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4.1 Introduction

The intent of this literature review is to provide some background on the employment needs of Aboriginal and First Nation people, and the approaches which have been tried to date. Some conclusions are drawn at the end of the section on which approaches appear to have the most success, and some concepts which may be useful to incorporate into the WADA Strategic Initiative.

4.2 Limitations

A number of limitations have been encountered in the preparation of this literature review, as follows:

• The information collected is not entirely current, and much of the program information dates back to the early 1990's. Further investigation is being done to update the information, and a final version will be prepared for the final report.

• There appears to be a lack of outcome information for many of the programs, although some additional evaluations have been requested for inclusion in the final report.

4.3 The Issue

Judging from a variety of socio-economic indicators, the employment and training needs of Aboriginal and First Nation people are considerable when compared to non-Aboriginal and First Nation people. An analysis of 1996 Census data estimated that the unemployment rate for Aboriginal and First Nation people is double that of the national average, and in some areas of the county the rate is five to six times higher than that recorded for non-Aboriginal and First Nation people.¹ In addition, the Aboriginal and First Nation population is younger, and while the Canadian population is moving towards retirement age in the next two decades, the Aboriginal and First Nation population will experience growth in the number of individuals who reach working age.²

Education will also play an important role in the participation of Aboriginal and First Nation people in the Canadian labour market. The current rate of Aboriginal and First Nation illiteracy is over twice the national average and the grade 12 completion rate for Aboriginal and First Nation people is half the rate of non-Aboriginal and First Nation people.³

The consequences of high unemployment and low educational attainment are profound. Low income levels (one half to one third of non-aboriginal incomes) combined with other factors (e.g. housing conditions, community infrastructure), create a situation of serious economic inequality. The social costs of high unemployment, dependency on social assistance and low educational attainment are high.⁴

Suicide rates among Aboriginal and First Nation people are three to four times the national average, and a similar trend is evident for rates of incarceration of Aboriginal and First Nation people in provincial and federal penitentiaries.⁵ Personal, community and systemic barriers contribute to a lack of self-esteem and the inability to break out of cycles of government assistance and unemployment.

4.4 Strategies

The lack of meaningful activity in the lives of Aboriginal and First Nation people and the barriers to achieving their potential has been typically addressed through individual and community-based resource development. By providing access to training and employment opportunities, it has been felt that Aboriginal and First Nation people and communities will become more responsible and accountable for their lives.⁶

Historically, employment programs were offered in Aboriginal and First Nation communities in a top-down fashion. This approach was not considered to be optimal, and in the past five years, the delivery and control of training and employment programs has been placed more in the hands of the Aboriginal and First Nation communities and organisations. This approach to Aboriginal and First Nation labour force development is consistent with other community development initiatives which have been successful in Aboriginal and First Nation communities, including Aboriginal-owned enterprises, educational programs, and training and educational institutions. This increasing development and control of community-based training, employment and educational programs supports the progressive goal of Aboriginal and First Nation self-government and self-determination.

The following section provides a brief overview of the types and scope of services and programs which have been implemented by the Federal and Provincial governments to assist Aboriginal and First Nation people in moving into the workforce. A brief overview of each approach is provided, and in some cases a discussion of the limitations of these programs in meeting the needs of Aboriginal and First Nation people.

4.4.1 Federal Government Programs

• The Canadian Jobs Strategy
• Training and Employment Services
• Training Allowances
• Employment Insurance Developmental Uses
• Social Assistance Recipient Training
• Canadian Aboriginal Economic Development Strategy
• Native Internship Program (NIP)
• Federal/Provincial Agreements on Training
• Indian Community Human Resource Strategy
• Aboriginal Workforce Participation Initiative (AWPI)
• Aboriginal Business Development Program
• Canada/Yukon Economic Development Agreement
• Financial Transfer Agreements
• Pre-Vocational Training Initiatives

4.4.2 Provincial Government Aboriginal Programs

• Employment Counselling and Placement Services
• Indian Management Assistance Program
• The RCMP Native Students Program
• Aboriginal Oil and Gas Operations Program

4.5 Conclusions

The significant resources which have been devoted to Aboriginal and First Nation employment and training have not necessarily met the human resource development plans and labour market objectives of Aboriginal and First Nation people.⁷ The following outlines some of the findings from the various Aboriginal initiatives which have been tried, and links these findings to the WADA Strategic Initiative.

1. Delivery of Aboriginal and First Nation employment programs should, where appropriate, be through Aboriginal and First Nation community-based structures, organisations and related groups. An overall consultation process must be developed for Aboriginal and First Nation people to have input into program design. The use of a consultative process could provide significant input into how Aboriginal and First Nation employment problems could be resolved effectively within the framework of Aboriginal and First Nation communities.

   The WADA Strategic Initiative does utilise a community-based approach to service delivery, however input from the communities on the design and limitations of the program would have been useful. For example, in isolated communities such as Goodfish it was not likely that the consumer leverage model, in its pure sense, would be appropriate.

2. There is a need for greater emphasis on human resource planning. Government assistance should provide bands and tribal councils with human resource funds so that they can determine and deliver appropriate training programs for their communities.

   The WADA Strategic Initiative does have a strong human resource planning component; however, this element of the program may not have been explained or encouraged sufficiently to the participating communities.

3. Many Aboriginal and First Nation employment programs operate under a system of procedures, which are often contrary to the culture of Aboriginal and First Nation people. The size, formality and procedures often create barriers to positive interaction between staff members and Aboriginals seeking assistance.

   The WADA Strategic Initiative rely on existing individuals (staff members) in the community to deliver the program, and for the most part formal procedures are considered prohibitive.

4. Job creation is a significant and consistent result of on-reserve Aboriginal d First Nation businesses.

   The WADA Strategic Initiative has been used to fund existing and start-up on-reserve businesses, which, while creating employment opportunities, may not be within the guidelines of the program.

5. Many Aboriginal and First Nation employment programs were considered by the local community to have onerous reporting requirements.

The WADA Strategic Initiative reporting requirements were considered to be onerous by the administrators in the participating communities.

Footnotes

1	Indian and Northern Affairs Canada (INAC): customised data based on 1986 Census of Canada 1989 prepared by Quantitative Analysis and Socio-demographic Research (QUASR).
2	Ibid.
3	Ibid. Also, Profile of Higher Education in Canada, Department of Secretary of State, 1989.
4	Ibid.
5	Ibid.
6	Employment and Immigration Canada, ''Pathways to Success: Aboriginal Employment and Training Strategy, A Background Paper'', 1991, p.10.
7	Employment and Immigration Canada, ''Pathways to Success: Aboriginal Employment and Training Strategy, A Background Paper'', 1991, p.11.