6.1       Education and Training for Northern Aboriginal Persons

An education system that is equal to what is available elsewhere in the country, and it must be delivered in the context provided by Inuit language and culture.[87]

Robert Long, Government of Nunavut

Another main barrier to economic development noted by many witnesses is the lack of a sufficiently educated and trained local population in the northern territories, especially for Aboriginal persons, which limits local engagement in the economic potential of the North.

As stated by Ted Tsetta, Chief of the Yellowknife Dene First Nation, in relation to the need for increasing the educational attainment of northern Aboriginal peoples:

One of the biggest issues we have here in the [N]orth is that... other people benefit from our resources.[88]

Education is generally recognized as an essential building block to achieving positive labour market and employment outcomes. Witnesses before the Committee noted, however, that many Aboriginal people in Canada lack the education, training and skills needed to successfully obtain and retain employment in the northern economy.

Some witnesses indicated that the active engagement of the relatively young and growing Aboriginal population in the North could serve as one way to help alleviate future labour market shortages in the North. For instance, Violet Ford, of the Inuit Circumpolar Council stated:

Youth in the Inuit world in Canada make up over half of the population. They will be our new leaders, so they will need to be involved at an early stage.[89]

It is commonly known that Aboriginal people, as with other Canadians, who have a higher educational attainment tend to earn higher incomes and have a better chance of gaining employment. The main challenge is therefore to determine what strategies are effective in ensuring Aboriginal youth in the North attain high education levels.

An illustration of the differences in educational attainment is available from the 2006 Census, as shown in Figure 6.1. With the exception of trades and college attainment, Aboriginal people in the territories are significantly behind non-Aboriginal Canadians, especially in Nunavut. The differences are most significant for those without a high school or university degree.

Figure 6.1: Educational Attainment for Persons Aged 25-64: Aboriginal by Territory vs. Non-Aboriginal for Canada (as a share of respective population aged 25-64)

Source: Calculations using data from Statistics Canada, Census 2006: Community Profiles.

The proportion of core working-age Aboriginal people in the northern territories without a high school degree ranges from 34% in Yukon to 59% in Nunavut, as compared to only 15% for Non-Aboriginal people in Canada. As one would expect, the lack of high school completion among Aboriginal northerners has a direct impact on university degree attainment, which ranges from 7% in Yukon to only 3% in Nunavut, compared with 23% for non-Aboriginals in Canada.

The relatively low educational attainment of Aboriginal persons in the North has resulted in employers seeking various alternative strategies to ensure their operations remain viable. Given a lack of qualified northerners, many businesses have had no other choice but to bring skilled workers from the southern regions of Canada, or from other countries—those who have benefited from a well-developed education and skills training system, either from the major city centres of Canada, or from other countries. Many businesses do, however, recognize the benefits of hiring locally to ensure business development. For example. Greg Missal, of the Baffinland Iron Mines Corporations stated:

You have all the different levels of skill requirements, and you have to fill those needs. We'd love to see those skills coming out of the local communities rather than having to bring them up from southern Canada.[90]

6.2       Labour Market Performance for Northern Aboriginal Persons

The majority of the skilled workforce is still coming from southern Canada. This trend needs to be reversed for the [N]orth to become economically sustainable.[91]

Lawrence Connell, Agnico-Eagle Mines Limited

As mentioned in the previous section, without greater engagement in the job opportunities that are arising due to the natural resources sector in the northern territories, Aboriginal peoples cannot fully benefit from these activities.

As an indicator of labour market performance in the North, Figure 6.2 shows that Aboriginal persons in the territories account for about half of the total population of over 100,000 persons, but represent three-quarters of the unemployed.

Figure 6.2: Population and Labour Force Characteristics for Persons Aged 15+: Aboriginal vs. Non-Aboriginal for all Territories (as a share of all persons in the territories)

Source: Calculations using data from Statistics Canada, Census 2006: Community Profiles,

Figure 6.3 provides a comparison between Aboriginal persons in each territory with non-Aboriginal persons across Canada. Although labour force participation rates[92] for Aboriginal peoples in each territory are relatively similar to the Canada average for non-Aboriginal persons, their employment rates[93] are much lower, while their unemployment rates[94] are over 3 times greater. In particular, labour market outcomes are somewhat worse for the Inuit in Nunavut. As well, evidence from the 2006 Census show that median Aboriginal earnings in each territory (Yukon: $21,588; NWT: $25,078; Nunavut: $17,959) are much lower than for non-Aboriginal persons across Canada ($27,156). This exacerbates their poverty, which has already been increased by the high cost of living in the North.

Figure 6.3: Labour Market Indicators for Persons Aged 15+: Aboriginal by Territory vs. Non-Aboriginal for Canada (as a % of population aged 15+)

Source: Calculations using data from Statistics Canada, Census 2006: Community Profiles.

Given this evidence, it is reasonable to conclude that Aboriginal northerners do not participate in, or benefit from the economy to the same degree as non-Aboriginal persons, either in the territories or across Canada. This conclusion is consistent with that reached by Daniel Vandermeulen, of Nunavut Arctic College, in his presentation to the Committee on education and labour force participation for Inuit peoples.[95]

Since available evidence suggests that Aboriginal persons are at a competitive disadvantage in the North, the following section focuses on the education and labour market participation of Aboriginal persons in the North, with a particular emphasis on the most disadvantaged group of territorial northerners—the Inuit.

6.3       Types of Aboriginal Employment in the Northern Territories

Short-term solutions and quick fixes are not the answer. People development is a priority, with a focus on developing human resources today to meet the long-term challenges and opportunities of tomorrow.[96]

Nicole Sikma Arctic Cooperatives Limited

Today, Aboriginal peoples’ participation in the economy can be characterized as a mix of wage employment and traditional activities (hunting, fishing, trapping).

6.3.1   Aboriginal Wage Economy

Wage employment for Aboriginal northerners is derived in general through three sectors (see Panel 6.1):

• Government administration, and its related services (e.g. health and social services, education);
• Natural resources development, mainly mining (e.g., diamonds, oil and gas, gold, silver, lead, zinc, etc.); and
• Services that support the existence of government and/or mining operations, such as:
• Construction and transport; and
• Small businesses, mainly in the service sector (i.e. tourism, retail, accommodation and food services, etc.).

Panel 6.1: Aboriginal Employment by Industry and Occupation

Source: Statistics Canada, 2006 Census.

As shown in Panel 4.2 by occupation, about half of all Aboriginal persons in the North tend to work in jobs that require relatively low levels of education, including sales and service, and trades and transport. Although non-Aboriginal workers in the territories tend to work in the same industries, they are more regularly hired in positions that require higher levels of education, and that generally offer higher wages and salaries, such as positions in management, and business, finance and administration.[97]

6.3.2   Traditional Aboriginal Practices

Although the majority of witnesses referred to skills shortages in relation to the wage economy, some also referred to the challenges of maintaining traditional lifestyles in the North. The role of traditional harvesting activities (i.e., hunting, fishing and trapping) is often poorly captured in official statistics despite its importance to Aboriginal communities, especially for those in more remote locations. As stated by Thomas Berger (former Conciliator for the implementation of the Nunavut Land Claims Agreement):

The importance of maintaining the traditional economy of hunting, fishing, and trapping, which was then, and I believe is today, an important component of northern culture and putting food on the table. That tends to be overlooked in the enthusiasm for industrial projects.[98]

Despite the difficulties in quantifying precisely the value of the traditional economy in monetary terms, as these activities occur mainly in isolated regions, various witnesses stated that there are tangible quality-of-life benefits, as well as the benefits of nutritious food, cultural heritage and some economic returns through trade with southern markets for furs, pelts, and food items for consumption.

Some attempts have been made, however, to understand how these practices influence the lives of Aboriginal northerners. For example, Statistics Canada, in a review of health and social conditions for Inuit peoples, recently estimated that country food comprises two-thirds of the fish and meat eaten by Inuit families in Nunavut.[99]

Statistics Canada also estimated that traditional practices (i.e. hunting, fishing, gathering and trapping) occur on a regular basis throughout the year, and across each territory, as shown in Table 6.1.

Table 6.1: Aboriginal Adult Participation in Traditional Activities, 2001

Source: Statistics Canada, Aboriginal Peoples Survey, 2001.

Despite the regular participation of Aboriginal peoples in traditional activities, and given their benefits to both northern communities and southern markets, many witnesses point to the risk that, with the lack of government support, these activities may be lost as northerners seek opportunities linked with the modern wage economy. For example, Charles Pokiak, of the Tuktoyaktuk Hunters and Trappers Committee stated:

To me, trappers are a dying breed. It's hard to say, but it is true… For instance, the dog officer up there gets more for a dog that's killed than you get for fur. It's $40 for a fur-bearing animal. To kill a loose dog that's a nuisance, you get $75. Which way would you want to go?[100]

6.4       Approaches to Enhance Aboriginal Labour Market Outcomes and Support Traditional Activities

Because of the Inuit culture and being away from family, … typically a lot of them end up going back home and dropping out of the program.[101]

Peter Mackey, Qulliq Energy Corporation

Current federal government support for skills and employment training to Aboriginal northerners is provided through such programs as the Aboriginal Skills and Employment Training Strategy (ASETS), Aboriginal Skills and Employment Partnership, and the Aboriginal Skills and Training Strategic Investment Fund (ASTSIF). The main goal of these federal government programs is to help Aboriginal peoples prepare for, obtain and maintain meaningful and sustainable employment (see Table B-4, Appendix B for more information). To better meet the needs of Aboriginal northerners in terms of education, skills training, and links with jobs, witnesses suggested various strategies that the Government of Canada could consider. The following subsections describe some of the more common strategies mentioned by witnesses.

6.4.1. Coordinated education and training strategy

In general, witnesses referred to how coordinated approaches benefit from the cooperation and expertise of all parties by balancing potential labour resources with business and development opportunities, while at the same time taking into consideration the needs of northerners.

Many proposed that collaborative partnerships are required among private industry, government organizations, educators and Aboriginal communities if initiatives are to maximize the labour market potential of Aboriginal peoples and satisfy the future employment requirements of private industry. This view is supported by Paul Thompson (Human Resources and Skills Development), who in relation to creating partnerships with northerners mentioned the following during his testimony to the Committee:

We are looking at models that have a much more active role for the workplace in delivering training… those kinds of new approaches are really based on the partnerships that can be developed among employers, educational institutions, and training providers, so that we can see who's best placed… to meet the needs.[102]

In relation to the concept of partnerships, Lawrence Connell (Agnico-Eagle Mines Ltd.) proposed that the Government of Canada work with other governments, northern businesses and communities to develop a large-scale, coordinated strategy on adult skills training for Aboriginal peoples. To put this matter into context, Mr. Connell stated the following:

The Inuit are a proud people and need our help to climb out of this long cycle of dependence. If we work with them, we will see a positive response that will lead to the growth of a sustainable middle class. As the adults gain their self-respect by becoming independent, they will provide the role models for the younger generation. The current status quo is just not working.[103]

Despite the proposed benefits of partnerships, however, these initiatives have difficulty starting without support from governments. The Committee agrees with witnesses that the federal government has a valid role to play.

Although HRSDC’s ASETS supports the concept of partnerships, as it is a relatively new program no evidence is available as to how this program would achieve these partnerships. For this reason, the Committee recommends:

Recommendation 8:

That the Government of Canada, in order to satisfy the employment requirements in the North, continue to facilitate partnerships and continue to provide financial support to territorial and Aboriginal governments, businesses and communities to establish educational structures and training programs that attract Aboriginal students.

In the 2010 Spring Report of the Auditor General (OAG) of Canada,[104] an audit of federal government programs in support of Aboriginal skills training in NWT was conducted. In particular, the audit covered the Aboriginal Skills and Employment Partnership (ASEP) and Aboriginal Human Resources Development Strategy (AHRDS) programs managed by HRSDC, both national programs that support skills training initiatives in the NWT and across the northern territories.

The OAG found that HRSDC has not assessed these programs’ progress toward their longer-term objective and outcome regarding sustainable employment for Aboriginal peoples. As the OAG report noted: “this is important in order to understand if these programs are contributing to a positive long-term impact and if Aboriginal peoples are obtaining the skills needed for sustainable employment.”[105]

Although HRSDC, in response to the OAG audit, stated that it will “continue to work with Aboriginal communities and other partners to assess longer-term impacts and ensure that programs are leading to improvements over time”, it remains unclear to the Committee precisely how this monitoring and reporting is to occur. The Committee believes that a more specific coordinated effort is required and therefore recommends:

Recommendation 9:

That Human Resources and Skills Development Canada work with Aboriginal groups and each territorial government to assess the impact of their Aboriginal skills training programs to ensure that they are leading to improvements in the skills and employment prospects of Aboriginal peoples over time.

Recommendation 10:

That Human Resources and Skills Development Canada work directly with territorial governments and Aboriginal communities to co-develop a strategic plan for producing annual reports on the long-term performance of Aboriginal Skills and Employment Partnership and Aboriginal Skills and Employment Training Strategy, and report back to this Committee with their proposed strategic plan by October 2011.

6.4.2. Engagement by Aboriginal Students

An important barrier to improving educational outcomes in the North is a perceived lack of relevance by Aboriginal northerners for educational programs at the primary and secondary level. As well, family commitments present an additional challenge, as some are required to stay home rather than attend school. According to the 2006 Aboriginal Peoples Survey,[106] the most common reasons for not finishing primary or secondary education given by Inuit men were that they wanted to work (18%) or that they were bored (18%). The most commonly cited reason by Inuit women, on the other hand, was pregnancy or taking care of children (24%).

In cases where lack of engagement is due to perceived irrelevance of the formal educational system, witnesses explain that this disconnect has many root causes. One explanation is that formal education is based on a system imported from southern Canada. As such, the perspectives and needs of Aboriginal peoples, especially for the Inuit, are often not supported. As stated by Belinda Webb, of Inuit Tapiriit Kanatami:

The education system as it is currently is a southern-based education system. For instance, in biology you might be learning about giraffes or frogs or something like that. To an Inuit person living in the [N]orth, not only do you have to explain the giraffe and the biology of it, you actually have to explain what a giraffe is and where it comes from.[107]

To allow greater participation, therefore, there is a need to develop curricula that are relevant to students’ experiences, lives and communities in the North.

The concept of traditional teaching relates to the need for instruction in the language and culture of Aboriginal peoples. Many witnesses stated that one of the major gaps in the northern education system relates to a lack of education for Aboriginal peoples in their mother tongue throughout primary and secondary education, especially for the Inuit.

In testimony provided to the Committee, Thomas Berger (former Conciliator for the implementation of the Nunavut Land Claims Agreement) noted that, in Nunavut, children are educated in Inuktitut until about grade 4 or 5, depending on the community, after which they switch to English. Mr. Berger noted that this abrupt split in language of instruction has a profound impact on Inuit students in terms of their willingness and ability to learn and participate in the wage economy; a barrier that is not as significant for other Aboriginal northerners. As Mr. Berger explained:

They’ve had 30 years to consider how to integrate aboriginal people into the Mackenzie gas project. The same possibilities don't currently exist to integrate the Inuit people into projects that are already on the drawing board for Nunavut, and they won't exist unless we establish an appropriate system of education that equips them for the training they will need in the Arctic in the years to come.”[108]

Mr. Berger also stated that the lack of high school graduation for Inuit peoples poses a risk in terms of fulfilling the job requirements in the Government of Nunavut, as required through the 1993 Nunavut Land Claims Agreement.[109] To fulfill that commitment, Mr. Berger restated a recommendation included in his 2006 report to the Department of Indian Affairs and Northern Development (DIAND) on The Nunavut Project:[110]

My point is that [the federal government] agreed when [it] set up Nunavut that they would have 85% of the jobs in their own government. That was a promise made in 1993. Everybody wanted to fulfill it. We didn't realize what would be needed: a new bilingual system of education. They have their own government, and it has 3,200 or 3,300 employees. Only about half are Inuit, and they are by and large in the lower-paid categories. So to fulfill that promise, that’s what I thought we ought to do.[111]

A key issue raised to achieve full bilingualism from kindergarten to grade 12 in the Nunavut school system, as mentioned by Mr. Berger as well as other witnesses, relates to the need for increased training and recruitment of Inuit peoples as teachers. As Mr. Berger stated:

We’d have to train more teachers, mainly Inuit teachers... because 75% of the people of Nunavut still speak Inuktitut as their first language. These kids ought to have the opportunity to become literate in the language that is spoken in their homes and is the aboriginal language in Canada that is spoken by the largest body of aboriginal people. It's not going to go away.[112]

The Committee agrees with the views of Mr. Berger that a system of bilingual education be adopted in Nunavut, not only to fulfill a longstanding federal commitment of a representative workforce in the Government of Nunavut, but also to ensure that Inuit peoples be afforded the ability to retain their traditional language as a means to improve graduation rates, and to facilitate their participation in the labour force to respond to skills shortages and the needs of northern employers. As presented in Mr. Berger’s 2006 report on The Nunavut Project,[113] the costs of developing such a program are prohibitive such that support from the federal government is required. The Committee therefore recommends:

Recommendation 11:

That the Government of Canada help support the Government of Nunavut to establish a full system of bilingual education, in English and Inuktitut, to enable a more labour-ready population in Nunavut. Furthermore, the appropriate funding arrangements to achieve this goal should be established through consultation and agreement between the Government of Canada, the Government of Nunavut, as well as Nunavut Tunngavik Incorporated, as the organization representing land claim holders in Nunavut.

As noted earlier, another reason for lack of participation in youth education is due to family commitments. In relation to this issue, Tim Zehr, of Nunasi Corporation stated:

Many young, single females are having children at a very young age, and the barriers because of lack of day care means that the young women can’t finish their education or think about a full-time job.[114]

Belinda Webb, of Inuit Tapiriit Kanatami, also pointed out that “[o]ne of the problems we tend to have in the [N]orth is the wait list [for early childhood programs] in a lot of the regions.”[115]

These witnesses, as well as many others, suggested that, to increase the participation of young Aboriginal women with families, the federal government should increase its support for early learning and childcare and early childhood development programs. This approach would have multiple benefits for northern families, as not only would the increased availability of these programs allow more Aboriginal adults to participate in the wage economy, it would also better prepare Aboriginal children in their adjustment to formal education and social interaction in the years that would follow. The Committee concurs with the witnesses and therefore recommends:

Recommendation 12:

That the Government of Canada discuss increases in its long-term funding with territorial and Aboriginal governments in support of their early learning and early childhood development programs, to significantly reduce or eliminate waiting lists and facilitate the full participation of northern families in education, skills training and the wage economy.

Several witnesses also referred to the importance of incorporating culturally-appropriate education and training techniques to support engagement and retention in the primary and secondary education system, as well as to connect Aboriginal northerners with traditional activities. For example, Dan Curtis, of Skills Canada Yukon—a not-for-profit organization that works with employers, educators, labour groups and governments to promote skilled trades and technology careers among Canadian youth—mentioned that programs that are established in the North need to be based on a community consultative approach, to see what the residents need in order to make the program sustainable. He went on to state that his organization specifically gears programs to Aboriginal youth by combining a cultural component with the technical training:

The cultural component is something that we have found really gets a lot of youth engaged and interested in staying with their education, and hopefully getting into more of a formative education when they're finished. They at least have a bit of a perspective of what it is they're getting into.[116]

In addition to connecting Aboriginal youth to formal, southern-based educational programs, various witnesses spoke of the benefits for northerners for pursuing various strategies to re-connect Aboriginal peoples to the traditional, land-based economy. For example, Charles Pokiak, of the Tuktoyaktuk Hunters and Trappers Committee mentioned that their organization developed a program, funded in collaboration with the NWT Department of Environment and Natural Resources, called Take a Kid Trapping. Mr. Pokiak described how this program has worked successfully in re-connecting both community elders as well as youth to traditional hunting practices. Mr. Pokiak described how, through this program, elders take between five to ten kids for a week or two into the wilderness to demonstrate how trapping is done:

It works successfully. They got a few caribou, even though our caribou numbers are down. They're allowed to take two or three, just to show [kids] how to work on a whole caribou and take everything from the caribou without wasting. That helped in the past.[117]

Doug Ritchie, of Alternatives North referenced this program in his presentation before the Committee. He agreed with the value of these types of programs, stating that:

[I]t was really skill transfer. They were able to promote that economy, and I would say we cannot forget about the fur economy. We have to make sure there are supports for people who are wishing to work in that area, whether it is some assistance in terms of accessing equipment, for example, or even help to defray a little bit of the cost of starting out.[118]

Another strategy to connect Aboriginal northerners with skills training and work in the northern economy, especially Aboriginal youth at risk, can be observed through the Sundog Carvers program in Whitehorse, Yukon. As explained by Andrew Finton:

With the focus on artistic ability, students who have not excelled in high school or who have failed to graduate can excel in the Sundog Carvers program. Finton states that several Sundog Carvers cannot read or write but are making a good living off their artwork.[119]

As evidenced by recent success stories related to this program, and recent additional funding commitments by the federal government, along with territorial governments and Aboriginal organizations,[120] the Committee believes that such initiatives should continue to be supported and expanded, as they provide a constructive focus for disadvantaged northerners, with the added benefit of promoting northern tourism; a key focus of the federal government in relation to economic development. Therefore, the Committee recommends:

Recommendation 13:

That the Government of Canada make it a priority to continue to work with territorial and Aboriginal governments and community organizations to develop and enhance essential programs supporting the economically vital traditional activities of Aboriginal peoples and other northerners, such as for hunting, trapping, fishing and gathering, as well as traditional arts such as carving and sculpting.

In terms of linking Aboriginal northerners with sector-specific training in large corporations linked with the natural resource sector, many such businesses believe that what is required is the creation of a sense of value to pursuing formal education. For example, Lawrence Connell, of Agnico-Eagle Mines Limited, stated the following:

We have a cycle now of many generations of dependency, and I really believe we have to do something at the adult level, which will in turn then provide a value to the education. That value has to be passed on, and students have to then see why they're going and see a career path. Right now I don't think they see a way forward, so they're not motivated to go anywhere.[121]

The Committee believes that such efforts as school-to-work transitions would be a welcome addition to the various strategies applied to aid in ensuring northerners connect with northern job opportunities. Therefore, the Committee recommends:

Recommendation 14:

That the Government of Canada continue to work with territorial governments and Aboriginal organizations to fund aboriginal student-training programs, through partnership with specific companies or industry sectors, and consider, along with the territorial governments an initial subsidy for training and wages conditional on trainee performance.

An alternative strategy to linking Aboriginal students with sector-specific training was proposed by the Whitehorse Chamber of Commerce. Many northern businesses believe that the federal government should further support welfare-to-work programs in the North, especially for workers in seasonal industries. As Rick Karp explained:

We at the chamber have said all along that we feel that we could solve our labour market problems right here through EI if there were proper incentive programming, through social assistance, and through First Nations training and development… We have several that we're experimenting with right now where a social assistance client would be partnered with a business... they work, they gain a bank, and then when they're ready—whether it’s six months or a year—they start phasing out of social assistance and they stay in the workforce.[122]

Although the Committee recognizes that the Government of Canada, through its Labour Market Development Agreements reached with each province and territory, has devolved responsibility for Employment Insurance labour market programming, as the problem of skills shortages for Aboriginal northerners is particularly acute, the Committee believes that these types of welfare-to-work strategies should be encouraged and supported by the Government of Canada. The Committee therefore recommends:

Recommendation 15:

That the Government of Canada, to reduce dependence on social assistance, continue to work with territorial and Aboriginal governments to offer conditional training allowances, especially in seasonal industries, that emphasize transition to long-term employment, and the connection between income and education.

6.4.3. Facilitating access to post-secondary education and training

Another strategy proposed by employers to enable northern workforce development is through facilitating access to post-secondary education, either directly within local communities or through distance learning. Currently, the lack of skilled workers in the North is influenced largely by the lack of access to higher education. Many businesses are forced to import skilled workers from the South in order to cover the skills shortages in northern communities, despite their recognition that these practices are short-sighted. For example, Peter Mackey, of Qulliq Energy Corporation, stated that:

Southern hires are typically transient in nature and are there for a short time and then move on… When they leave, they take the knowledge they have with them and leave that void, which you have to fill. Once again, you're filling that from the south.[123]

Mr. Mackey proposes that one way to address this shortage is through the development of trade schools in communities that are in close proximity to development projects. For example, the recent development of a trade school in Rankin Inlet, in Nunavut, holds the promise of producing people with the necessary expertise. Another strategy applied by Qulliq Energy is that of an apprenticeship boot camp, in which Qulliq Energy:

[B]rought in 50 northern people and ran them through a two- to three-week training period. We took the top 18 candidates, and we’ve made them full apprentices within Nunavut.[124]

The advantage of setting up post-secondary education institutions within local northern communities has many benefits, although ensuring sufficient access to key northern communities is often challenging without access to sufficient financing. As Mr. Mackey explained:

Because of the Inuit culture and being away from family, unless this is someone who comes to a community to work where their family is already there and they have a connection, typically a lot of them end up going back home and dropping out of the [employer-sponsored training] program.[125]

Currently, there are several post-secondary education programs offered by the three northern colleges—Yukon College (Yukon), Aurora College (NWT), and Arctic College (Nunavut)—in partnership with southern-based universities. According to submissions provided by these colleges, through on-going funding commitments by the territorial governments, programs offered by these colleges focus mainly on education, nursing, and social work. Through term funding arrangements, partial studies are occasionally offered in other fields such as business, science, public administration and law.

In addition to the standard educational programs offered by the three colleges, additional programs have been more recently added through a virtual University of the Arctic (UArctic). As stated by Arctic College in its testimony to the Committee, however, federal government funding, though appreciated, is currently limited in terms of level and duration.

Daniel Vandermeulen, of Nunavut Arctic College, believes that university capacity in the North can be increased if the federal government endorses and funds the Jago report on the University of the Arctic in Canada. Vandermeulen stated:

The Jago report was commissioned by INAC to investigate sustainable university capacity in the North and how to fund it. Their recommendation was $2.5 million a year for five years, to give us predictability, and also some matching dollars.[126]

As well, Mr. Vandermeulen provided a strong rationale for the enhancement of university-level programs, pointing to increased levels of secondary school graduation over time by northerners, and increased interest in higher education. In particular, he provided evidence that demand for university education in the North is far above available supply:

In a community such as Arviat, where we only have enough funding for one adult educator and can probably handle at most 20 students a year, we often have 100 to 150 applications. Sir, we're not short of applicants. We're short of funding, particularly in terms of preparing Nunavummiuts to have some equivalency of high school completion before they go on to their careers or professional training at the campuses.[127]

The need for a physical University of the Arctic across Canada’s North is also espoused by other witnesses before the Committee. For example, in relation to the creation of a University of the Arctic in the Canada’s North, Dr. Robert Page, of the National Round Table on the Environment and the Economy stated that it must be integrated with southern universities:

This is tremendously important, because we have to bring the resources and some of the knowledge of the south to the [N]orth, and that integration is an important part of it.[128]

The Committee agrees with witnesses that the further development of a University of the Arctic would be of genuine benefit to economic development in terms of increasing educational and knowledge capacity in Canada’s North. Therefore, the Committee recommends:

Recommendation 16:

That the Government of Canada enhance its work with all three territorial governments, in concert with the three northern colleges, UArctic, and other relevant northern training institutions, to consider and develop options for increasing educational and knowledge capacity in the North.

6.4.4. Training for business start-ups

Several witnesses described to the Committee how many northern entrepreneurs, who tend to not have formal education at the post-secondary level, lack understanding of the appropriate methods and procedures on how to start a business. This is especially true of persons starting up small, local or Aboriginal businesses. Beyond general information available through various Government of Canada websites (e.g. Aboriginal Business Canada), witnesses think that a more direct, coordinated approach is required.

In particular, witnesses believe that many of the informational products that work in general terms across Canada do not sufficiently address northern realities, such that this information is essentially not being used by northerners. To enhance the effectiveness of Government of Canada training programs and informational material, witnesses suggested partnerships among federal-territorial governments and northern communities.

For example, Colleen Dupuis, with Nunavut Tourism, proposed that specialized training material be developed by the Government of Canada for entrepreneurs working in sectors that are identified as priorities for national programs. In relation to training for business start-ups in the tourism sectors, Ms. Dupuis proposed that specialized guides on outfitter training, marine craft operation, and how to work with foreign tourists.

Given the need to increase the general knowledge of entrepreneurs in the North on how to start a business, and with the lack of formal education on this matter, the Committee recommends the following action:

Recommendation 17:

That the Government of Canada continue to work with territorial governments and northern Aboriginal communities to facilitate more targeted training programs and informational material for entrepreneurs on how to establish and maintain a business, particularly in those sectors designated as national priorities.

6.4.5. Effective communication practices

Some witnesses noted that the limited success of specific ideas, programs and initiatives is largely the result of poor communication among those involved. For instance, overlap among programs across orders of government and among community efforts often occurs since there is a lack of knowledge and understanding of existing government education and labour market programs for northerners.

For example, Aboriginal students need to be aware of the opportunities and programs that are available to them by governments, such as programs that allow them to gain work experience and earn wages while attending school, or provide them with funding opportunities such as scholarships, childcare assistance or living allowances. Meanwhile, businesses need to know whether partnership initiatives or program funds exist that encourage participation in Aboriginal apprenticeship or mentoring programs. Effective communication among these parties would serve to ensure the delivery of efficient and effective programs available to students for education and skills training in the North. The Committee concurs with witnesses and therefore recommends:

Recommendation 18:

That the Government of Canada enhance its work with territorial governments, educational institutions, and businesses to develop coordinated communication plans for educational and skills training programs and services available in the territories.