identified as Aboriginal
peoples, representing 5.6 per cent of the total officer contingent.
The Royal Canadian Mounted Police is working hard to
increase this number through a variety of programs and also contributes
directly to the general health and safety of Aboriginal people, through
working with over 600 First Nations, Inuit, and Métis communities. |
Clicking on the links in the electronic version of the following table will lead you to detailed
program and expenditure information on programs related to safe, stable, and sustainable communities.
Display text version
Supplemental Information
Aboriginal communities
Justice practices
Aboriginal incarceration rate
|