Selected Approaches to Enhance Access and Retention of Indigenous Learners in Post‐Secondary Education: Options for the BC Ministry of Advanced Education

Selected Approaches to Enhance Access and Retention of Indigenous Learners in Post‐Secondary Education: Options for the BC Ministry of Advanced Education Lesley Scowcroft, MPA Candidate School of Public Administration University of Victoria Winter 2015 Client: Deborah Hull Executive Director Teaching Universities, Institutes and Aboriginal Programs Branch BC Ministry of Advanced Education Supervisor: Thea Vakil Associate Professor and Associate Director Public Administration, Community Development, Dispute Resolution University of Victoria Executive Summary There continues to be a significant discrepancy between the number of Indigenous learners versus non‐Indigenous learners who enter and complete post‐secondary education (PSE) in British Columbia (BC). As higher education benefits Indigenous individuals and communities, ensuring access to and completion of PSE by Aboriginal learners will lead to benefits for Indigenous communities. Indigenous learners face several barriers to accessing and completing PSE, such as low secondary school completion rates, lack of financial resources, coping with differences between Indigenous cultures and the culture of PSE providers, lack of services, and consequences stemming from the legacy of the residential school system (R.A. Malatest and Associates Ltd., 2004; Usher, 2009). In 2012, the Teaching Universities, Institutes and Aboriginal Programs (TUIAP) branch released their most recent Aboriginal PSE policy framework, the Aboriginal Post‐Secondary Education and Training Policy Framework and Action Plan: 2020 Vision for the Future (BC Aboriginal Policy Framework and Action Plan) with the aim of enhancing access and retention of Indigenous learners in PSE. This report was undertaken for the TUIAP branch, which is located in the BC Ministry of Advanced Education (the Ministry), and addresses the following research questions: 1. How do Canadian provincial governments and other national and sub‐national governments abroad ensure public PSE providers are accessible to Indigenous learners? 2. How do these other governments ensure public PSE providers are supported to ensure Indigenous learners are successful in completing their post‐secondary studies? 3. How do other governments support Indigenous‐controlled PSE providers? The purpose of this report is to research and describe initiatives undertaken by other governments to inform the continuous development of the Ministry’s strategy. Literature Review The literature on Indigenous learners who undertake PSE is moving away from theories that focus on student deficits and towards post‐colonial or anti‐colonial theories that consider the presence of racism and the dominant culture’s position of power in society’s institutions, as well as theories that analyze Indigenous PSE from Indigenous perspectives. Lack of adequate financial resources that do not take into account the age and circumstances of Indigenous learners is one of the most significant barriers for Indigenous learners pursuing and completing PSE, along with the lower number of Indigenous learners graduating in their last year of secondary school. Barriers faced by Indigenous learners are rooted in past colonial policies of federal governments that used education as a tool of assimilation. Many Indigenous learners are first‐ generation learners who face distinct challenges and may not have role models who have completed PSE. Cultural differences between Indigenous communities and PSE providers, along with the lack of recognition of Indigenous knowledge, languages, ii and ways of knowing, may lead to feelings of isolation and the decision to leave PSE studies. Reports recommend enhancing funding available to Indigenous learners. In addition, initiatives undertaken by PSE providers should be institution‐wide and provide cultural, academic and social support for learners while enhancing awareness of Indigenous cultures for non‐Indigenous individuals. Studies further recommend that PSE providers embrace Indigenous knowledge and Indigenous perspectives and ways of knowing. Indigenous communities must play a significant role in providing culturally appropriate PSE for Indigenous learners. Indigenous‐ controlled PSE providers also need to have access to stable and long‐term funding. Methodology The report employed a qualitative research design and semi‐structured key informant interviews were used as the primary data collection method. A semi‐ structured interview design allowed the researcher to determine the questions beforehand, but also allowed the researcher to explore topics that arose during the interview. The purpose of the interviews was to obtain further information about Indigenous PSE policy frameworks and corresponding programs undertaken by Canadian provincial governments and particular national and sub‐national governments. Five interviews were conducted with public servants from Ontario, Alberta, Manitoba, New Zealand, and Australia. Jurisdictional Review and Discussion The jurisdictions reviewed in the report demonstrate how different governments address barriers faced by Indigenous learners with respect to participating in PSE. In Canadian jurisdictions, transitions from K‐12 to PSE and academic preparedness are important priorities in Ontario and Manitoba, respectively. Further initiatives aim to address financial barriers and providing opportunities for Indigenous learners to participate in PSE in remote communities. Relationships with Aboriginal communities and implementing initiatives that result from consultation were identified as important to ensuring initiatives are successful. Indigenous‐controlled PSE providers as a distinct group are not part of the legislative framework in Canadian jurisdictions. The New Zealand government has an over‐arching goal for Māori learners, which is to enable Māori to enjoy and achieve education success as Māori. This goal is reflected in several strategies across the education sector. Three Indigenous‐ controlled PSE providers called wānanga are recognized in the legislative framework and receive government funding. The New Zealand interview findings focused on how the New Zealand Qualifications Authority (NZQA) carries out its responsibilities with respect to ensuring Māori learners have the information needed to make choices that facilitate access to PSE. iii For example, the NZQA runs national workshops to provide information to learners and their caregivers about the secondary school graduation program and transitions to PSE. Success may be measured by the collaboration between education institutes and by how well education sector agencies work together. To ensure initiatives are successful, findings pointed to the collaborative approach taken to discuss solutions. Australia’s national focus is primarily in relation to Aboriginal and Torres Strait Islander learner outcomes in primary and secondary schooling. Key priorities related to PSE were increasing the number of Indigenous educators and individuals employed in the education sector and focusing on pathways to post‐school options. The Batchelor Institute of Indigenous Tertiary Education is a larger Indigenous‐ controlled PSE provider that is governed by statute and receives government funding. The Australia interview findings discussed government support provided to organizations that run programs for Indigenous learners that focus on retention and transitions into PSE or employment. Workforce planning is the primary action taken for enhancing Indigenous educators and staff in the education sector. Interview findings pointed to the importance of coordination across different levels of government and the private sector to ensure initiatives are successful. Research in the United States was focused on federal government funding provided to tribal colleges and universities (TCUs). The federal government primarily provides funding to TCUs through various pieces of legislation. Although TCUs are recognized in the legislative framework and receive government funding, these providers still face challenges securing adequate funding. Recommendations Four recommendations are proposed based on the analysis of the literature review, jurisdictional review, and interview findings undertaken for this report: 1. Develop an integrated strategy for Indigenous learners that spans from early childhood education through PSE. 2. Recognize Aboriginal‐controlled institutes in the PSE legislative framework and provide predictable funding. 3. Develop guidelines to enhance Indigenous Knowledge in PSE programming. 4. Investigate opportunities to partner with the private sector to enhance funding sources for Indigenous learners participating in PSE. Conclusion This report suggests that there are several considerations for developing initiatives that aim to enhance access and retention of Indigenous learners, such as consulting and involving Indigenous individuals and local communities, ensuring Indigenous voices are heard in PSE providers, ensuring Indigenous cultures are respected and recognized in education and learning frameworks, and linkages and collaboration across the education sector to facilitate transitions between secondary school and iv PSE. The report also suggests that recognizing Indigenous‐controlled PSE providers (such as Aboriginal‐controlled institutes in BC) in legislative frameworks helps these providers secure government funding and identifies the unique role played by these institutes in enhancing Indigenous learner access to and participation in PSE. BC’s Aboriginal Policy Framework

Load more