Whitesand’s BioEnergy Project - OCWI

Whitesand’s BioEnergy Project

February 22, 2019

This project is funded in part by the Government of Canada and the Government of Ontario.

Report prepared by:

Andrew Bieler, PhDMeagan Trush Joey Brooke Jakob, PhD

Table of Contents

Table of Contents 2

Introduction 4

1.1 Overview 4

1.2 How to Read this Report 4

2. Project Overview 5

3. Project Context 5

3.1 Whitesand First Nation 6

3.2 Bioenergy Project 6

3.3 Whitesand’s population 7

3.4 The Skills and Training Ecosystem 8

3.5 Conceptual Framework for BioEnergy Plant Skills Development 9

4. Methods and Approach 12

4.1 Research Questions 12

4.2 Approach to Environmental Scan 12

4.3 Stakeholder Consultations 13

5. Environmental Scan 14

5.1 Demand-led Workforce Development in Indigenous Communities 14

5.2 Innovative Workforce Development Models 15

5.3 Approaches to Indigenous Apprenticeship 17

5.4 Job Requirement Approach (JRA) 19

5.5 Community Based Enterprise, Cooperatives, and Indigenous Entrepreneurship Networks 20

5.6 Environmental Scan Conclusions 23

6. Labour Market Needs 23

6.1 Overview 23

6.2 Whitesand Bioenergy Plant 23

Project Management 24

Construction 24

6.3 Summary of Training Needs 25

7. Supply of Skills and Talent 25

Whitesand First Nation // 2

7.1 Participation in Education 25

8. Perceived Training and Community Needs 27

8.1 Formal Learning Assets and Gaps 27

8.2 Wrap-around Supports: Health,Wellness and Transportation Services 30

9. Conclusion 31

References 31

Appendix 1: Timeline 37

Appendix 2: Job Requirements Summary 39

Administrative Management 39

Co-Generation 39

Harvesting 40

Wood Pellet Plant 40

Wood Yard 41


1. Introduction 1.1 Overview

This report reviews employment and training needs and opportunities at Whitesand First Nation. The report includes a summary of stakeholder consultations on employment and training needs, as well as an environmental scan focused on demand-led workforce development in Indigenous communities. This report also builds on existing data and labour market research on Whitesand First Nation. This report

● Provides an overview of conceptual frameworks which inform the project; ● Examines the local context and stakeholders needed for a successful strategy including

interdependent sustainability pillars of economy, society, ecology, culture, and capacity; ● Provides analysis of local labour market needs for the proposed Bioenergy Plant, including expected

job descriptions and skill profiles; ● Analyses the existing supply of skills and talent in the community drawing on a variety of sources

including local labour market data; ● Identifies innovative approaches and opportunities to develop skills which integrate Indigenous

knowledge and learning principles alongside trade specific skills; and ● Identifies gaps in planned to actual activities related to the proposed Bioenergy Plant and associated

human resources strategy.

1.2 How to Read this Report This report addresses the following questions:

1) How can demand-led approaches to workforce development contribute to the five pillars of the community sustainability initiative?

2) What are the key training needs that will have to be addressed to align the local skills supply with current estimations of the number and type of employment opportunities that are projected for the BioEnergy Project?

3) What are the characteristics of the local skills supply at Whitesand First Nation? 4) What are the key assets and gaps in employment and training resources at Whitesand First Nation?

If you are interested in question 1, please turn to our environmental scan of demand-led approaches to workforce development in Indigenous contexts in section 5. This section includes an environmental scan focused on promising approaches to workforce development in Indigenous communities. We address question 2 in section 6, which offers a summary analysis of projected employment opportunities at the BioEnergy Plant based on administrative data and draft job descriptions. To address question 3 in section 7, we review available census and Statistics Canada data as well as survey results. Finally, section 8 reviews insights from stakeholder consultations regarding capacity building in employment and training at Whitesand First Nation. In section 2, we offer an overview of this project. In section 3, we offer a discussion of the Community


Sustainability Initiative, the aims of the project, and a description of the community context. We introduce the approach to the environmental scan and stakeholder consultations in section 4. Finally, a conclusion is offered in section 9.

2. Project Overview This research study is intended to support the development of workforce development programming at Whitesand First Nation. In particular, the study supports the development of demand-led approaches to workforce development to meet the needs of Whitesand’s BioEnergy Plant. The community is currently in the process of building a Bioenergy Centre that consists of three components; a pellet manufacturing plant, a cogen plant, and a wood yard. There are approximately 70 positions needed to operate these facilities. Whitesand First Nation faces the challenge of preparing their community members for the new employment opportunities. Responding to this challenge, Whitesand First Nation designed a workforce development project to support the Community Sustainability Initiative (CSI) and address current challenges in the target population, including the high unemployment rate, low rates of self esteem, and low levels of access to education as well as low levels of educational attainment. In responding to these challenges, the project aimed to map out the existing and potential talent in the community and then build programs that align this nascent talent to the labour needs of the Bioenergy project. This project consisted of the following: a) capacity building for professional workforce development to meet the labour force needs of the Bioenergy Plant; and b) development of training pathways for community members to acquire the skills needed for positions at the Bioenergy Centre. However, this workforce development project was not undertaken as planned because the Bioenergy Plant it was intended to support was delayed. This report offers strategic research support to future workforce development programming at Whitesand First Nation. It includes the following: a) developing a conceptual framework for future workforce development programs in the community; b) reviewing existing research on innovative models of workforce development in Indigenous communities; c) reviewing existing labour market information on Whitesand First Nation; d) summarizing projected training needs for the BioEnergy Plant, skills available in the community, and employment aspirations of community members. In the following, we begin with an introduction of the community context in which this research was undertaken.

3. Project Context Workforce development programming to meet the needs of Whitesand’s BioEnergy Project will have to address the unique capacity building and skills development challenges in this community. On this note, previous research on workforce development in Indigenous communities has identified a number of challenges to workforce development. Communities lack base required skills from which employers can draw upon or the capacity to provide basic levels of education and training. They may also face issues associated with “brain drain” particularly when young people leave the community to pursue educational or


employment opportunities, often not to return. Employers may have limited resources and expertise in terms of the recruitment and development of talent (Cook et al., 2017) or lack the competencies to deal effectively with Indigenous partners. Additionally, partnerships between First Nations and the Canadian Government may be fraught (as discussed by Cook et al., Renewable Energy BC, 2017). Our analysis of the context of the Whitesand community identified a number of relevant features of the community in terms of the key stakeholders, institutions, service providers, and history. In the following, we review those features most relevant to the development of future programming at Whitesand First Nation. 3.1 Whitesand First Nation Whitesand First Nation is an Ojibwa First Nation. It is located 246 kilometres northeast of Thunder Bay, Ontario. The nation was originally situated near the Whitesand river, but moved north of Armstrong along the CNR rail line as a result of the flooding of the original community. Currently, it is located near the northern tip of Lake Nipigon and has a land base of 615 acres, with an on-reserve population of 301 and a total membership of 1,214. Most of the population is between the ages of 19 and 60. Cultural activities include bingo, sweat lodges, dark-room ceremonies, pow wows, crafts, and beading every month. Community members can participate in arts and crafts, cooking classes, and other workshops. Health promotion programs are offered through through Dilico Anishinabek Family Care, including grief counselling, elders counselling, diabetes programs, and child welfare. Employers include the Band Office, Sagatay, which is Whitesand’s Economic Development Corporation, Dilico Anishinabek Family Care, Ontario Works, and a child care facility. There is also a small tourism sector centred around Wabakimi Provincial Park. A handful of hotels, grocery stores, convenience stores, and gas bars make up the retail and service sector (Arbora, 2016). There is a need for more secure and sustainable employment. Currently, unemployment in Whitesand and surrounding communities is seasonally variable, since many community members are able to work in forestry or tourism in the summer and then become unemployed in the winter. Unemployment ranges from 55% in the summer to 65% in the winter (Arbora, 2016). In 2009, Whitesand First Nation developed the Community Sustainability Initiative (CSI). The CSI is founded on five interdependent pillars of sustainability, including ecology, economy, society, culture, and capacity. Based on this CSI, the community is currently pursuing a BioEnergy Project to address energy needs, accelerate economic development, tackle social challenges, retain cultural integrity, and build workforce capacity.

3.2 Bioenergy Project Whitesand First Nation is currently developing a Bioenergy Project. The project consists of a wood processing yard, a 4MW biomass cogeneration plant, a pellet plant, wells, on-site wastewater management system, and a transformer substation to connect the cogeneration plant to the local electrical grid. The biomass plant and larger project will allow the community to reduce its reliance on diesel generators.


Currently, the community uses over 400,000 litres of diesel per year for heating and over 1,000,000 litres for electricity. The project also has tremendous potential from the perspective of economic development. Although it is the largest economic development initiative in the community, it should also benefit, and not harm, the activities being more specifically developed to support ecological, social, cultural, and capacity building pillars of the CSI. In fact, this Bioenergy Project can be understood as addressing, as least in potential, each of the five pillars of the CSI:

● Mitigating climate change by reducing reliance on the diesel generators that currently power the community;

● Raising prosperity and inclusion into Ontario’s economy; ● Creating an opportunity to tackle current social challenges, including high unemployment rate, high

on reserve population in receipt of social assistance, low levels of educational attainment etc.; ● Opportunity to develop programs that respect Indigenous knowledge and culture (e.g., Indigenous

entrepreneurship networks associated with the facility); ● Building the capacity of the existing workforce to fill the positions.

Federal and provincial investments in the Bioenergy Project combine for approximately $6M in funding. It will be the first bioenergy project to replace primary use of Hydro One Remote diesel generators that currently use approximately 1,200,000 litres of diesel fuel annually. It will also increase the tax base (est. 3.5M), and promote sustainable forest management and ecosystems. Building on the momentum of this Bioenergy Project, the demand-led workforce development program aims to build the capacity of the local workforce in order to fill the jobs opened up by the plant. In particular, it is estimated that the biomass plant facilities, harvesting, and wood yard will together generate 76 full time jobs. In addition, there will be seasonal jobs generated by the project. During the construction of the biomass facility, there will be a need for construction workers and, in particular, heavy equipment operators, labourers, and a variety of skilled tradespeople. The on-site construction workforce will likely fluctuate from approximately 20-60 positions. To meet these needs, there is the opportunity for workforce development programming to target the local workforce.

3.3 Whitesand’s population The population of Whitesand First Nation and the surrounding off reserve population is 1,214. For some positions, workforce programming may also engage people from surrounding communities in the Thunder Bay district. According to a Human Resources Readiness Plan (Arbora, 2016), there are 166 people in the 19-60 age range. Of these, only 29 are employed on reserve. There is a remaining 137 available workforce. The Ontario Works caseload is 90 and approximately 66% of these individuals are available to work. This group on OW is very young, with the majority between 18 and 29. Access to education is a real challenge for members of the Whitesand First Nation. Kindergarten to grade 8 is offered at Armstrong public school; however, students have to relocate to attend high school. Indigenous and Northern Affairs Canada offers funding for community members who have to go to Thunder Bay or elsewhere for High School, and the Band office runs a bus so that students can return home on the weekends.


Given the number of unemployed individuals and the challenges in accessing education, there is clearly a need for skills development pathways and opportunities. Although there have been a few training initiatives in recent years (e.g., heavy equipment operation, construction craft worker), there hasn’t been a comprehensive skills development program focused on local sustainable development. In this context, there is room for capacity building in the local skills and training ecosystem. 3.4 The Skills and Training Ecosystem In Whitesand, there are a range of stakeholders participating in the skills and training ecosystem including band council and administrative staff, economic development staff, educational personnel, and workforce development staff working for employers. In mapping the talent system, we identified a number of critical actors:

● Government agencies for example such as Ontario Works, provided a range of training opportunities (e.g., WHMIS, First Aid, LAEC , OSSD).

● Social Services and Child Welfare offers cultural events, anger management and mental health wellness, parenting courses, and addiction support.

● Economic Development and Business Planning offers business plan training building capacity in the community.

● Lakehead Adult Education Centre (LAEC) offers training that leads to a high school graduation. While 74 were registered in the 2017/18 school year, only 20 had completed any lessons, suggesting that retention is a significant issue. In 2018-2019, 24 students were registered, 10 of them in grade 9/10 and the remainder in grade 11 and 12. In addition, residents are registered in a variety of specialized diplomas in subjects such as Education; Environmental Geography, Social Work, Project Management, Welding, Native Child and Family Work, Gas and Oil Technician and Engineering.

● Whitesand Health Dilico – teach traditional methods, run AA friendship circles. ● Sagatay Health Certification. ● Law enforcement – local OPP office offers Indigenous awareness training, as well as first aid, CPR

and use of force working with other community groups. ● Frontier College provides other opportunities. ● The church offers bible studies and a variety of supports. ● Volunteer Fire Response for Whitesands offers basic training in firefighting and emergency

response. The Ontario Ministry of Resources Fire division provides training on wildfire support and suppression for staff but does not offer services.

● Northwest CHC Clinic offers courses on smoking cessation, gender identity; diabetes, foot care and dietetics. The Addictions Program provides parenting workshops, workshops on wellness, mental health and suicide prevention.

● The band council also provides a range of services to help preserve traditional knowledge tapping into the expertise of elders.

Additionally, there are volunteer and informal learning groups including firefighting, youth groups, elder circles, sports activities, cooking classes, and others.


Key stakeholders identified a number of barriers to accessing learning opportunities including better communications; better access to funding as well as access to transportation; building trust; better access to the multiplex facilities, access to people with the skills needed to offer training; and leadership and administrative expertise. Several mentioned low engagement. One group pointed out that community members sign up for programs but do not attend. Stakeholders also expressed the need for more resources such as access to places equipped with computers and internet; more engagement with youth; more mental health and parenting supports, off reserve activities; and more support in terms of communications and volunteering. In terms of additional opportunities, stakeholders identified courses related to pleasure craft, mining, carpentry, apprenticeships, carpentry, construction, more health and exercise programs, drumming, youth committees, recertification and upgrading certificates; heavy equipment, communications; and security training. A variety of means are used to reach the community, such as radio, word of mouth, physical postings, and social media such as Facebook. Based on this analysis of the skills and training ecosystem in Whitesand First Nation, we have developed a conceptual framework to guide future workforce development programming for the BioEnergy Project. This framework was developed in consultation with workforce development staff at Whitesand First Nation. If the BioEnergy Plant is launched and funding allocated for skills development, this conceptual model could be drawn upon to help guide programming efforts in the community.

3.5 Conceptual Framework for BioEnergy Plant Skills Development This project is framed in terms of an integrated community development approach. Given the close interrelationships between economy, society, ecology, culture, and capacity, community projects operating primarily within one of the pillars benefit, and not harm, activities in the other pillars. While the Whitesand BioEnergy Project offers economic development and employment, it is important that it be understood in the context of society, ecology, culture and capacity of the community. The approaches to employment and training reviewed in this report must be contextualized in relation to the kinds of social supports (e.g., childcare) that are integrated into the model. In terms of ecology, the Whitesand project is a green economy initiatives helping to address climate change and can address ecological goals. Development models must be respectful of Indigenous ways of knowing, learning, and being on the land. Finally, given the multiple socio-economic challenges facing the community (e.g., unemployment), employment and training models should be assessed from a capacity building perspective. As a whole, the models reviewed in this report may be evaluated from the perspective of their contributions to social development, meaningful employment and business opportunities, capacity building, climate change mitigation and adaptation, and respect for Indigenous culture. Indigenous approaches to education and research detail the ways in which human consciousness and learning are shaped in relation to place and land (Tuck and McKenzie, 2015). From this perspective, the models of employment and training that we introduce below should be situated in relation to the land based relationships and ecology of Whitesand First Nation (Figure 1).


Figure 1: Land-based relationships and ecology of Whitesand First Nation

To visualize the long term goals of workforce development for Whitesand’s BioEnergy Project, we developed a logic model. The logic model was developed in consultation with Whitesand’s workforce development team. The long-term goals of this initiative are aligned with the Community Sustainability Initiative and, in particular, with the economic pillar of this CSI. These goals include generating meaningful employment opportunities at Whitesand First Nation, ameliorating social development through skills development and local capacity building in workforce development.


Figure 2: Logic model of the Whitesand workforce development project

The logic model visualizes areas of workforce development that would need to be prioritized to address workforce development needs for Whitesand’s BioEnergy Project. These areas include a) community-led, capacity building for professional workforce development to meet the labour force needs of the Bioenergy Plant; b) training pathways for community members to acquire the skills needed for positions at the Bioenergy Project. This community-led, capacity building model would involve the following initial stages: i) labour force needs assessment across each of the project phases (i.e., from construction to operation of the facility); ii) mapping existing and potential talent in the Whitesands community to the needs assessment; iii) identification of short, medium, and long-term workforce development approaches to align the needs of the biomass facility to the capacity of the community. Based on this work, a comprehensive demand-led workforce development program could be developed and implemented at Whitesand First Nation. The research presented in this report is designed to assist the early stages of this process, with special attention to understanding community needs.


4. Methods and Approach This report seeks to explore the context of the Whitesand First Nation labour market. We look at the demand, supply, and opportunities for innovative approaches to bridge the skills gap and build sustainability. This report aims to offer evidence-based feedback to support the innovation of new workforce development programming at Whitesand First Nation. By reviewing existing statistical and administrative data alongside best practices in demand-led workforce development in Indigenous communities, the report offers evidence to inform demand-led approaches to workforce development in Whitesand First Nation. 4.1 Research Questions This study includes three levels of analysis: i) innovative workforce development models; ii) local talent mapping; iii) community perspectives. We have questions at each of these levels of analysis:

1. Innovative workforce development models: How can demand-led approaches to workforce development contribute to the five pillars of the community sustainability initiative? What are the key trends, challenges, and gaps in knowledge of short-term, demand-led workforce development in Indigenous communities?

2. Local talent mapping: What are the characteristics of the local skills supply at Whitesand First Nation?

3. Local talent mapping: What are the key training needs that will have to be addressed to align the local skills supply with current (rough) estimations of the number and type of employment opportunities that are projected for the Bioenergy Project?

4. Community perspectives: What are the key assets and gaps in employment and training resources at Whitesand First Nation?

To address question 1, we undertook a literature review. Questions 2 and 3 were addressed by reviewing existing Statistics Canada and local census data alongside a document review of job descriptions related to the project. To address question 4, key informant interviews were undertaken. At the research planning stage, focus groups and a survey were planned; however, due to multiple project delays, these methods were never deployed. As a result, this report offers a comprehensive response to question 1 and a preliminary response to questions 2, 3, and 4. 4.2 Approach to Environmental Scan Qualitative in approach, this secondary research or literature review aims to address key trends and gaps in knowledge of short-term, demand-led workforce development in Indigenous communities. The primary search terms were: “demand-led workforce development,” “short term,” “sustainable,” “community-based,” and “vocational education and training” (TVET or VET). Of course, this approach also needed to consider some specific interests of the Whitesand community, and so secondary search terms were used: “entrepreneurship,” “apprenticeship,” “workplace inclusion,” “local hiring,” and “bioenergy.” Though the interchangeability of terms is generally problematic, “Aboriginal,” “Indigenous,” and “First Nations” were


each used to generate all possible literature for consideration. Each of the above search terms were used, at times together and separate. The specific journals searched were The Journal of Vocational Education and Training, Education & Training, and The Journal of Education and Work, which generated very few results, while the databases used were Sociological Abstracts, American Anthropological Abstracts, and JSTOR (Journal Storage). These databases generated a number of relevant academic texts, and a few reports, though the most useful database was the Indigenous Studies Portal Research Tool, created by the University of Saskatchewan. Many articles were published in The Canadian Journal of Native Studies. In addition, grey literature pertaining to the topic was included in the review.

4.3 Stakeholder Consultations Interviews were undertaken with educators, local stakeholders, and staff members. Semi-structured interview guides were designed in a funnel shape, from general to specific, to gather diverse stakeholder perspectives on the program. A range of stakeholders were interviewed, including representatives from government, training and education, health and wellness, and social assistance (Table 1). We also look at administrative data gathered by Whitesand Workforce Development staff, including draft job descriptions for the BioEnergy Plant and online questionnaire results. Workforce Development staff administered a questionnaire that aimed to determine the educational level and relevant work experience of community members with an interest in the opportunities offered at the BioEnergy Centre. Preliminary data from this instrument was made available for analysis as part of this report. The survey received 50 valid responses, 5 were removed from analysis (duplicates, test responses, outside geographic area). The data does not discern job-seekers and potential participants from individuals currently employed, nor does there appear to be information related to work experience in any of the responses. There is also no means to determine which respondents are members of the band as a large segment of the band lives off-reserve, primarily in Thunder Bay. As such, there are clear limitations and this particular data ought not be treated as a representative sample for the community’s available workforce, however there are some insights to be gleaned. The second piece of administrative data used in this report is draft job descriptions produced by a Human Resources staff at Whitesand First Nation. These draft job descriptions are by no means complete, but give some indication of the types of employment opportunities that the community is expecting. We also utilize some administrative data detailing the number of employees projected for the construction and operation of the plant. In this manner, the consultations triangulate findings from across multiple sources of evidence. Table 1: Targets for the surveys and questionnaires

Role Interview Completed

Business Development Officer X

Band Education Officer X

Ontario Works Caseworker X


Sagatay Economic Development Corporation Worker

X

Ontario Works Coordinator X

Local Delivery Mechanism Coordinator - Band Office

X

Band Wellness Nurse X

WFN project staff [Focus group] X

Health Director X

5. Environmental Scan This environmental scan offers a review of demand-led workforce innovation models and strategies for the consideration of the Whitesand community. Demand-led initiatives are workforce development programs led by employers, industry leaders, or governing bodies seeking employees. They may utilize vocational education, job-site training, apprenticeships, and mentorships. Each of these job- preparing approaches is considered here, alongside promising examples: i) job requirement approach; ii) Indigenous apprenticeship approaches and iii) and community based enterprise, cooperatives, and Indigenous entrepreneurship networks. These models offer general ideas and best practices for the Whitesand community to consider, in part or as a whole, as part of the ongoing workforce development strategy for the Whitesand’s BioEnergy Project. Outlined first is an overview of the “demand-led” concept. This section discusses ongoing or recently-tried trends, highlights some resulting challenges, and aims to contextualize each of these according to where the idea or example originated, and how it was used. From here, we move to the section that addresses approaches to demand-led workforce development, which considers three models: i) job requirement approach (JRA); ii) Indigenous apprenticeship approaches and iii) community based enterprise, cooperatives, and Indigenous entrepreneurship networks. Each of these is considered in turn, offering concrete illustrations of communities that have successfully implemented the outlined strategies. We conclude with recommendations, which highlight the discoveries of this research both in terms of what has worked and not worked, with the ultimate goal of making concrete suggestions for the Whitesand community to consider for possible implementation.

5.1 Demand-led Workforce Development in Indigenous Communities

In demand-led workforce development, employers and industry associations aim to narrow and better anticipate skills gaps in the labour market. In Canada, there has been a dichotomy between classroom-based


training and on-the-job training that is typically framed in terms of “general knowledge” vs. “specific knowledge” (Dostie and Montmarquette, 2007). In developing such workplace training, organizations have been informed by broader research, cost reduction, and organizational strategies (Dostie, Benoit, and Montmarquette, 2007). In recent years, a number of reports have called for a shift towards demand-led workforce development in the province of Ontario (e.g., Dostie et al., 2007; Macmillan and Young, 2013; Zizys, 2014). In a demand-led system, employers are engaged in the design and delivery of employment and training programs so that skills training provision better meets the needs of the labour market (Macmillan and Young, 2013). As Zizys emphasizes (2014), a shift to demand-led workforce development will require the engagement of all stakeholders in redesigning Ontario’s current system. In Indigenous communities, demand-led workforce development is needed to help community members achieve the necessary credentials for the full range of jobs in their communities. According to a survey by the Canadian Council for Aboriginal Business (2016), capacity building is necessary both for high level executive positions at Aboriginal economic development corporations (EDCs) and to narrow the skills gap in the local labour markets served by EDCs across Ontario. However, any demand-led strategy to meet these needs must confront the systemic challenges in Indigenous education and workforce development. The above listed challenges with demand-led workforce development only intensifies in isolated communities, presenting particular challenges for First Nations municipalities. Coming in the form of barriers to participation, both job-seeking individual residents and employers are affected. For the former, community readiness presents a problem if there is a lack of base required skills from which employers can draw upon, while for the latter, financing proves the greatest issue (Cook et al., 2017; SATCC; 2011). Community readiness, overall, also presents the understandable problem of being unable to predict how economic changes will inevitably alter a community, for instance, when skilled people leave for other opportunities, commonly called “brain drain” (Hodgkins 2015). Additionally, partnerships between First Nations and the Canadian Government sometimes encounter difficulties because each party might have differing opinions on how to proceed: if terms and access to land cannot be agreed upon, for instance, then projects fail (Cook et al., 2017). There is still much that we don’t know about demand-led strategies in Indigenous communities. Many studies and theoretical papers generally discuss employer-led contexts, but take for granted that all information cannot be directly attributed to every location or situation. Rather than backdrops to everyday life, Indigenous approaches to education and research detail the ways in which human consciousness and learning are shaped in relation to place and land (Tuck and McKenzie, 2015). From this perspective, the models of demand-led workforce development that we introduce below should be situated in relation to the land based relationships and ecology of Whitesand First Nation.

5.2 Innovative Workforce Development Models

This report highlights three models of demand-led workforce development as potentially suitable approaches for tackling the specific challenges associated with the biomass facility at Whitesand First Nation: i) job


requirement approach (JRA); ii) Indigenous apprenticeship approaches; iii) community based enterprise, cooperatives, and Indigenous entrepreneurship networks. Given the task of connecting a target population with a high unemployment rate, to the specific skilled labour needs associated with the biomass facility, a JRA approach may be suitable. This approach begins with an assessment of job task requirements, which informs curriculum development and delivery of a six week, job-tasting program for a target population of unemployed individuals with a weak connection to the labour market. However, a different approach may be needed to address the skilled trades needs associated with the biomass facility. In this context, Indigenous apprenticeship practices may be a viable approach. Finally, given the entrepreneurial potential of the biomass development in generating local business networks and offshoot business opportunities, Community based enterprise, cooperatives, and Indigenous entrepreneurship networks offer another demand-led approach. In Table 1, we outline these three models with respect to target population, structure, recommendations, and examples. In the ensuing sections, we overview the state of knowledge and practice associated with these approaches to demand-led workforce development and highlight inspiring examples of local, Indigenous community-led workforce development. The table below provides a quick guide for consideration of structures and recommendations. Snapshots of target populations and examples suggest potential population groups from which to draw and possible resulting benefits. Each of the above models for demand-led approaches are explained in greater detail next. Table 2: Consideration of structures and recommendations

Demand-led

approach

Target

population

Structure Recommendations Example

Approaches to Indigenous Apprenticeship

Indigenous Pre-apprentices or apprentices in the skilled trades

Integrate Indigenous learning principles into apprenticeship training programs.

Providing counselling and other support structures alongside trade specific programming. Hiring an Aboriginal liaison coordinator to work between companies and communities. Integrating traditional Indigenous knowledge and learning principles into apprenticeship programs.

Apprenticeship revitalization program undertaken by the Mamo-Wichi-Hetwin Area Management Board in 1994. Notable for the translation and integration of Oji-Cree and Ojibway language and knowledge into apprenticeship training. Highlights include the creation and distribution of brochures translated into Oji-Cree, Ojibway and Cree, delivery of group presentations and individual counseling, sa well as assistance with certification exams.


Job Requirement Approach (JRA)

Unemployed or precariously employed population

Assessment of job task requirements informs curriculum development; Four weeks of classroom and two weeks of on-the- job training; Tailored to local community needs and a particular sector.

Conduct an environmental scan of the target location; Give adequate time to partnership development; Connect JRA staff to curriculum developers; Address multiple barriers facing target population.

Elevate is a pilot program located in Strathroy, Stratford, Woodstock, Oshawa, Trenton/Belleville, and Toronto. It is a collaboration between Essential Skills Ontario, the Food Processing Human Resource Council and community service providers. A major outcome of this project was the connection of adult learners with low educational attainment, who had been out of the workforce, to jobs in the food processing industry.

Community Based Enterprise, Cooperatives, and Indigenous Entrepreneurship Networks

Local high school students, aspiring entrepreneurs

Owner operated business incorporated as a worker cooperative; Employees have the opportunity to pursue entrepreneurship; Employment and training opportunities are offered to local youth, which compliment classroom- based learning and vocational programs.

Income earned in a community should be spent in that community; Areas of community deficit need to first be identified, followed bythe development of potential businesses that would benefit the community; The implementation of a network or system that fosters growth between these local businesses and the greater community.

Neechi Commons includes a restaurant and catering service, and an arts store that features Indigenous fine arts, crafts, books, music, clothing, and a full supermarket, this last piece acting as the foundational business component. As a worker cooperative, all employees are given the chance to become part owners of the business, thereby gaining valuable on-site job training, which can complement other employment and training opportunities provided by school and vocational programs.

5.3 Approaches to Indigenous Apprenticeship In Canada, research on Indigenous apprenticeship has identified a number of common challenges. In a statistical overview of Indigenous apprentices, the Aboriginal Apprenticeship Board of Ontario (2006) identified the following barriers: 1) finding apprenticeship placements close enough to remote communities; 2) achieving educational requirements; 3) low rates of success in trades exams; 4) securing transportation to job sites; 5) financial costs; and 6) inadequate promotion of apprenticeship programs. These barriers are also seen in other provinces; for instance, a survey of apprentices in Saskatchewan identifies lower overall confidence in reading and writing amongst Indigenous apprentices, as well as higher reporting of training costs as a significant barrier to apprenticeship completion (Meredith, 2009). Looking across the country, a Canada-wide overview of Indigenous apprenticeship identified additional challenges for Indigenous apprentices, including inadequate access to targeted educational and career resources, difficulty approaching potential employers, as well as lack of Indigenous cultural awareness in the trades (Making it work! 1999, p. v). In addition, there are also specific barriers for female Indigenous apprentices, including the challenges of working in male dominated trades, feeling isolated at work, and difficulty accessing childcare (Bridge the Gap, 2011, p. 4).


The Canadian Apprenticeship Forum (2016) has explored best practices in hiring and retention of Indigenous apprentices. One of the recommendations put forward is the integration of Aboriginal learning principles: “employers can incorporate Aboriginal learning perspectives into their training to facilitate integration, team cohesiveness and workplace learning and communication” (CAF, 2016, p. 14). A good example of this practice is the apprenticeship revitalization program undertaken by the Mamo-Wichi-Hetwin Area Management Board in 1994. Although the program was cut due to funding cuts from the Ontario government, it achieved significant success and remains notable for the translation and integration of Oji-Cree and Ojibway language and knowledge into apprenticeship training. Highlights include the creation and distribution of brochures translated into Oji-Cree, Ojibway and Cree, as well as in the delivery of group presentations and individual counseling. The program also offered pre-apprenticeship training and assistance with certification exams. There are a few inspiring examples of pathway development for Indigenous women in the trades. In Ontario, the Aboriginal Women in Trades program at Canadore College gives Indigenous women an introduction to diverse apprenticeable trades. This twelve week certificate program creates a pathway to apprenticeship and includes training in health and safety, plumbing, building construction, carpentry, and electrical. Training supports include individual support, guidance, and mentorship. As a bridge for female apprentices, the program has been quite successful, with a completion rate of 100% for the 2016 and 2017 programs. In Nova Scotia, a pilot project was undertaken to increase the number of Indigenous female apprentices in carpentry. The Mi’kmaq Community Pictou Landing First Nations Women’s Carpenter program was created as a partnership between the Pictou Landing First Nations Women, the Band Council, and the Nova Scotia Provincial Apprenticeship Branch. The selection process integrated career assessment and academic upgrading, which contributed to the success of the pilot program. Looking across the current state of knowledge and practice in Indigenous apprenticeship (Meredith, 2009; Saskatchewan Apprenticeship and Trade Certification Commission, 2011; Bridge the Gap, 2011), a number of recommendations for specific social and educational supports can be identified:

● Onsite adult educators and other accessible training supports; ● Pathways to apprenticeship for learners who are not yet enrolled in pre-apprenticeship or

apprenticeship; ● Support for apprentice technical training; ● Trades exam support; ● Offering multiple ways of assessing apprentice competency; ● Providing counselling and other support structures alongside trade specific programming; ● Exploring innovative training approaches; ● Using e-learning to increase the accessibility of pre-apprenticeship training in Indigenous

communities; ● Hiring an Aboriginal liaison coordinator to work between companies and communities; ● Integrating traditional Indigenous knowledge and learning principles into apprenticeship programs.

It is unclear to what extent the above mentioned forms of support have been explored within existing apprenticeship programs in Canada. That said, there is some attention to demand-side workforce development in Ontario’s Aboriginal Apprenticeship strategy. Namely, this provincial strategy aims to


“engage employers, Unions and Trade sector Councils in any outreach strategy” (2005, p. 10). More recently, the Aboriginal Apprenticeship Board of Ontario facilitated a two-day networking event to connect the construction industry, where consortia are most common in Ontario, to Indigenous communities. At this 2014 event, Katherine Jacobs from the Ontario Construction Secretariat presented on apprenticeship training in the construction sector and emphasized the need for outreach to prospective Indigenous apprentices. Further research is needed to address the diversity performance of apprenticeship programs in Ontario and, in particular, in relation to Indigenous and female apprentices.

5.4 Job Requirement Approach (JRA)

We did not find any literature on the application of the JRA model to Indigenous communities. However, the JRA model is applicable to the demand-led workforce development challenge facing Whitesand First Nation and includes a number of principles and lessons learned that are relevant to the BioEnergy Project. In this context, we highlight JRA as a possible model for workforce development at Whitesand First Nation. The Jra approach was developed by the Programme for the International Assessment of Adult Competencies (PIACC), under the auspices of the Organisation for Economic Co-operation and Development (OECD) (Elevate Canada: Raising the grade for food processing, 2015, p. 5). A good example of the use of JRA in short-term, demand-led workforce development in Ontario is the Elevate Canada initiative. A collaboration between Essential Skills Ontario (ESO), the Food Processing Human Resource Council and community service providers, this project connects adults learners with low educational attainment, who had been out of the workforce, to jobs in the food processing industry. Pilots were undertaken in Strathroy, Stratford, Woodstock, Oshawa, Trenton/Belleville, and Toronto. A total of 84 adult learners participated. Although the program did not reach visible minorities, it was otherwise successful in reaching a target population of unemployed or precariously employed, low income adult learners with one or more barriers to employment (p. 22). Participants were mostly young (median age = 32) men (62% male), which has been interpreted in relation to the unemployment characteristics of the pilot locations. In terms of employment outcomes, 57.7% of participants were offered jobs at the end of the program and 46.5% accepted job offers. At the Trenton/Belleville pilot, 88% were offered jobs and 82% accepted offers. The employment outcomes success of this pilot was likely due to the stronger implementation of the model at this site, which included the following: i) strong connections between training providers, employers, and the community; ii) the food industry background of the trainer; ii) the support and advocacy that the trainer offered participants throughout the program; iii) and the placement of all participants at food processing plants. There were challenges in implementing the Elevate model in communities with comparatively weak connections between training providers, employers, and communities (ESO, 2015). Building on the evaluation of the Elevate program, recommendations for similar, JRA informed approaches to short-term workforce development include (ESO, 2015, pp. 48-53):


● Conduct a detailed environmental scan of the community in order to assess the suitability of the labour pool, fit of local employers, and capacity of training delivery agents;

● Build connections between staff involved in conducting the JRA and curriculum developers to ensure the JRA adequately informs curriculum development processes;

● Introduce employers to their role and to the program and offer employer training; ● Give adequate time, preferably six months, to partnership development between training providers,

employers, and communities; ● Engage trainers in the screening process; ● Set aside resources for outreach and marketing the program at the pilot location; ● Fully address barriers to participation, including transportation, food, and income support; ● Use hands-on activities and lively group discussion in the classroom-based learning; ● Offer essential skills modules upfront, near the beginning of the program, for those who need it; ● Gradually increase hours over the two-week work placement, so that participants can acclimate to

the workplace. Although not focused on Indigenous workforce development, the abovementioned lessons from Elevate may be useful in developing short-term workforce development strategies for Whitesand First Nation. On a much smaller scale and with similarities to JRA, one example of short-term, demand led workforce development in an Indigenous context is seen in White Earth First Nation. In collaboration with Lakota Solar Enterprises and Trees, Water & People, White Earth First Nation offered a five-day solar air heater installation course that led to contracted job opportunities installing 10 solar air heaters on the reserve. The program also aimed to prepare students for future green jobs through the partnership with Lakota Solar Enterprises, and Trees, Water & People. Although very small in scale, the project is an inspiring example of local, short-term, demand led workforce development in an Indigenous context. Given the potential for the biomass facility to generate entrepreneurial opportunities (e.g., greenhouses, etc) in the Whitesand community, we now turn to a review of Indigenous entrepreneurship models.

5.5 Community Based Enterprise, Cooperatives, and Indigenous Entrepreneurship Networks

At its core, Indigenous entrepreneurship is based on solid partnerships between businesses and surrounding communities. It begins by surveying what might be missing in the community, what resources are available, and then aims to smoothly integrate community wellbeing, sustainability, and cultural values (Kuokkanen 2011; Olaniyan et at. 2016). One model of Indigenous entrepreneurship draws upon ideas of community-based enterprise (CBE), which can utilize cooperative approaches to integrate economic and workforce development. Community-based enterprises (CBE) are described “as a community acting corporately as both entrepreneur and enterprise in pursuit of the common good. CBE is therefore the result of a process in which the community acts entrepreneurially to create and operate a new enterprise embedded in its existing social structure. Furthermore, CBEs are managed and governed to pursue the economic and social goals of a community in a manner that is meant to yield sustainable individual and group benefits over the short and


long term” (Peredo and Chrisman 2006). Another entrepreneurial model that begins with this understanding, though sees more of its focus as empowerment alongside sustainability, is cooperatives. Specifically, cooperatives reduce vulnerability in communities by creating local opportunities, offering protection and job security, and facilitating a culture of empowerment (Mendoza 2016; Olaniyan et at. 2016). As an example, we explore Neechi Commons in Winnipeg’s North-End. Neechi Commons

A cooperative, community-based enterprise, Neechi Commons has been operating since 2013, formed with the intention of building local partnerships between community members and businesses in Winnipeg’s North-End. Taking its name from the Ojibway and Cree languages, the Cooperative’s name means “friend,” “sister,” and “brother.” Located in a city centre, this entrepreneurial model provides a lot of potential to inspire and cultivate an active community around a locally run business. Neechi Commons includes a restaurant and catering service, and an arts store that features Indigenous fine arts, crafts, books, music, clothing, and the main staple of the business, a full supermarket, this last piece acting as the foundational business component. As a worker cooperative, all employees are given the chance to become part owners of the business, thereby not only gaining valuable on-site job training, which can complement other employment and training opportunities provided by school and vocational programs. Beyond the worker training aspects, Neechi Commons as a food-based local business promotes locally harvested and processed foods, centred on celebrating varied healthy eating and lifestyles, ultimately acting as a place that builds community (neechi.ca/about). Over 40 people are on staff, making Neechi Winnipeg’s largest commercial employer of Aboriginal people. About 80% of staff are themselves Aboriginal, and priority is given to residents of nearby neighbourhoods. For a few years in a row, Neechi has also partnered with youth from the Children of the Earth High School for the Co-op Art Sale. But more than making and selling their art, these students learn to own, operate, and run their own business during this process (neechi.ca/newsworthy). The 1991 Aboriginal Peoples Survey identified some key concerns for the Aboriginal population of Winnipeg. Focusing on how to better develop sustainable living environments and strong communities, the survey found three areas of concern: the economic circumstances of residents, child care needs, and shopping habits (Statistics Canada, 1993). Concurrent to these discoveries, it was also noted that there was a high rate of mobility within Winnipeg, a positive, though half lived at a single address for less than a year. A drawback for building solid roots among community members, this latter obstacle combined with the other findings to suggest that local, Aboriginal businesses could help to foster stronger ties. An early incarnation of Neechi Commons, Neechi Foods Community Store, produced the 1993 It's Up to All of Us guide, wherein their specific decolonizing approach to community economic development was articulated: income earned in a community, in this case the inner-city of Winnipeg, should be spent there. Moreover, this spending would best serve the community if people were buying local goods and services (Loxley 1996, p. 37). Overall, this model works to reduce dependence on outside sources and establishes pride within the community by creating jobs that are long-term and lasting.


Further fostering local partnerships, Neechi Commons builds relationships with other organizations seeking to make shared space and community more healthy and vibrant. Working with Neechi, Local Investment Toward Employment (LITE) is an organization that works to further each of their community economic development missions. An example, during the holiday season a food hamper campaign brings these two organizations together: LITE raises money to buy food from Neechi to make the hampers, which year after year reach a minimum of $30,000 (Schlichting, 2006). Links between other local Aboriginal entrepreneurship have been made since the establishment of Neechi Commons, by offering a viable model from which other projects and organizations have been developed: a housing cooperative; a daycare; and an Aboriginal child and family support service. The housing cooperative, Payuk Inter-Tribal Co-op, features a 42-unit apartment block and five duplex units, which aims to primarily support Aboriginal women and children, and rents are based on the income that each occupant or family has available. Employing six people, the Nee Gawn Ah Kai Day Care centre has space for 30 children, while the Ma Mawi Wi Chi Itata Centre operates as the first major urban Aboriginal child and family support service in Canada (Loxley, 2010). Besides these initiatives, a Winnipeg-based credit union, though not specifically an Aboriginal business, continually reinvests in local businesses like these listed here, specifically reinvesting money from the community into the community (Rose, 2013). Mentorship and workforce development have been central to Neechi Commons, and to CBE and cooperatives more generally, models for the Whitesand community to consider. Differences in context and resource availability for Neechi certainly exist, because of the city-centre location, compared to Whitesand First Nation. The effects of these differences can only be estimated, but a focus on mentorship within the community, as a response to projects that arise from community interests, could inspire greater attraction and participation. As one of Neechi’s examples, high school students’ art-based or other projects could engage a younger generation, where older artists or guides could provide mentorship opportunities that include all stages of development (if art based, the creating of art to the marketing and/or selling of that art). Similar mentorship models could be used in other workforce development, for instance, if creating a greenhouse as a part of the greater biomass facility. Here, workforce developers and researchers may want to examine more recent examples of workforce development for biomass projects. In particular, there may be lessons to learn from Kwadacha First Nation in British Columbia. Kwadacha First Nation Biomass Project

The Kwadacha First Nation has a great example of a biomass project turned community entrepreneurial opportunity that utilizes a demand-led approach. In development now, the community is using the extra energy produced by the biomass plant to heat three hydroponic greenhouses, which will operate year-round and will produce organic vegetables for the community (Kwadacha Biomass, 2017). Overall, besides creating jobs, a major focus of this project is food security, which reinforces the value of the plant for the community. In this sense, the Kwadacha First Nation biomass project may be interpreted not only in relation to economic and workforce development, but also in relation to food sustainability and security. Given the need to address interrelated sustainability pillars of ecology, economy, society, culture, and capacity in workforce development at Whitesand First Nation, such innovations in Indigenous entrepreneurship networks may be useful to consider. In this context, we now turn to some of the overall recommendations that can be garnered from this review of the current state of knowledge and practice in demand-led workforce development.


5.6 Environmental Scan Conclusions This environmental scan has explored some of the trends, challenges and gaps in existing research on short-term, demand led workforce development, including in relation to Indigenous communities. It provides a foundation for both research and capacity building. From a research perspective, it offers a foundation for beginning to undertake an assessment of (i) local labour market needs/opportunities, (ii) building a sustainable, skilled, local workforce, and (iii) aligning talent identification and training efforts with existing (and future) economic development opportunities. As the workforce development programming unfolds at Whitesand First Nation, it will be important to consider which principles and aspects of the above mentioned models are most effective in furthering economic, social, environmental, capacity-building, and cultural sustainability.

6. Labour Market Needs 6.1 Overview While the intention of this project was to analyse the labour market needs, delays in the development of the Bioenergy plant limited our ability to define in detail the labour market needs. However, based on extensive planning undertaken in preparation for the development of the plant, we were able to draw on labour market projections, skills profiles, and proposed job descriptions etc.

6.2 Whitesand Bioenergy Plant The Provincial Wood Supply Competition (WSC) was the trigger that opened the window for Whitesand to plan, propose and implement a “New Bio-economy”. This would include a biomass-fueled combined heat and power plant and a wood pellet manufacturing facility. Whitesand immediately and pro-actively positioned itself for the growing opportunity, built a team (professional services), and submitted WSC a proposal. (See Appendix 1 for the full timeline). This included a 5 MWe cogeneration facility fueled by woody biomass; approximately 2.1 MWe to power the pellet plant; approximately 1.1 MWe to power Whitesand, Armstrong and Collins; and approximately 1.0 MWe other businesses and future growth. In addition, a wood pellet plant will utilize steam and electricity from the cogeneration plant for various pelletizing processes to produce 90,000 metric tons per year of residential grade pellets. In 2011, Whitesand began the development of the project including engineering, land acquisition, environmental approvals, and the creation of biomass workforce. After extensive work, a Minister of Energy Directive was issued on December 14, 2015. It directed the Independent Electricity System Operator to complete a 20-year renewable Power Purchase Agreement. The directive is based on set of principles and


instructions to assist the project towards construction. The directive states “Once developed, the project will support Ontario’s goal of encouraging Aboriginal community participation in the energy sector. The project will also have a number of benefits including local job creation and reduced diesel use leading to reduced greenhouse gas emissions.” PPA contractual negotiations began in January 18th 2016 and a draft contract was received December 23, 2016. The Bio-economy Centre will lease parcels to tenants, including a wood yard (Sagatay Merchandising Yard); a biomass power generation (CHP) facility (Sagatay Co-generation); a wood pellet facility (Sagatay Wood Pellets). This summary focuses on the skills and qualifications required for positions available in the context of the new BioEnergy project in the Whitesand community, which are deemed essential for employers. A total of 55 positions have been identified as being required over the first 14 months of the construction project.

Project Management

Superintendent (2) Project Controls Clerk Site Engineer (4) Quality Assurance (2) Safety (1-2) Warehouse Laydown (2) Shipping/Receiving/POs (2) Surveyors (2) Indirects, People on-site up to 15

Construction

Carpenters (4-6) Labourers (1-4) IW (4-10) PF (10-12) MW (2-4) OP (12) EI (12) SM (12) Directs, People on site total up to 44 Total Construction up to 59 The requirements include the experience and attributes which employees expect from candidates who are considered for these positions (Appendix 2).


6.3 Summary of Training Needs Three observations emerge from preliminary administrative data.

1. All jobs appear to require Grade 12 or GED. Based on the preliminary survey, only 7.1 % of respondents indicated a Grade 12 achievement and 7.1% indicated Postsecondary education, for a total of 14.2% Grade 12 and above. Respondents who completed Grade 10 and Grade 11 represented over 40% of the sample. Helping these students, in particular, meet Grade 12 requirements would potentially increase the talent pool. Note: the preliminary survey may not be statistically significant, further confirmation needed using relevant sample sizes.

2. Utilize best practices in Indigenous apprenticeship in skilled trades programming for trades positions, such as carpenters. For instance, look into a mobile trades trailer to deliver apprenticeship training at Whitesand First Nation.

3. Some positions require specialized skills. In this context, a JRA model may be utilized to tailor short-term programming for these specialized positions. Since employers are not yet in the community, job requirements assessments may be undertaken at similar BioEnergy Plants in other jurisdictions, with findings integrated into the development of training programs at Whitesand First Nation.

4. Most jobs appear to be physically demanding and applied. Integration of health and safety and physical fitness programs and services into the delivery of workforce programming for the BioEnergy Plant.

7. Supply of Skills and Talent 7.1 Participation in Education The community has low levels of secondary school completion and limited post secondary training. Stats Canada data do provide a perspective on the community relative to the region in terms of demographics, skill levels, and employment rates. Between 2001 and 2016, the population of Whitesand First Nation increased by 84% most of it between 2001 and 2006 when 25 new people came to the community. In 2011, more than 70% of the population had no certificate, diploma or degree compared to 13.8% in the district. Demand for talent in the region is strong – the average wage is $70.73 per hour compared to $48.71 per hour. In spite of this, however, average and median income are low.


Figure 3: Economic Dependency Ratio for Armstrong Station, Whitesand First Nation, and Ontario

Current levels of employment in the community are limited. According to a detailed labour market analysis conducted in 2011, the largest industry in terms of employment in Whitesand First Nation was public administration accounting for 41.7% of total employment substantially more than the proportion in Thunder Bay District (10.3%) or the province (7%). A total of 25 people worked in public administration. Next in importance was construction accounting for 16.7% of employment compared to 6.1% in Thunder Bay District. A total of 10 people worked in construction. (Martel and Noiseux, 2017). While the intention of the study was to survey local residents through a variety of fora (e.g., community centres and job fairs) to better understand their demographics, educational background and aspirations, work experience and interests, this portion of the study (see Appendix 2) was never implemented. The nearest semblance available is the aforementioned data from the online intake survey. In spite of the limitations of this data set in terms of reliability of the sample, the majority of respondents (n=50) have not completed high school or equivalent.


Figure 4: Results from the Online Intake Survey for Educational Attainment

8. Perceived Training and Community Needs Key informants identified a number of assets and gaps in employment and training resources in Whitesand First Nation. Based on key informant interviews, we offer a summary of the existing assets and gaps identified by key informants with respect to employment and training needs in Whitesand First Nation. These assets and gaps fall into two categories: i) formal learning assets, such as educational institutions and training programs; ii) wrap-around services, which are services that might enable participation in employment and training.

8.1 Formal Learning Assets and Gaps The Armstrong Elementary school is a significant formal learning asset offering K-Grade 8 education. However, secondary school requires travel to Thunder Bay. To address this gap, a number of solutions have been attempted:

● Pilot program offered by TB District School Board offering OSSD had inconsistent results, with two people graduating from the program.

● Part-time teacher offering evening classes in Armstrong; however, distance, lack of transportation, and frigid temperatures in the winter led to low attendance.

● Contact North offers online post-secondary programs, but the quality of internet is very poor and learners need more support. There are some efforts to get more online programming such as distance ed, and the ACE program through Confederation College in Thunder Bay.

The high cost of pilot programs in Whitesand First Nation and the poor quality of internet access have been significant challenges to addressing this gap in available secondary education. If funding were available,


informants expressed a need for adult education and pathways to OSSD/GED completion, as well as more teaching and counselling support targeted to different learners. On this note, attracting and retaining teachers is a big challenge in the community. One informant noted, “trying to get a school going, but there's no teacher.” Another informant observed, "in order to get a good paying job around here, you have to have a grade 12 or higher level of education, either that or we just have the same old shitty jobs, shoveling shit, and with the prices of stuff up here, that ain't much." Internet access is another barrier to adult education and high school completion. One informant observed, "I would like a place with steady access to the internet. We don't have a computer lab type thing where if someone's studying that their wanting to learn and do some online stuff that's not really available. There's computers at the Ontario Works office but that's for job searches.” The lack of wrap-around supports was also discussed as a barrier to Grade 12 and GED completion. On this note, informants emphasized the need for wrap-around supports to parents and families with individuals looking to complete Grade 12 and/or GED. One informant expressed the need for “better supports for parents/family stability to enable learning. Highschool (or even Grades 9 and 10) in community.” A number of informants underlined some of the systemic challenges related to low high school completion; for example, informants discussed prenatal substance use, learning disabilities, the higher-than-average birth rate in Indigenous communities, and the risks associated with sending youth to high school in Thunder Bay. One in particular referenced the series of deaths of Indigenous students who were sent from their communities in the far north to attend high school in Thunder Bay, "I mean our kids are, we're only two hours away and we have to send our high school kids [to Thunder Bay] there for school.. and we're finding it terrifying." Informants also identified a number of training programs that have been offered in the community. These include professional training in entrepreneurship, business, accounting, as well as specialized programs for heavy equipment operators and firefighters. Training for a range of driver licenses have also been offered. Finally, there are also plans for craft services training but it was noted that the cost of lodging trainees is prohibitive. Another barrier with training programs is low attendance. There was recognition of the value of education but a focus on the need for infrastructure and dedicated resources. Stable funding was identified by informants as a barrier to the provision of high school education and more specific training programs. If funding were available, informants underlined the need for a range of training programs to help build workforce capacity at Whitesand First Nation:

● Pathways to OSSD/GED completion; ● Business programming; ● Office administration and leadership; ● Management; ● Conflict resolution; ● Communications; ● Training for low skilled jobs (e.g., custodial); ● Computer training with access to technology


● Drivers license training; ● Heavy equipment operator certifications; ● Mining related training programs; ● Powerline technician training; ● Pellet operator training; ● Wood harvesting training.

As indicated by this list of training needs, informants observed both general training needs (e.g., computer training) and training needs more specific to the BioEnergy Plant (e.g., pellet operator training). Informants also observed a lot of excitement about the new BioEnergy Plant amongst community members, and a desire to complete training to secure a position at the plant. One informant observed, "a lot of the community members are pretty excited about the current pellet plant to be --construction to start...and I know some of them right now are doing their high school schooling in order to secure a job once the pellet plant is up and running." Barriers to participation in employment and training A major barrier in the community is program participation and retention rates. One informant expressed, they are very interested at first, then lose interest towards the end. You'll be lucky if you have one or two students". Again the theme was the need for more support and more follow up. “We may need another caseworker, and more training for existing OW staff to support this.” The need to sustain motivation to participate in employment and training was a recurring theme. One participant observed, "the interest is there, but if they're in a pre-contemplation or contemplation stage it doesn't mean they're ready to try an actual action towards the schools, but I think the idea for everyone to make their life better there is an absolute interest across the board."

Beyond motivation and self-esteem, substance abuse was identified as a major barrier to participation in employment and training. In addition, participants listed the following barriers:

● Language barriers, even in the 18-29 year old range; ● Criminal records in some cases were seen as a barrier to employment; ● Self-esteem and shyness a barrier to requesting help; ● Unresolved mental health needs, including in relation to depression and anxiety; ● Childcare pickup and dropoff schedules not necessarily aligning with classes/training; ● Learning disabilities ● Access to transportation ● Challenging weather conditions in the winter; ● Time management issues; ● Addiction barriers, including gambling.

This list of barriers is by no means comprehensive but gives some indication of the breadth of issues encountered by key informants in the employment and training ecosystem. To address these barriers, informants offered a number of insights related to wrap-around services.


8.2 Wrap-around Supports: Health, Wellness and Transportation Services The major health, wellness, and transportation assets identified by informants include:

● A nurse practitioner is available four days a week. ● Diabetes support programs; ● Student nutrition; ● Mental health programming; ● New community centre, which includes a fitness centre; ● personal healthcare and 55+ programming; ● after school program at the youth center; ● An occupational therapist comes in from Thunder Bay periodically ● 4 personal support workers in the community; ● Translation from Ojibway for health appointments; ● Nor'west Community Health Center offers diabetes education, nutrition and medication

management, sports medicine, and kinesiology. ● There are no formal transportation supports available; however, if someone needs a ride to go to a

job, several respondents working in positions which support training and employment indicated that they will drive those people to help them remain employed.

● Lateral violence training workshop(s) In addition to these supports, health professionals in the community can refer residents to a number of services based in Thunder Bay or others who make scheduled visits to Whitesands. Typically, specialized services seem to only come in for a few days per month. This includes Sullivan & Associates, a psychology and counselling service provider that comes up for two days a month, and programming through Band health team and Dilico. Community members identified a number of gaps in the provision of health and wellness services. When asked what wellness supports were needed to facilitate workforce development but missing, common themes included:

● Better mental health and substance abuse related services; ● Family empowerment; ● Childcare that responds to the needs of adult learners, is located in the same building as training

programs, and scheduled to meet community needs; ● Admin staff to support health services.

Informants perceived a need for more extensive mental health, childcare, and health administration support. These kinds of supports would certainly help build capacity for stronger employment and training participation at Whitesand First Nation.


9. Conclusion Stakeholder consultations reveal strong interest in employment and training opportunities associated with the new BioEnergy Project. Community members are excited about the prospect of job opportunities at the plant, and many are starting to pursue training programs with these opportunities in mind. However, capacity building is necessary to improve existing adult learning, health and wellness assets in the community. Pathways to Grade 12 or GED completion will need to be designed to better meet the employment and training needs of Whitesand First Nation. Despite the fact that most projected positions for the BioEnergy Plant are understood as requiring a high school diploma, the majority of respondents with interest in this project have not completed a high school education. There are a number of barriers to completion of a high school diploma, which include the lack of funding and infrastructure for a long term solution to secondary school programming at Whitesand First Nation. Although a range of initiatives have attempted to address this issue, lack of funding, difficulty retaining teachers, and other barriers have prohibited a long term solution. To support youth and adult learners, stronger health and wellness supports are required at Whitesand First Nation. Better mental health programming, accessible child care, and healthcare administrative support are variously mentioned by key informants as significant gaps. To support training pathways for the positions projected for the BioEnergy Plant, we recommend consideration of best practices in Indigenous apprenticeship, learning from JRA models, and Indigenous entrepreneurship networks.

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http://www.education.gov.yk/

http://www.education.gov.yk/

https://dspace.library.uvic.ca//handle/1828/7919

http://www.publications.gc.ca/site/eng/9.689884/publication.html

http://www.essentialskillsontario.ca/sites/www.essentialskillsontario.ca/files/Elevate%20Canada%20Raising%20the%20Grade%20for%20Food%20Processing%20-%20Evaluation%20Results_0.pdf

http://www.essentialskillsontario.ca/sites/www.essentialskillsontario.ca/files/Elevate%20Canada%20Raising%20the%20Grade%20for%20Food%20Processing%20-%20Evaluation%20Results_0.pdf

https://doi.org/10.1080/13636820.2015.1050444

http://saskapprenticeship.ca/wpcontent/uploads/2015/12/WomensSummit-BkgBr.pdf

http://rauna.net/wp-content/uploads/2011/08/cjps_44-

http://www.kwadacha.com/biom

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http://socialcapitalpartners.ca/wp-content/uploads/2015/01/14-2037T-POV_Demand-led-employment-training_online.pdf

http://socialcapitalpartners.ca/wp-content/uploads/2015/01/14-2037T-POV_Demand-led-employment-training_online.pdf

Martel, A. & Noiseux, J. K.. (2017). Community labour market report: Whitesand First Nation. North Superior Workforce Planning Board and Northern Policy Institute. Retrieved from https://www.nswpb.ca/application/files/8014/9987/0300/CLMR-Whitesand-EN-17.07.11.pdf Mendoza, I.V. (2016). “The role of cooperatives in empowering Indigenous people and older persons”. United Nations 2030 Agenda for Sustainable Development. Retrieved from http://www.un.org/esa/socdev/egms/docs/2016/Coops-2030Agenda/Mendoza.pdf Meredith, J. (2009). The tools for the job: A survey-based discussion paper on e-learning for apprenticeship in Saskatchewan. Loxley, J. (2010). Aboriginal, northern, and community economic development: Papers and retrospectives. Winnipeg, Manitoba: Arbeiter Ring Publishing. Neechi Commons. About Us. Retrieved from https://neechi.ca/about/ Neechi Commons. NewsWorthy. Retrieved from https://neechi.ca/special-events/ Olaniyan, O. O., Ero, A., Hay, A., Berge, S. (2016). “The cooperative model advances Indigenous development: A case study of the Neechi Co-operatives Limited”. International Summit of Cooperatives, Quebec 2016. Retrieved https://www.sommetinter.coop/en/virtual- library/scientific-articles/cooperative-model-advances-Indigenous-development-case-study Peredo, A. M., & Chrisman, J. J. (2006). Toward a theory of community-based enterprise. Academy of management Review, 31(2), 309-328. Rose, S. W. (2013). Comparative models of American Indian economic development: Corporate versus cooperative in The United States and Canada (Master’s thesis). Retrieved from ProQuest Database, UMI Number: 1539865. Saskatchewan Apprenticeship and Trade Certification Commission (SATCC). (2011). Report on labour market conditions for the apprenticeship trades in Saskatchewan. Retrieved from https://dl.dropboxusercontent.com/content_link/Du7s8DYTG9P5- btbvyJPDOD2QM32ZRF8f7RgaKXzmzzdqlkFIOkjHR9p409MlDmRi/file Schlichting, K. (2006). “LITE and food security in Winnipeg’s inner city.” In A. M. Kiryson (Ed.). Recipes for success: A celebration of food security work in Canada (pp. 17-18). Toronto: Brunswick Books. Statistics Canada. (1993). “Schooling, work and related activities, income, expenses and mobility.” 1991 Aboriginal Peoples Survey, Ottawa. Retrieved December 14, 2017, from http://publications.gc.ca/site/eng/37342/publication.html


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Appendix 1: Timeline 1992 ✓ Whitesand First Nation and Armstrong submitted a community forest proposal which included a

Co-generation facility, which was not accepted. 2009 ✓ Whitesand First Nation created the Community Sustainability Initiative to improve the livelihood

of community members through the economic development and sustainable management of the local forests, including green energy projects.

✓ Whitesand First Nation first presented Cogen/pellet proposal to the Ontario Power Authority (OPA).

✓ Initial business plan for project started. 2010 ✓ Whitesand First Nation formed Sagatay Economic Development LP (primarily Heavy Equipment

contracts) to manage economic development. ✓ Whitesand First Nation formed Sagatay Co-generation Ltd and Sagatay Wood Pellets Ltd. ✓ Initial business plan for project issued.

2011 ✓ Whitesand First Nation awarded wood supply (ten year, renewable) through the Provincial Wood

Supply Competition for 149,000 m3/year (R11-0067). 2012 ✓ Ontario Land Use Permit (LUP1246-1001587) for the industrial site issued to Sagatay Economic

Development. ✓ Preliminary scope budget opinion of cost (plus 30%) by Genivar (WSP) for cogen and pellet

facilities. ✓ Renewal Energy Approval application started.

2013 ✓ Constraints analysis conducted including industrial water well drilling. ✓ Neegan Burnside engaged to carry out Renewable Energy Approval applications. ✓ Preliminary scope budget opinion of cost (plus 20%) by Genivar (WSP) for cogen and pellet

facilities. ✓ Meetings begin with MNRF and MOECC. ✓ Whitesand First Nation community members engaged in a 56-week Wood Products & Energy

Manufacturing Program at Confederation College. ✓ Public consultation regarding Renewable Energy Approval applications (August, September 2013,

April 2014; over two hundred people participated). 2014 ✓ Connection Impact Assessment provided to Hydro One Remote Communities Inc. ✓ Engineering & Design Opinion of Cost (Class 10 level) by WSP. ✓ Crown Land Development Class EA drafted and submitted to Ministry of Natural Resources and

Forestry. ✓ Neegan Burnside Renewable Energy Approval reports issued. ✓ Power Purchase Agreement discussions begin with OPA (IESO).


http://www.whitesandfirstnation.com/community-sustainability-initiative

http://www.whitesandfirstnation.com/sagatay-economic-development

http://www.thunderbaybusiness.ca/article/mcguinty-government-putting-ontario-wood-to-work-creating-good-jobs-356.asp

https://news.ontario.ca/mndmf/en/2011/04/supporting-the-forest-industry-at-whitesand-first-nation.html



http://www.wsp-pb.com/

http://www.neeganburnside.com/

http://www.wsp-pb.com/

http://www.whitesandfirstnation.com/assets/files/REA/final/030895_12_Consultation_Report.pdf

http://www.whitesandfirstnation.com/rea-reports

2015 ✓ AON Risk Control Report. ✓ Whitesand First Nation responded to IESO findings. ✓ Renewable Energy Approval (Number 4623-9W7K5Q) from the Ontario Ministry of Environment. ✓ Power Purchase Agreement discussions with OPA (IESO) suspended in March, until Minister’s

Directive instructed the IESO to complete a Power Purchase Agreement in December. ✓ Resolute Forest Products “enter into agreement for 50,000 m3/yr hardwood exchange.

2016 ✓ Power Purchase Agreement discussions restarted with IESO. ✓ Environmental Compliance Approval (air - Number 0428-9Z9R7B) for the wood pellet facility. ✓ Sagatay Co-generation & Wood Pellet Business Plans reformatted to MNRF Facility License

Application. ✓ Forest Management, Wood Costing and Merchandizing Yard Feasibility Analysis on the Armstrong

Forest issued by KBM. ✓ Human Resources Readiness Plan supported by MNDM and prepared by Arbora Management

Services. ✓ Power Purchase Agreement Draft Contract received from IESO.\

2017 ✓ Power Purchase Agreement discussions continued with IESO, draft contract agreed summer 2017. ✓ Ontario Workforce Innovation Centre/Ryerson University funding support for Workforce

Development ✓ Finland Whitesand MOU to investigate Finnish bio equipment and expertise opportunity ✓ Power Purchase Agreement approved by IESO board final signing document being prepared for

execution (late October early November anticipated signing) ✓ FedNor, NOHFC and INAC funding commitments secured for Bio-Energy Centre site construction

preparation, RFP scheduled for September 22 and construction scheduled to begin in October. ✓ Resolute and Whitesand enter into business to business discussions ✓ Purchase of property from Crown ✓ MNRF agrees to de-amalgamate the Armstrong from the Nipigon Forest back to a stand alone

management unit


http://www.downloads.ene.gov.on.ca/envision/env_reg/er/documents/2015/012-3819_REA.pdf

http://www.ieso.ca/Documents/Ministerial-Directives/2051214-Directive-NUG_CHPSOP_ChaudiereFalls_WhitesandFirstNation.pdf

http://www.ieso.ca/Documents/Ministerial-Directives/2051214-Directive-NUG_CHPSOP_ChaudiereFalls_WhitesandFirstNation.pdf

https://www.accessenvironment.ene.gov.on.ca/instruments/0142-9QST4G-14.pdf

http://www.arbora.ca/

http://www.arbora.ca/

Appendix 2: Job Requirements Summary

Administrative Management

Positions Available

Positions in this category include Administrative Assistant, Electrical Tradesperson, Environmental Coordinator, Finance/Comptroller/Payroll Administration, Health and Safety Coordinator and Millwright. Overall Skills Required for these Positions

Skills required include advanced digital skills are required in Microsoft software, interpersonal, organizational skills, planning, managing projects, report writing, technical field work, logistics coordination, supervisory activities, industry consulting, experience in developing/implementing programs, monitoring performance, evaluating adequacy/effectiveness of programs, providing reporting and recommendations, multi-tasking, independent judgement, organization, attention to detail, excellent communication skills. Some positions require specific credentials such as a bachelor, diploma (eg. Business Administration/related, Environmental Science/related, Occupational Health and Safety), or Industrial Electrician designation. Skills Gap based on Preliminary Talent Mapping and Employer Expectations

Gaps appear to be in the areas of “prior experience” and the limited pool of applicants with advanced degrees. In the preliminary talent survey, only 7.1% of respondents had post-secondary degrees. Potential Mechanisms for Bridging Skills Gap

Online Professional Learning Candidates who have relevant bachelor degrees can gain additional skills by enrolling in Online Continuing and Professional Education courses available at different colleges and Universities.

Co-Generation

Overall Skills Required for these Positions

Skills required include digital skills, effective communication - verbal, writing, troubleshooting skills, working under limited supervision, organizational skills, attention to detail, high degree of accuracy, team work, multitasking, leadership ability, interpreting programs and policies, flexibility, and adaptability. Skills Gap based on Preliminary Talent Mapping and Employer Expectations Gaps appear to be primarily in the areas of “previous experience” (eg. Minimum of 5 years supervisory experience with demonstrated motivating, training, appraising and gen), which may not have been possible in the small community. Gaps may be in the areas of participant willingness to pursue these challenging jobs - an area for further exploration in subsequent project phases. Job Particularities


These jobs appear to involve physically demanding activities involving, for example, a worker needs to have “ability to work in obscure and extreme work settings that include but not limited to extreme temperatures while working indoors and outdoors, working near high radiant temperature equipment and machinery, working within; dark, dirty, wet and noisy conditions. Must have ability to perform job tasks in prolonged sitting and standing position for shift duration with appropriate breaks.” or “The ability to exert significant muscle force to lift, push, pull, or carry objects. Manual Dexterity: The ability to quickly move, and react. Able to safely lift objects as required up to 50 pounds. Must be able to climb vertical steps and/or ladders. Able to rotate head and torso as required. Able to work at heights. Ability to work shift work.” Potential Mechanisms for Bridging Skills Gap

Experiential forms of education and job-specific training may help to address the skill gap. Additional educational programs focused on motivation, the importance of the job and job satisfaction may enhance work experience.

Harvesting


Some of these positions require Bachelor's Degree/Diploma. Skills required include leadership, team building, communication, interpersonal skills, problem solving skills, resourcefulness, flexibility, adaptability, planning, organization, interpreting programs, goals, objectives, policies, procedures, digital skills - Microsoft Word, etc; organizational skills, multitasking Job Particularities

Physically demanding conditions. The ability to work in obscure and extreme work settings that include but not limited to; extreme temperatures while working indoors and outdoors, working near high radiant temperature equipment and machinery, working within; dark, dirty, wet and noisy conditions. Able to safely lift objects as required up to 50 pounds. Must have ability to perform job tasks in prolonged sitting and standing position for shift duration with appropriate breaks. Ability to work shift work. Skills Gap based on Preliminary Talent Mapping and Employer Expectations Forestry-related experience and qualifications required Potential Mechanisms for Bridging Skills Gap Online learning programs may help address some gaps. Experiential learning opportunities and employer-lead training may enhance work experience

Wood Pellet Plant



Educational requirements appear to be relatively accessible. However, only 7.1 % of respondents in the preliminary survey indicated that they graduated from Grade 12, while 23.8% indicated that they achieved Grade 11, and 21.4% completed grade 10. Skills Gap based on Preliminary Talent Mapping and Employer Expectations Skill gaps appear to be related to the talent pool size eligible for these positions. Most individuals who possess post-secondary degrees in the community may be overqualified for most of these positions. Potential Mechanisms for Bridging Skills Gap Helping Grade 11 and Grade 10 community members to graduate through an accelerated, assisted program, may increase the talent pool eligible for these jobs in the 40% range - however, this is only a hypothesis since the preliminary talent survey had a small sample size and may not have been statistically significant. Based on the results of the survey, however, it may be beneficial to understand how to help individuals who are very close to achieving Grade 12 in order to fill these important positions in the community.

Wood Yard


These jobs require, in general, mechanical skills, troubleshooting, mechanical abilities, communication skills, attention to detail, accuracy, teamwork, maintenance, fast-paced work ability, safety attention, high degree of accuracy, digital skills, diplomacy, professionalism, leadership. Most jobs require Grade 12/equivalent. As indicated previously, only 7.1% achieved this grade level based on the preliminary survey. Job Particularities

The ability to work in obscure and extreme work settings that include but not limited to; extreme temperatures while working indoors and outdoors, working near high radiant temperature equipment and machinery, working within; dark, dirty, wet and noisy Conditions. The ability to exert significant muscle force to lift, push, pull, or carry objects. Manual Dexterity: The ability to quickly move, and react. Able to safely lift objects as required up to 50 pounds. Must be able to climb vertical steps and/or ladders. Able to rotate head and torso as required. Skills Gap based on Preliminary Talent Mapping and Employer Expectations Some prospective workers may not own sufficient tools to be eligible “Own your own tools and equipment required to successfully do the required job and tasks.” Potential Mechanisms for Bridging Skills Gap Assisting Grade 10/11 prospective workers who are motivated to achieve the required Grade 12 requirements, perhaps by offering conditional acceptance to motivate them to complete the remaining courses. A public-private partnership aligned to this task would potentially make a meaningful difference in the community -- further explore the Grade 10-11-12 progression using a statistically relevant sample: area for intervention.


The opinions expressed in this report do not necessarily reflect those of the Government of Canada or the Government of Ontario.