Fulfilling the Promise of First Nations Education 2nd Annual Canadian Teachers Federation President s Forum July 13, 2010 Edmonton, Alberta
Treaty Relationship And further, Her Majesty agrees to maintain schools for instruction in such reserves hereby made as to Her Government of Her Dominion of Canada may seem advisable whenever the Indians of the reserve shall desire it. Excerpt from Treaty #3, 1873
Sir John A. Macdonald, Prime Minister of Canada, 1887 The great aim of our legislation has been to do away with the tribal system and assimilate the Amerindian people in all respects with the other inhabitants of the Dominion as speedily as they are fit to change. Olive Patricia Dickason, adapted by Moira Jean Calder: A Concise History of Canada s First Nations, Oxford University Press, 2006, pp. 159
Emerging from the Residential School Era Until changes were made to the Indian Act in 1951, First Nations were denied the opportunity to attend post-secondary institutions. Residential schools were an abysmal failure in preparing First Nations for advanced education June 11, 2008 Apology by the Prime Minister of Canada
Indian Control of Indian Education 1972 Unless a child learns about the forces which shape him: the history of his people, their values and customs, their language, he will never really know himself or his potential as a human being. The federal government transferred schools, but not the systems supports required. 38 years later this policy has still not been fully implemented. Modernized FNCFNE to be brought forward for approval at July AFN AGA.
Many Successes Over 500 FN s schools Indigenous Institutes of Higher Learning FN s graduates from pse FN s educators FN s school authorities FN s curriculum, language instruction
Many Challenges Stagnating Secondary graduation rates transferred schools, not a system Federal-provincial-FN s relationships Poverty
Tons of Research and Reports (200+) Minister s Working Group on FN s Education 1993 RCAP, 1996 Joint Working Groups, FMM 2005 FN s and INAC Commissioned Reports
Flurry of Activity Shelved Following the report of the OAG 2004, commitment to work in partnership: - Funding Formula for FN s schools - Jurisdiction - Systems - PSE - Education Policy Framework and Education Management Framework - Aboriginal Education Roundtables - Kelowna
April 2000 Report of the Auditor General of Canada Although the Department has directly or indirectly funded all of these studies, their total cost is unknown. None of the study reports that came to our attention was accompanied by a departmental implementation plan that identified how and by whom the necessary remedial action would be taken, in what time frame and what it would cost Although we are concerned that costs have been incurred to produce studies that have been left dormant, we believe that the costs of remedial inaction are greater.
Auditor General of Canada (1988) that a legislative basis is required for INAC programs to ensure departmental accountability to Parliament. (2002) that First Nations are over-reporting, filing on average 168 reports a year, with limited use being made by government.
Current Status FN s schools funded under outdated 1987 funding formula Subject to arbitrary 2% cap since 1996 Limited support for FN s languages No consistent support for FN s systems PSE capped since 1996 Lack of support FN s post-secondary institutions Significant capital needs Main policy directive is provincial comparability
The Data 1996 Census found that approximately 60 percent of First Nations onreserve residents aged 20 to 24 had not completed high school or obtained an alternative diploma or certificate. The 2001 and 2006 Census shows the results are unchanged. From 1996 to 2006, mainstream 20- to 24-year-olds with less than high school graduation decreased from 19 percent to 14 percent. (Mendelson, 2008) Stagnating attainment rates coincide with federal funding caps. Despite lack of $ many FN s schools out-performing mainstream The evidence does not suggest that provincial comparability is the right measuring stick to achieve progress.
First Nations Student Success Program and Education Partnerships program Proposal driven - $268 million/5 years +$75 million ongoing (approx. 3% total INAC education budget) to strengthen relationships with provinces, increase data collection School success plans; student learning assessments; performance measurement To negotiate tripartite agreements which share expertise and provision of services including costs of provincial services and programs in FN s schools. Not yet addressed - need for culturally relevant assessment; outcomes for languages and cultures alongside literacy and numeracy.
Some Other Elements Missing "If we look at the trajectory of the federal government's education policy over time it seems that this current initiative [FNSSP and EPP] is very much inline with the government's position since 1973, which has been to formally accept and support "Indian control of Indian education" in theory, but to interpret "control" as primarily administrative. The new policy initiative is a continuation of this path and represents further moves to align the First Nations system more closely with the provincial system, in effect also off-loading more responsibility to the provinces "Nowhere in the government's discussion of the initiative is there mention of First Nations' jurisdiction over education or the relationship between education and self-government, and there is very little reference to the role of education in strengthening and supporting First Nations' languages, cultures and knowledge." pp. 115 - "Aboriginal Education Current Crisis and Future Alternatives" Edited by Jerry P. White, Julie Peters, Dan Beavon and Nicholas Spence.
Auditor General of Canada, 2000 and 2004 INAC needs to clarify roles and responsibilities in FN s education. INAC should obtain reliable and consistent information on the actual costs of delivering education services on reserves and compare the costs with those of providing comparable education services in the provinces. INAC should work with FN s to develop and implement a comprehensive strategy and action plan, with targets, to close the education gap. INAC should work with FN s to develop and apply appropriate performance and results indicators along with targets.
Council of Ministers of Education Canada Aboriginal Summit, February 2009 Strengthening Aboriginal Language and Culture Enhancing Equity in Funding Increasing Access, Retention, and Graduation (postsecondary education and adult learning) Sharing Responsibility and Accountability Planning for Transitions: Seamless Systems for Learners Reporting and Benchmarking Success: Data Providing Programs and Services Engaging All Partners in First Nations, Métis, and Inuit Education
Federal Commitment to Review PSSSP The federal government has announced they will take a new approach to PSSSP which will be coordinated with other federal student support programs. It may consider new administrative options; it may consider introducing loans or savings accounts in addition to existing grants or as a replacement.
INAC Internal Audits of Ele-Sec and PSE Programs 2009 Internal Audit is unable to provide assurance that the Program s management control framework is adequate and effective in ensuring the achievement of Program objectives, due to limitations in existing performance measures, the guidance and oversight provided by HQ, and weaknesses in the implementation of the Program at the regional level. Audit findings focus on INAC program mismanagement, not on FN s. Inadequacy of funding not addressed. 19
Success of the PSSSP 3,600 in 1977-78 to 27,500 in 1999-2000 22,000 in 2008-2009, a 20% decrease in the number of people supported
Waslander Report, 2009 Identifies that among 481,000 First Nations people, 25,000 have a university degree. Among 481,000 Canadians, 90,000 have a degree. This is a gap of 65,000 graduates which must be addressed.
Waslander Report, 2009 INAC s PSE program is needed to overcome significant financial barriers to participation in PSE, particularly on reserves Given current student eligibility guidelines and level of allowances, the budget for PSE program is insufficient to meet the funding needs of students currently enrolled Barriers to post-secondary education Low incomes Low education of parents of young people Distance from schools, especially universities Secure and adequate funding Control of the funds by First Nations Program funds subject to an arbitrary cap for over a decade TARGETS MUST BE SET IN THE PROGRAM TO CLOSE THE GAP!
Conclusions First Nation's education drastically under-funded The role of INAC in FN s education is unclear - policy and guidelines are ad hoc, outdated, and unaccountable to FN s Double-standard in treatment provided to FN s compared to treatment provided for provinces (funding; data demands; accountability frameworks) FN s focussed on quality education; INAC focussed on administering under-funding Must strengthen FN s infrastructure to address FN s education issues we ve waited 38 years for full implementation of ICIE!!! 23
AFN Education Position It is the position of the Assembly of First Nations that Education is a Treaty and Inherent Right of First Nations Indigenous peoples have the right to establish and control their educational systems and institutions providing education in their own languages, in a manner appropriate to their cultural methods of teaching and learning (Article 14 United Nations Declaration on the Rights of Indigenous Peoples) 24
National Chief - A Call To Action There are 5 components: 1. Reconciliation the federal government and provincial governments must reconcile our rights within education acts across the country. Canada s commitment to endorse the UN declaration creates the appropriate framework to advance this work. 2. First Nations education guarantee a secure fiscal framework is needed for funding for education something that is enjoyed by every segment of Canadian society except for First Nations. 3. Sustainability statutory funding arrangements based on real costs, indexation and appropriate treatment for northern and remote communities 4. Systems First Nation education must be supported through professional and accountable institutional supports delivering second and third level supports including First Nation curriculum and immersion in First Nation languages 5. Support and partnership creating a learning environment in our communities and linking with organizations, the public and private sector to invest in our schools and for our kids
Comparability and Treaty Obligations Canada must move beyond simply espousing comparable services and fulfill its Constitutional and treaty obligations to provide educational structures, services, and legal parameters equitable with provincial frameworks and commitment to student achievement. Only by meeting these commitments do First Nations children have a realistic opportunity of experiencing the same learning opportunities available within provincial systems of education Only then can First Nations people receive the educational commitments that were promised in the treaties. FIRST NATIONS EDUCATIONAL GOVERNANCE: A FRACTURED MIRROR Sheila Carr-Stewart, University of Saskatchewan, and Larry Steeves, University of Regina, December 10, 2009.