Whatever happened to a representative workforce

in Saskatchewan?

Larry SandersResearch Associate

Indigenous Peoples Health Research

Centre (IPHRC)June 10, 2010

Agenda for today

• 1:00 – 1:30 Larry Sanders. Opening overview• 1:30 – 2:15 Wayne McKenzie• 2:15 – 2:45 Coffee and conversation in groups

(questions to consider)• 3:00 – 4:00 Collective discussion, groups will

report back, facilitated by Dr. Eber Hampton. Where do we go from here?

• 4:00 Closing

Send in questions and comments

e-mail:

larry.sanders@uregina.ca

Overview

• Personal policy history• Academic literature and reports on

representative workforce initiatives• Labour force statistics from Sask Trends

Monitor• Conclusions and recommendations

Representative of Ontario Coalition for Healthy Communities was keynote speaker, giving details of the manual they had produced about the complex work of building effective “partnerships” involving community organizations, First Nations and government agencies.

Victoria Gubbels, at the time working for SAHO, was the moderator of the forum. She said the regional health authorities had hired 1,900 people who had self-declared as aboriginal, out of a total workforce of about 36,000. That’s 5.27%

Panel of people involved in various aspects of trying to develop a representative workforce in Saskatchewan’s off-reserve health sector. Panel included representative from CUPE talking about aboriginal awareness training developed through a collaborative effort by union and management, Saskatoon and Regina regional health authorities talking about their strategies and programs, and a representative of SAHO talking about career pathing program.

Panel on HHR challenges faced by First Nation health organizations. L to R: representatives of Battleford Tribal Council Health Services, Gordon First Nation, Northern Inter-Tribal Health Authority (NITHA) and First Nations and Inuit Health Branch, Health Canada, Saskatchewan Region.

Representative workforce policies in action in the health sector

• partnerships: locally and provincially• aboriginal awareness training: preparing the

workplace, trying to break down myths and misconceptions, overt and covert racism

• supportive employee development strategies such as work preparation programs to enter the workforce, then career pathing and other supportive strategies once in the workforce

Existing research: 2001

Susan Pentelichuk 2001 thesis on apprenticeship system in Sask

• apprenticeship system working well, for young white males. Women and aboriginal people not aware of apprenticeship as a life option or rejected it

• cultural, distance, and language barriers stopped aboriginal people from participating

• apprenticeship training model of learning from a mentor in applied context understood and accepted, but workplace learning culture seen as barrier for women and aboriginal people (“macho white male” environment)

• recommendation: don’t lower standards of industry, but recognize different learning styles and adapt to accept other cultures

Existing research: 2003

Klyne, Richard J. "Employment barriers and aboriginal working life: towards a representative workplace in Saskatchewan." M.V/TEd. thesis, University of Regina, 2003. Found five key barriers to aboriginal employment and retention:

1. subtle and blatant racism; 2. recruitment and selection processes for employment; 3. a gap between official government policy and practice in

relation to workplace diversity;4. very few Aboriginal people in positions involving real

decision-making authority; and 5. some confusion about what constitutes a representative

workplace.

Existing research: 2007Caverley, Natasha. "What works: effective policies and

programs for aboriginal peoples of Canada." Ottawa, ON: Turtle Island Consulting Services Inc., 2007. Extensive lit review and national consultations. Best practices identified included:

• evidence-based strategic planning done by partnerships• hiring and supporting aboriginal employee career

development officers• aboriginal awareness training• aboriginal employee networks• develop and support evaluation methods relevant to

aboriginal people

Existing research: 2007Peach, Ian. "Case study research – Saskatchewan’s approach to increasing aboriginal people’s representation in the health care workforce. Prepared by the Saskatchewan Institute of Public Policy for Human Resources and Social Development Canada.” Saskatchewan Institute of Public Policy, University of Regina, 2007 study commissioned to learn about the “Saskatchewan model” in recognition of the “horizontal” nature of this policy issue and to document Saskatchewan’s experience in achieving some success in horizontal collaboration key informant interviews found mostly strengths and some “lessons learned” from the SK approach:

shared vision strategic framework, but not necessarily shared understanding of a strategic

direction leadership widely shared collaborators worked well together (“soft” management skills) allowance for flexibility in partnership so some task teams can take on specific

projects without necessarily implicating or engaging entire network recommended guidelines for horizontal collaboration projects to be funded by

federal government in the future

Existing research: 2010SMAHHR project: “Seeking models of aboriginal health human resources” received CIHR funding in 2006, signed research partnership agreement with Northern Inter-Tribal Health Authority (NITHA) in July 2007. SAHO and Health Canada were supportive co-applicants.Project launched to identify and elaborate indigenous ways of understanding health and indigenous ways of “managing human resources.” Project runs to September 30 2010

Key preliminary findings relevant to our discussion today: successful partnerships between aboriginal and non-aboriginal organizations and individuals should be constructed in an ethical space, where indigenous and non-indigenous world views have equal standing, not western dominant indigenous ways of thinking about and doing management of HR are wholisitic and focus on maintaining “good relations” and are likely exemplars for better management for everyone, not just aboriginal peoples aboriginal employees face multiple challenges and require supports such as career pathing to overcome effects of colonialism, racism, etc.

Existing research 2010 (continued)

Summary: RWF policies and practices• policy framework was based on evidence of what

worked, what wasn’t working, particularly building and maintaining strong partnerships at all levels, plus taking a long-term, wholistic approach to aboriginal employment development

• “Saskatchewan model” seen as national best practice

• no clear benchmarks; still a long way to go; some employers frustrated with “touchie-feelie” approach – they believe it should just be up to training institutions to prepare employees, aboriginal or otherwise

Unemployment rates, by EI RegionMarch 2009 December 2008 March 2008

Canada 7.7% 6.8% 6.3%

Regina 3.5% 3.6% 3.8%

Saskatoon 4.6% 4.0% 3.5%

Southern SK 6.3% 5.5% 6.1%

Northern SK 15.5% 15.5% 15.2%

Source: EI Monitoring and Assessment Report 2009Human Resources and Skills Development Canada

Annex 1.1 - Unemployment Rate, by EI Regionhttp://www.hrsdc.gc.ca/eng/employment/ei/reports/eimar_2009/index.shtml

Saskatchewan experienced the highest yearly rate of employment growth (+2.6%, or 13,200 added to the labour force) during the 2008-09 fiscal year. This was the first time that Saskatchewan held the top rank in employment growth since comparable data were first recorded in 1976/77

June 2, 2009 21

Saskatchewan’s Aboriginal Population in 2006

Excluding the population in collective dwellings, there were 141,890 persons who reported an Aboriginal identity in 2006.

Approximately two thirds are First Nation members, almost all of whom are “Registered” in the sense of The Indian Act.

There are about 3,000 individuals who reported that they were:

• Indian although not registered,

• Inuit, • another Aboriginal

identity, or • a combination of

these.

Aboriginal Identity Population in Saskatchewan, 2006, (n = 141,890)

Métis single identity48,11534%

Registered Indiansingle

identity90,72064%

Indian Identity, not Registered

680<1%

Multiple, Inuit and other

2,3752%

22June 2, 2009

Aboriginal Population in 2006: Interprovincial Comparison

Manitoba and Saskatchewan are, by far, the provinces with the largest Aboriginal populations as a percentage of the total population.

Although the largest proportion of Aboriginal people in Canada live in Manitoba and Saskatchewan, the highest number are in Ontario. In 2006, there were 242,000 Aboriginal people in Ontario compared with Saskatchewan’s 142,000.

Aboriginal Population as Percentage of the Total Population, 2006

4.7%

1.3%

2.7%

2.5%

1.5%

2.0%

15.5%

14.9%

5.8%

4.8%

3.8%

0% 2% 4% 6% 8% 10% 12% 14% 16% 18%

Nfld

PEI

NS

NB

Que

Ont

Man

Sask

Alta

BC

Canada

Note: NorthernTerritories = 53%

23June 2, 2009

Basic Counts: Residence in Urban Areas

As a proportion of the total population, Aboriginal people are more common in Prince Albert and North Battleford.

They are less common in Regina and Saskatoon and almost non-existent in southern urban centres such as Estevan and Swift Current.

Among urban centres, the fastest growing Aboriginal population from 2001 to 2006 was in Prince Albert.

Aboriginal Population as Percentage of the Total Population, 2006

34.1%

20.5%

12.9%

10.7%

9.3%

8.9%

4.9%

3.5%

1.8%

20.9%

0% 5% 10% 15% 20% 25% 30% 35% 40%

Prince Albert

North Battleford

Lloydminster (SK)

Yorkton

Saskatoon

Regina

Moose Jaw

Estevan

Swift Current

All other locations

24June 2, 2009

Completed Education: Changes over Time

The levels of completed education are rising in the Aboriginal and non-Aboriginal populations in Saskatchewan. The gap between the two is, however, widening.

From 1996 to 2006, for example, the proportion of adults with a post-secondary education increased:

• from 37% to 45% in the Non-Aboriginal population; and

• from 23% to 29% in the Aboriginal population.

Changes in Completed Education, Adult (15 and older) Population, 1996 to 2006

0% 10% 20% 30% 40% 50% 60% 70% 80%

Aboriginal

Non-Aboriginal

Aboriginal

Non-Aboriginal

At

leas

t G

rad

e 12

Po

st S

eco

nd

ary

Gra

du

ate

1996

2001

2006

25June 2, 2009

Employment: Interprovincial Comparison, 2006

The employment rates for the Aboriginal population are lower in Saskatchewan than in Canada as a whole or in either of our neighbouring provinces.

Employment Rates, Aboriginal Population 15 to 64 Years of Age, 2006

57%

53%

48%

64%

20% 30% 40% 50% 60% 70% 80%

Canada

Manitoba

Saskatchewan

Alberta

26June 2, 2009

Employment Rates by Urban Area, 2006

Employment rates tend to be higher in urban areas where relatively few Aboriginal people live – Estevan and Swift Current, for example.

Rates are noticeably lower in the larger centres – Regina and Saskatoon – and in Yorkton.

Employment Rates, Aboriginal Population, 15 & Older, 2006

78%

67%

66%

58%

56%

56%

56%

54%

52%

39%

0% 20% 40% 60% 80% 100%

Estevan

Lloydminster (SK)

Swift Current

Moose Jaw

North Battleford

Prince Albert

Regina

Saskatoon

Yorkton

All other locations

Composition of the Labour Force

Compared with today, the labour force of the future will have more Aboriginal people, more immigrants, and more older workers.

In 2009, 6% of the labour force is comprised of immigrants and an estimated 8% is comprised of Aboriginal people.

An increase in the participation rates for the Aboriginal population would increase their share beyond the 11% shown here.

March 22, 2010 27

Saskatchewan Labour Force in 2020

Aboriginal11%

Immigrants10%

Non-Aboriginal population

born in Canada

79%

Comparison of Labour Force Supply and Demand

In spite of the unprecedented growth in the population and the labour force, there is still a distinct possibility that the province will experience a general shortage of workers in the future.

If the demand for labour grows at 10,000 per year (the increase during the growth period of 2007 and 2008) the growth in the size of the labour force will be insufficient to meet the demand for workers.

March 22, 2010 28

Various Scenarios for Labour Market Supply and Demand

500,000

550,000

600,000

650,000

700,000

750,000

800,000

2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029

Increase in Demand of 10,000 per year

Supply

April 15, 2010 29

Monthly Employment Trends in Saskatchewan

The recent surge in employment started in 2006. There was a slowdown in 2007 which was thought to be caused by a shortage of workers rather than a shortage of jobs.

The 2.2% increase in the annual average for 2008 is the largest increase since the mid 1980s. Most of the growth happened over the summer, just before the financial crisis began in earnest.

There has been little or no growth since September 2008.

Monthly Employment in Saskatchewan, Seasonally Adjusted

480

485

490

495

500

505

510

515

520

525

530

535

Jan-07

Mar-07

May-07

Jul-07

Sep-07

Nov-07

Jan-08

Mar-08

May-08

Jul-08

Sep-08

Nov-08

Jan-09

Mar-09

May-09

Jul-09

Sep-09

Nov-09

Jan-10

Mar-10

thousands

Concluding thoughts and recommendations• colonialism and racism have been with us for a long time,

their effects are still present in the labour force, and will take a long time to defeat. Short term solutions won’t succeed

• representative workforce initiatives were quite likely on the right track but could have been improved and expanded, particularly with greater engagement with aboriginal leaders in designing and implementing initiatives. Current “review” process dangerous because it’s not transparent

• The “do nothing” option, or leaving workforce development strictly up to employers and local initiatives didn’t work before (up to 1990s) so likely won’t work in 21st century

Concluding thoughts (2)• There has been quite a bit of descriptive literature

published about diversity in the workplace, but “usable knowledge is in short supply” (Pitts and Wise 2010)

• Except for SIIT, GDI and FNUniv, training institutions don’t have representative student populations because of curriculum and accessibility issues and therefore are not producing a representative workforce. Elders tell us that “education” to be valid has to be inclusive of both western and indigenous epistemologies (Akan 1992)

• strategic, system-level approaches with targeted investments have been shown to work, so why not continue?

ReferencesAkan, Linda. "Pimostamowin Sikaw Kakeequaywin: walking and talking. A Saulteux Elder's view of native education." Canadian Journal of Native Education 19, no. 2 (1992): 191-24

Caverley, Natasha. "What works: effective policies and programs for aboriginal peoples of Canada." Ottawa, ON: Turtle Island Consulting Services Inc., 2007

Klyne, Richard J. "Employment barriers and aboriginal working life: towards a representative workplace in Saskatchewan." M.V/TEd. thesis, University of Regina, 2003

Peach, Ian. "Case study research – Saskatchewan’s approach to increasing aboriginal people’s representation in the health care workforce. Prepared by the Saskatchewan Institute of Public Policy for Human Resources and Social Development Canada." Regina, SK: Saskatchewan Institute of Public Policy, University of Regina, 2007

Pentelichuk, Susan Phyllis. "Public policy in changing times: moving toward an apprenticeship training system representative of the workforce in Saskatchewan." M.V/TEd. thesis, University of Regina, 2001

Pitts, David W., and Lois Recascino Wise. "Workforce diversity in the new millennium: prospects for research." Review of Public Personnel Administration 30, no. 1 (2010): 44-69

Questions? Comments?

Larry SandersResearch Associate

Indigenous Peoples’ Health Research Centre (IPHRC)

University of Regina(306) 337-2437

larry.sanders@uregina.ca