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·	From Theory To Practice

• Introduction
• Project Description
• Evaluation Approach
• Key Findings
• Conclusions

Introduction

This brief summarises the findings from the formative evaluation study of the Western Aboriginal Development Alliance (WADA) Strategic Initiative. The evaluation was managed by representatives from Human Resources Development Canada (HRDC), with input from the WADA.

The formative evaluation is the second component in a three-staged evaluation process. The first stage was the development of a detailed evaluation framework, and the final component will be a summative evaluation in the fall of 1998. The intent of the formative evaluation is to collect baseline data to be used in the summative analysis as well as to identify the types of models being used and some of the issues which have arisen to date, in order to make midterm modifications to the program.

Project Description

The Stronger Together Strategic Initiative was developed with the full cooperation of First Nations and Métis communities, HRDC and WADA. The mandate of the program is to create employment for Aboriginal and First Nation people and decrease reliance on social assistance. The program aims to form a partnership between Aboriginal and First Nations people, businesses and the community, thereby opening the door to long-term employment opportunities for Aboriginal and First Nations people. The financial support which is available to program participants is intended to provide support services such as training, career and family counselling, child care and, in some cases, supplementary wages.

One of the most unique attributes of the Strategic Initiative is the use of consumer leverage as a form of moral suasion to encourage employers to provide employment opportunities to Aboriginal and First Nations people. In cases where Aboriginal and First Nations people purchase significant goods from a business, the hope is that the employer will consider Aboriginal people for available jobs. If this initiative is successful in the selected Alberta communities, this framework may serve as a guide to other Canadian provinces.

Evaluation Approach

The formative evaluation of the WADA Strategic Initiative utilises a triangulation approach to collecting the required data. That is, multiple data sources were accessed, more than one evaluator was involved in the study, and the results were analysed in more than one way (qualitative and quantitative approaches). A wide range of data collection approaches were utilized in the study, including interviews with key administrators and project stakeholders and meetings with representatives from the communities included in the evaluation. Other tasks included the collection of baseline data from 35 program participants; interviews with ten employers; development of participant profiles; and an attempt to collect comparison group data. A literature review of similar programs and the findings from their evaluations was also completed.

Key Findings

Program Delivery

The four communities included in the formative evaluation had all utilised slightly different models to carry out the Strategic Initiative, depending on their history, culture, local infrastructure and administration. There appeared to be flexibility in the way the program was introduced by WADA to each community, and the local administrators appreciated this flexibility and adapted the Strategic Initiative to the needs of their area. The overriding philosophy of the communities was the need to create long term employment, however each had slightly different approaches to doing this (e.g., the development of on-reserve businesses and the belief that wage subsidies are ineffective). In only a very few instances was the consumer leverage model considered appropriate and therefore utilised to generate employment opportunities. Participants and employers were identified in different ways, with some communities seeking out appropriate candidates and employment opportunities, while others relied on the participants themselves to identify jobs and then seek financial assistance. There were substantial differences in the infrastructure of the communities, both in terms of available staff and existing programs and services. The commitment of the program administrator appeared to play a significant role in the success of the Strategic Initiative.

Baseline Questionnaire Findings

Participants in the Strategic Initiative were found to have fewer barriers, with a reasonable level of education and some work experience. While they did encounter barriers to employment, most notably child care issues and lack of transportation, they did not appear to have substantial barriers which would preclude their participation in the workforce. Skills training, training on the job and work experience were considered to be the primary job skills they needed to obtain employment. An interesting finding was that the majority of respondents considered working with other Aboriginals, working in an Aboriginal firm, working close to home and working in the community were important factors to them. Almost all participants interviewed were currently working an average of 40 hours per week and earning an average of $8.33 per hour. More than three quarters of respondents were working in the processing, manufacturing and utilities industries, or sales and service or trades/transport/equipment areas. Respondents had a healthy perception of life, and felt that in the future it was likely they would be working in a company/industry they enjoy and applying new skills. They felt less certain that their employment would be a 'career job'; however, the interpretation of a ‘career job’ was left up to the respondent. Almost none of the respondents felt they would be unemployed in the future.

Employer Findings

The majority of the employers interviewed had never accessed government-funded employment programs, mainly because they had never heard of any that were applicable to their business. Employers were keen to access the wage subsidy and felt that it was particularly helpful in the training of new employees. Four out of ten employers had heard of WADA, however three of the four understood it to be a wage subsidy program, and only one mentioned the concept of consumer leverage.

Comparison Group Findings

The WADA Stronger Together Strategic Initiative had a comparison component as part of its overall national framework research design. After careful review of the comparison group approach, and following discussions with HRDC and the participating communities, the research design and tools proposed for the comparison study were not deemed suitable nor acceptable for use with the participants in the WADA Strategic Initiative.

Conclusions

Based on the qualitative and quantitative data collected in the formative evaluation, the following conclusions were drawn from the Western Aboriginal Development Alliance Strategic Initiative.

1. The Strategic Initiative was successful in generating employment for a significant number of Aboriginal and First Nations people. It appeared that the program will meet its overall goal in terms of the number of participants employed.
2. The consumer leverage model is a new approach for generating Aboriginal and First Nations employment and it was considered a positive element of the initiative in that it is important to introduce various employment models, since all communities are unique and different models fit different communities.
3. Communities who had had no access in the past to government funds were pleased and encouraged to be included in the Strategic Initiative.
4. The consumer leverage model may not be appropriate for some Aboriginal and First Nations communities. The history, culture and infrastructure of these communities may not lend itself well to the direct, and possibly confrontational approach of consumer leverage. In addition, for consumer leverage to have a chance of working, the community needs to have the right characteristics (e.g., close to a populated centre, political will to have community members work off reserve).
5. In communities with an existing human resource and economic development infrastructure, the Strategic Initiative appeared to be incorporated into the ongoing planning and delivery process.
6. It did appear that some communities were using the opportunity placement approach in securing employment for their participants.
7. The delivery of the Strategic Initiative, through community-based administration, was a positive feature of the program, and appeared to contribute measurably to the success identified to date.
8. It did not appear that meaningful working partnerships had been developed between Aboriginal and First Nations communities and the corporate and business sectors (one of the program objectives). The communities had a commitment to the generation of jobs, but this commitment had not been conveyed to the employer population.
9. There were some operational issues which were identified, as follows:

• It appeared that the Strategic Initiative was introduced to some communities with an option of consumer leverage or economic development as a legitimate approach to securing employment for participants.
• It did not appear that WADA staff screened communities along a set of consistent criteria to ensure their appropriateness to participate in the Strategic Initiative.
• It did not appear that clear direction was given to the communities on the guidelines and expected outcomes of the program specific to consumer leverage.
• Communities need more frequent interaction and greater assistance from the WADA staff in the administration of the program. A frequent and consistent follow-up mechanism should be developed between WADA and the participating communities.
• There are insufficient staff and time resources in the WADA organization to effectively coordinate and provide support to the four communities involved in the evaluation.
• WADA staff should help communities in their long term human resource planning process to ensure that this is being done and in a manner appropriate for the program.
• The reporting process should be streamlined by requesting a monthly report on participant activities from each community.