Whatever happened to a representative workforce
in Saskatchewan?
Larry SandersResearch Associate
Indigenous Peoples Health Research
Centre (IPHRC)June 10, 2010
Agenda for today
• 1:00 – 1:30 Larry Sanders. Opening overview• 1:30 – 2:15 Wayne McKenzie• 2:15 – 2:45 Coffee and conversation in groups
(questions to consider)• 3:00 – 4:00 Collective discussion, groups will
report back, facilitated by Dr. Eber Hampton. Where do we go from here?
• 4:00 Closing
Overview
• Personal policy history• Academic literature and reports on
representative workforce initiatives• Labour force statistics from Sask Trends
Monitor• Conclusions and recommendations
Representative of Ontario Coalition for Healthy Communities was keynote speaker, giving details of the manual they had produced about the complex work of building effective “partnerships” involving community organizations, First Nations and government agencies.
Victoria Gubbels, at the time working for SAHO, was the moderator of the forum. She said the regional health authorities had hired 1,900 people who had self-declared as aboriginal, out of a total workforce of about 36,000. That’s 5.27%
Panel of people involved in various aspects of trying to develop a representative workforce in Saskatchewan’s off-reserve health sector. Panel included representative from CUPE talking about aboriginal awareness training developed through a collaborative effort by union and management, Saskatoon and Regina regional health authorities talking about their strategies and programs, and a representative of SAHO talking about career pathing program.
Panel on HHR challenges faced by First Nation health organizations. L to R: representatives of Battleford Tribal Council Health Services, Gordon First Nation, Northern Inter-Tribal Health Authority (NITHA) and First Nations and Inuit Health Branch, Health Canada, Saskatchewan Region.
Representative workforce policies in action in the health sector
• partnerships: locally and provincially• aboriginal awareness training: preparing the
workplace, trying to break down myths and misconceptions, overt and covert racism
• supportive employee development strategies such as work preparation programs to enter the workforce, then career pathing and other supportive strategies once in the workforce
Existing research: 2001
Susan Pentelichuk 2001 thesis on apprenticeship system in Sask
• apprenticeship system working well, for young white males. Women and aboriginal people not aware of apprenticeship as a life option or rejected it
• cultural, distance, and language barriers stopped aboriginal people from participating
• apprenticeship training model of learning from a mentor in applied context understood and accepted, but workplace learning culture seen as barrier for women and aboriginal people (“macho white male” environment)
• recommendation: don’t lower standards of industry, but recognize different learning styles and adapt to accept other cultures
Existing research: 2003
Klyne, Richard J. "Employment barriers and aboriginal working life: towards a representative workplace in Saskatchewan." M.V/TEd. thesis, University of Regina, 2003. Found five key barriers to aboriginal employment and retention:
1. subtle and blatant racism; 2. recruitment and selection processes for employment; 3. a gap between official government policy and practice in
relation to workplace diversity;4. very few Aboriginal people in positions involving real
decision-making authority; and 5. some confusion about what constitutes a representative
workplace.
Existing research: 2007Caverley, Natasha. "What works: effective policies and
programs for aboriginal peoples of Canada." Ottawa, ON: Turtle Island Consulting Services Inc., 2007. Extensive lit review and national consultations. Best practices identified included:
• evidence-based strategic planning done by partnerships• hiring and supporting aboriginal employee career
development officers• aboriginal awareness training• aboriginal employee networks• develop and support evaluation methods relevant to
aboriginal people
Existing research: 2007Peach, Ian. "Case study research – Saskatchewan’s approach to increasing aboriginal people’s representation in the health care workforce. Prepared by the Saskatchewan Institute of Public Policy for Human Resources and Social Development Canada.” Saskatchewan Institute of Public Policy, University of Regina, 2007 study commissioned to learn about the “Saskatchewan model” in recognition of the “horizontal” nature of this policy issue and to document Saskatchewan’s experience in achieving some success in horizontal collaboration key informant interviews found mostly strengths and some “lessons learned” from the SK approach:
shared vision strategic framework, but not necessarily shared understanding of a strategic
direction leadership widely shared collaborators worked well together (“soft” management skills) allowance for flexibility in partnership so some task teams can take on specific
projects without necessarily implicating or engaging entire network recommended guidelines for horizontal collaboration projects to be funded by
federal government in the future
Existing research: 2010SMAHHR project: “Seeking models of aboriginal health human resources” received CIHR funding in 2006, signed research partnership agreement with Northern Inter-Tribal Health Authority (NITHA) in July 2007. SAHO and Health Canada were supportive co-applicants.Project launched to identify and elaborate indigenous ways of understanding health and indigenous ways of “managing human resources.” Project runs to September 30 2010
Key preliminary findings relevant to our discussion today: successful partnerships between aboriginal and non-aboriginal organizations and individuals should be constructed in an ethical space, where indigenous and non-indigenous world views have equal standing, not western dominant indigenous ways of thinking about and doing management of HR are wholisitic and focus on maintaining “good relations” and are likely exemplars for better management for everyone, not just aboriginal peoples aboriginal employees face multiple challenges and require supports such as career pathing to overcome effects of colonialism, racism, etc.
Existing research 2010 (continued)
Summary: RWF policies and practices• policy framework was based on evidence of what
worked, what wasn’t working, particularly building and maintaining strong partnerships at all levels, plus taking a long-term, wholistic approach to aboriginal employment development
• “Saskatchewan model” seen as national best practice
• no clear benchmarks; still a long way to go; some employers frustrated with “touchie-feelie” approach – they believe it should just be up to training institutions to prepare employees, aboriginal or otherwise
Unemployment rates, by EI RegionMarch 2009 December 2008 March 2008
Canada 7.7% 6.8% 6.3%
Regina 3.5% 3.6% 3.8%
Saskatoon 4.6% 4.0% 3.5%
Southern SK 6.3% 5.5% 6.1%
Northern SK 15.5% 15.5% 15.2%
Source: EI Monitoring and Assessment Report 2009Human Resources and Skills Development Canada
Annex 1.1 - Unemployment Rate, by EI Regionhttp://www.hrsdc.gc.ca/eng/employment/ei/reports/eimar_2009/index.shtml
Saskatchewan experienced the highest yearly rate of employment growth (+2.6%, or 13,200 added to the labour force) during the 2008-09 fiscal year. This was the first time that Saskatchewan held the top rank in employment growth since comparable data were first recorded in 1976/77
June 2, 2009 21
Saskatchewan’s Aboriginal Population in 2006
Excluding the population in collective dwellings, there were 141,890 persons who reported an Aboriginal identity in 2006.
Approximately two thirds are First Nation members, almost all of whom are “Registered” in the sense of The Indian Act.
There are about 3,000 individuals who reported that they were:
• Indian although not registered,
• Inuit, • another Aboriginal
identity, or • a combination of
these.
Aboriginal Identity Population in Saskatchewan, 2006, (n = 141,890)
Métis single identity48,11534%
Registered Indiansingle
identity90,72064%
Indian Identity, not Registered
680<1%
Multiple, Inuit and other
2,3752%
22June 2, 2009
Aboriginal Population in 2006: Interprovincial Comparison
Manitoba and Saskatchewan are, by far, the provinces with the largest Aboriginal populations as a percentage of the total population.
Although the largest proportion of Aboriginal people in Canada live in Manitoba and Saskatchewan, the highest number are in Ontario. In 2006, there were 242,000 Aboriginal people in Ontario compared with Saskatchewan’s 142,000.
Aboriginal Population as Percentage of the Total Population, 2006
4.7%
1.3%
2.7%
2.5%
1.5%
2.0%
15.5%
14.9%
5.8%
4.8%
3.8%
0% 2% 4% 6% 8% 10% 12% 14% 16% 18%
Nfld
PEI
NS
NB
Que
Ont
Man
Sask
Alta
BC
Canada
Note: NorthernTerritories = 53%
23June 2, 2009
Basic Counts: Residence in Urban Areas
As a proportion of the total population, Aboriginal people are more common in Prince Albert and North Battleford.
They are less common in Regina and Saskatoon and almost non-existent in southern urban centres such as Estevan and Swift Current.
Among urban centres, the fastest growing Aboriginal population from 2001 to 2006 was in Prince Albert.
Aboriginal Population as Percentage of the Total Population, 2006
34.1%
20.5%
12.9%
10.7%
9.3%
8.9%
4.9%
3.5%
1.8%
20.9%
0% 5% 10% 15% 20% 25% 30% 35% 40%
Prince Albert
North Battleford
Lloydminster (SK)
Yorkton
Saskatoon
Regina
Moose Jaw
Estevan
Swift Current
All other locations
24June 2, 2009
Completed Education: Changes over Time
The levels of completed education are rising in the Aboriginal and non-Aboriginal populations in Saskatchewan. The gap between the two is, however, widening.
From 1996 to 2006, for example, the proportion of adults with a post-secondary education increased:
• from 37% to 45% in the Non-Aboriginal population; and
• from 23% to 29% in the Aboriginal population.
Changes in Completed Education, Adult (15 and older) Population, 1996 to 2006
0% 10% 20% 30% 40% 50% 60% 70% 80%
Aboriginal
Non-Aboriginal
Aboriginal
Non-Aboriginal
At
leas
t G
rad
e 12
Po
st S
eco
nd
ary
Gra
du
ate
1996
2001
2006
25June 2, 2009
Employment: Interprovincial Comparison, 2006
The employment rates for the Aboriginal population are lower in Saskatchewan than in Canada as a whole or in either of our neighbouring provinces.
Employment Rates, Aboriginal Population 15 to 64 Years of Age, 2006
57%
53%
48%
64%
20% 30% 40% 50% 60% 70% 80%
Canada
Manitoba
Saskatchewan
Alberta
26June 2, 2009
Employment Rates by Urban Area, 2006
Employment rates tend to be higher in urban areas where relatively few Aboriginal people live – Estevan and Swift Current, for example.
Rates are noticeably lower in the larger centres – Regina and Saskatoon – and in Yorkton.
Employment Rates, Aboriginal Population, 15 & Older, 2006
78%
67%
66%
58%
56%
56%
56%
54%
52%
39%
0% 20% 40% 60% 80% 100%
Estevan
Lloydminster (SK)
Swift Current
Moose Jaw
North Battleford
Prince Albert
Regina
Saskatoon
Yorkton
All other locations
Composition of the Labour Force
Compared with today, the labour force of the future will have more Aboriginal people, more immigrants, and more older workers.
In 2009, 6% of the labour force is comprised of immigrants and an estimated 8% is comprised of Aboriginal people.
An increase in the participation rates for the Aboriginal population would increase their share beyond the 11% shown here.
March 22, 2010 27
Saskatchewan Labour Force in 2020
Aboriginal11%
Immigrants10%
Non-Aboriginal population
born in Canada
79%
Comparison of Labour Force Supply and Demand
In spite of the unprecedented growth in the population and the labour force, there is still a distinct possibility that the province will experience a general shortage of workers in the future.
If the demand for labour grows at 10,000 per year (the increase during the growth period of 2007 and 2008) the growth in the size of the labour force will be insufficient to meet the demand for workers.
March 22, 2010 28
Various Scenarios for Labour Market Supply and Demand
500,000
550,000
600,000
650,000
700,000
750,000
800,000
2007 2009 2011 2013 2015 2017 2019 2021 2023 2025 2027 2029
Increase in Demand of 10,000 per year
Supply
April 15, 2010 29
Monthly Employment Trends in Saskatchewan
The recent surge in employment started in 2006. There was a slowdown in 2007 which was thought to be caused by a shortage of workers rather than a shortage of jobs.
The 2.2% increase in the annual average for 2008 is the largest increase since the mid 1980s. Most of the growth happened over the summer, just before the financial crisis began in earnest.
There has been little or no growth since September 2008.
Monthly Employment in Saskatchewan, Seasonally Adjusted
480
485
490
495
500
505
510
515
520
525
530
535
Jan-07
Mar-07
May-07
Jul-07
Sep-07
Nov-07
Jan-08
Mar-08
May-08
Jul-08
Sep-08
Nov-08
Jan-09
Mar-09
May-09
Jul-09
Sep-09
Nov-09
Jan-10
Mar-10
thousands
Concluding thoughts and recommendations• colonialism and racism have been with us for a long time,
their effects are still present in the labour force, and will take a long time to defeat. Short term solutions won’t succeed
• representative workforce initiatives were quite likely on the right track but could have been improved and expanded, particularly with greater engagement with aboriginal leaders in designing and implementing initiatives. Current “review” process dangerous because it’s not transparent
• The “do nothing” option, or leaving workforce development strictly up to employers and local initiatives didn’t work before (up to 1990s) so likely won’t work in 21st century
Concluding thoughts (2)• There has been quite a bit of descriptive literature
published about diversity in the workplace, but “usable knowledge is in short supply” (Pitts and Wise 2010)
• Except for SIIT, GDI and FNUniv, training institutions don’t have representative student populations because of curriculum and accessibility issues and therefore are not producing a representative workforce. Elders tell us that “education” to be valid has to be inclusive of both western and indigenous epistemologies (Akan 1992)
• strategic, system-level approaches with targeted investments have been shown to work, so why not continue?
ReferencesAkan, Linda. "Pimostamowin Sikaw Kakeequaywin: walking and talking. A Saulteux Elder's view of native education." Canadian Journal of Native Education 19, no. 2 (1992): 191-24
Caverley, Natasha. "What works: effective policies and programs for aboriginal peoples of Canada." Ottawa, ON: Turtle Island Consulting Services Inc., 2007
Klyne, Richard J. "Employment barriers and aboriginal working life: towards a representative workplace in Saskatchewan." M.V/TEd. thesis, University of Regina, 2003
Peach, Ian. "Case study research – Saskatchewan’s approach to increasing aboriginal people’s representation in the health care workforce. Prepared by the Saskatchewan Institute of Public Policy for Human Resources and Social Development Canada." Regina, SK: Saskatchewan Institute of Public Policy, University of Regina, 2007
Pentelichuk, Susan Phyllis. "Public policy in changing times: moving toward an apprenticeship training system representative of the workforce in Saskatchewan." M.V/TEd. thesis, University of Regina, 2001
Pitts, David W., and Lois Recascino Wise. "Workforce diversity in the new millennium: prospects for research." Review of Public Personnel Administration 30, no. 1 (2010): 44-69
Questions? Comments?
Larry SandersResearch Associate
Indigenous Peoples’ Health Research Centre (IPHRC)
University of Regina(306) 337-2437