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COMPARATIVE ANALYSIS OF THE NORTH SASKATCHEWAN AND YUKON INDIGENOUS LABOUR MARKETS 2006 TO 2020 Policy North (North West Saskatchewan Policy Unit) Johnson Shoyama Graduate School of Public Policy University of Saskatchewan Kirk Hall Building, 117 Science Place Saskatoon, SK S7N 5C8 Canada
June 2020
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT)
TABLE OF CONTENTS
1. Introduction ...... 3 2. Datasets and logic ...... 5 3. indigenous labour market statistics, census 2006 and 2016 ...... 6 4. Educational attainment cross referenced to labour force ...... 11 4.1 Progress? Far North and Yukon Census Educational Attainment ...... 13 4.2 Literacy, Numeracy and Digital Capacity ...... 16 4.3 Education and Income Briefly Correlated ...... 18 5. Self-Employment and Entrepreneurship ...... 20 6. SEPH Data and Census Household Income ...... 21 7. EI beneficiairies data ...... 22 8. Other Factors for Future Research ...... 24 9. Lessons and Recommendations ...... 25 10. Statistical Bibliography ...... 28 2016 Census Based Report ...... 28 2006 Census Based Reports ...... 29 Other Reports ...... 29
www.schoolofpublicpolicy.sk.ca | i
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT)
First Minister’s round tables on the economy, 1. INTRODUCTION health, transportation, and even down to the national statistical council. The North is all too often seen as a homogenous region by southern Canadians and Figure 1: Comparing Two Circumpolar our Federal government, yet those of us living Communities, 2016 the northern reality we know that there are as CATEGORIES SASK, YUKON SASK. many different Norths each with different FAR socio-economic profiles and different needs and NORTH Population 2016 36850 35110 1070555 challenges. This short paper compares two of Population 2006 33919 30372 992314 these “Norths” Yukon and the Far North of Percentage Change 8.6% 15.6% 7.9% Median Age 2016 Saskatchewan. These two regions exist under 23.6 33 41 very different jurisdictional regimes, one a Aboriginal Pop. Aboriginal 32205 8195 175020 semi-autonomous Territory – Yukon, the other 2016 a provincial “far” north, with no regional Pop. Aboriginal 29085 7580 141890 government body representing its residents 2006 also known as Census District 18 (CD-18) or Far Percentage Change 10.7% 8.1% 23.3% 1 Percentage North. Both jurisdictions have similarities in 87.4% 23.3% 16.3% demography and geography, although Yukon is Aboriginal 2016 Percentage 85.7% 25.0% 14.3% some 200,000sq km larger than the Aboriginal 2006 Population First Saskatchewan’s Far North. They also have 25575 8195 114570 similar mining resource economies and are Nation, 2016 Population Métis, 6435 1015 57875 considered part of the Circumpolar North 2016 region. Both regions have severe winters and Population Non- 4650 26915 895535 limited business seasons for tourism and Aboriginal, 2016 Land area (square 270,068 474,711 651,900 mineral exploration (although more winter km.) exploration happens in Saskatchewan’s Far Median Household North). Both are distant from major Canadian Earnings 2015* $ 44,494 $78,112 $67,816 urban centres: Edmonton and Vancouver for Non-Aboriginal Median Household Yukon and, Winnipeg and Edmonton for Far Earning 2015* $19,771 $61,781 $53,967 North. And both have substantial Indigenous Aboriginal communities and economies (Figure 1). *Median after-tax income of households in 2015 ($) Sources: Census of Canada 2016, CD-18, and Yukon But there are also key and substantial For example, in 2017 the Federal government differences. Yukon is a Federal Territory acting employed 476 workers in the Territory while under the Yukon Act. It has a substantial public the Yukon government listed 3914 employees. service associated that includes Territorial and Local and municipal governments had 574 Federal employees at a scale and level of workers. Finally, Aboriginal or First Nation investment unseen in Far North Although small governments, most of them operating under in population, Yukon, like NWT and Nunavut, modern treaties, tallied 1614 employees. have a seat at the Premier’s conferences, at the
1 CD-18 is Census District 18 within the Statistics Canada the label Far North for effectively the same area within its nomenclature but is commonly called Northern economic development zone regional assessments. We Saskatchewan. While the Saskatchewan government uses use these terms interchangeably.
www.schoolofpublicpolicy.sk.ca | 3 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
According to the 2016 Census Far North in total Yukon’s road system connects all communities had, in total, 1520 public administration but Old Crow to the central service hub in positions, of which 1185 were occupied by Whitehorse. Aboriginal people. Those are 6578 high paying Yukon also had one of the fastest growing jobs in Yukon with security and benefits, or Canadians economies in the decade 2006 to 5393 more secure government pay cheques 2016. The GDP in 2012 dollars in 2016 GDP than in northern Saskatchewan. These Yukon reached $2,483 million, an increase of 43.4% government jobs provide a secure income for from the, 2006 GDP (2012 dollar) of $1,731 investment, retail purchases and taxes and million. (Statistics Canada and Executive Council stabilize the otherwise seasonal and cyclical Office of the Yukon). While requests have been northern economy. It raises a significant made to the Saskatchewan Bureau of Statistics question about why Saskatchewan’s Far North response on the GDP of Far North and other has such a comparatively small administrative quests have gone unanswered due to the Covid- presence. 19 shutdown. Statistics Canada data for 2018 Secondly, Far North lacks a major urban hub shows a per capita GDP for Yukon being higher within its region. In contrast, Yukon is home to than Saskatchewan at $75,002 compared to 2 the largest Canadian city north of 60ON. $69,373. Whitehorse acts is the territorial capital, and Both Yukon and Far North have fast growing the focal point for federal government populations. The Yukon saw a 15.6% increase activities, as well as an economic development over ten years in its population, while the Far hub for the mining sector, for energy North slightly outpaced the province at 8.6% management, for retail, and warehousing and versus 7.9% for the province. For the Far North transportation, especially the Whitehorse this is attributable to natural increase; for airport. In March 2019, the Whitehorse area Saskatchewan immigration is the key factor. had a population of 32,000 people. For Far North, the cities of Saskatoon, Prince Albert, The Yukon’s Aboriginal population is also much and Battleford, all external to the Far North older than most northern Indigenous labour market, control the northern resource communities, with a mature median age of 33. hinterland, while political administration is ASs expected the comparative number for again external being in Regina and, for First Indigenous Far North is a decade younger at Nations reserves, Ottawa. Yukon has 23.6, while the province has a median age of 41. centralized its economy around Whitehorse, yet Finally, a few core differences between the still suffers extensive outflow of capital to Indigenous experiences in Far North and Vancouver, Edmonton, Toronto, and other Yukon need to be commented upon. Far points in the south. I Saskatchewan, few of the North is a majority Indigenous region with investment decisions that impact the Far North 87.4% of the population declaring as First are made with input from the dispersed Nation or Metis, while the Yukon has communities of Far North. They are dispersed around a 23.3% Indigenous population and on separate trunk roads coming out of Prince dropping. Yukon’s Indigenous community Albert, Saskatoon, and Battleford, with many includes eleven (11) self-governing First Far Northern communities lacking road access. Nations, which adds a substantial number
2 This can be updated when SBS returns to work assuming they can generate the number.
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT) of First Nation government jobs and higher the increase in the number of Aboriginal paying salaries for their employment people. Increasingly, Saskatchewan’s future numbers as we will see below. These workforce will depend on either educating and mostly self-governing First Nations have a training its Indigenous people, or on strong land and resources base and self- immigration and foreign workers. The choice government budget dollars, as well as should be obvious: educate and train locally. substantial settlement funds that are The ramifications of not doing so, which would invested in trust funds. In the Far North, continue the current pattern, are highly many First Nation people reside on problematic. “reserves” a constant reminder of a colonial regime; worse, they exist in a perpetual anxiety in communities that are 2. DATASETS AND LOGIC just not economic places. As Robert Bone This research exercise uses publicly notes available Statistics Canada date bases, The lack of an economic foundation including the Census of Canada, specifically had proven to be the Achilles heel of the Aboriginal profiles for Yukon 2006 and the relocation ‘strategy” (read 2016 and the Far North of Saskatchewan Reserves). Under normal Far North in this case, 2006 and 2016. The circumstances, urban places that lose Survey of Household Spending (2017), their economic function soon die, Survey Employment and Payroll Hours whether they are single-industry towns (February 2020) and, where possible the or rural communities. Native settlement Labour Force Survey are utilized. Finally, a does not follow this pattern of urban ten-year run from the Employment evolution because they generally have Insurance file for Far North versus Yukon is been located within cultural homelands used as a proxy for change in employment and close to traditional hunting lands.3 in the region through to April 2020.
(Bone, 2003: 187) The Census provides a range of labour force statistics including employment by Another major gap exists between North American Industrial Classification Aboriginal household earnings and the non- (NAIC), which is used in Canada, USA, and Aboriginal incomes in Saskatchewan, with a Mexico, and so is highly comparative. The 63.4% gap between the two levels of study also looks at the links between labour earnings. Non-Aboriginal Saskatchewan and education as well as a full break-out of households earn 2.72 times that of LFS comparable data using the slightly Aboriginal households in Far North. different “period worked” definition in the Finally, the growth in Saskatchewan’s Census. Added to this are the labour population is strongly supported by the increase descriptors for average weeks worked and in the number of Aboriginal citizens of the full-time and part-time employment. province, with 42.3% or 33,130 of the 78,241 Educational attainment is a common increase in the population being attributable to means of interpreting a labour force’s
3 Robert M. Bone (2003), The Geography of the Canadian North: Issues and Challenges, Toronto: Oxford University Press. pp: 186-187.
www.schoolofpublicpolicy.sk.ca | 5 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
readiness for work and capacity. In an age both groups struggle to find work, entering the of computers where numeral and labour force is the biggest difference between computer literacy are as important today them. Yukon Aboriginals have a high as literacy was fifty years ago, the Far participation rate, 70%. Which is higher than North Aboriginal population is at a major the national average of 65%. On the other hand, disadvantage, one that given the speed of Far North Aboriginals have a participation rate technological change and transition may be of only 44.2%, a significant and alarming impossible to resolve for the current difference. The majority of Far North’s generation of workers. For this Aboriginals are neither working nor, more information we turn to PIAAC and OECD importantly, looking for work. They have studies undertaken with Statistics Canada become discouraged workers, effectively an participation.4 increasingly disenfranchised population. They are in the majority in Far North with 11855 Not in the Labour Force (NILF) and a Participation 3. INDIGENOUS LABOUR MARKET Rate of less than 50%. The numbers for STATISTICS, CENSUS 2006 AND 2016 Aboriginal Saskatchewan being somewhat better. Not captured here by the western or The labour statistics displayed in Figure 2 (next settler society systems of data capture is the page) indicate a strong divide between the role of traditional lifestyle. Being on the land, Aboriginal and non-Aboriginal populations for hunting, fishing, and harvesting as part of the all three jurisdictions. The statistics show non- way of life which helps feed families. Statistics Aboriginals have a much stronger labour Canada would record these workers as not market. Far North and the Yukon have strong looking for employment while being economic divides between their Aboriginal and unemployed. This extends to the employment non-Aboriginal populations, as does rate, showing less than a third of those able to Saskatchewan as a province. This can easily be work are at only 29.9%. Both these phenomena summed up by looking at labour statistics for can be linked to Far North’s population being both regions. The most significant indicator is majority Indigenous, making up almost 84% of the high unemployment rate seen in both Far the total population. The majority living On- North and Yukon Aboriginals: 29.9 and 22.3%, Reserve a topic addressed later in this report respectively, the non-Aboriginal populations see under non-economic places. a sharp decline, recording unemployment rates of 4.6 (Far North) and 5.9 (Yukon). It is evident from these statistics that Aboriginal people find it difficult to find employed.
Far North and the Yukon’s Aboriginal populations differ in two important statistics: participation and employment rates. Though
4 Programme for the International Assessment of Adult at work and in the wider community. This international Competencies (PIAAC) is a programme of assessment and survey is conducted in over 40 countries/economies and analysis of adult skills. The major survey conducted as part measures the key cognitive and workplace skills needed for of PIAAC is the Survey of Adult Skills. The Survey measures individuals to participate in society and for economies to adults’ proficiency in key information-processing skills prosper. This includes the Canadian Territories and the - literacy, numeracy and problem solving - and gathers breakout of Aboriginal populations. information and data on how adults use their skills at home,
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Figure 2: Comparing Labour Statistics Saskatchewan Far North with Yukon and Saskatchewan, 2016
FAR NORTH SASKATCHEWAN YUKON Aboriginal Non- Aboriginal Non- Aboriginal Non- Aboriginal Aboriginal Aboriginal Aged 15 and older 21240 4050 117325 739970 6280 22595 Labour Force 9390 2965 66815 518720 4395 17405 Employed 6590 2830 54380 489710 3415 16375 Unemployed 2805 135 12430 29010 980 1030 Not in Labour Force- 11855 1085 50510 221245 1890 5195 NILF Employment rate (%) 31 69.9 46.3 66.2 54.4 72.5 Unemployment rate 29.9 4.6 18.6 5.6 22.3 5.9 (%) Participation rate (%) 44.2 73.2 56.9 70.1 70 77 Average weeks 37.1 43.4 39.3 43 37.5 41.9 worked total Sources: Census of Canada, 2016, Saskatchewan, Saskatchewan Division 18, and Yukon, see bibliography
One source excellent source of information for On-the-Land data is the NWT Bureau of Statistics Community survey program. An example of their work is shown here from the South Slave lake region close to the Saskatchewan border.5 No comparable survey exists in the provincial northern regions.
Consuming country foods is important to Inuvialuit identity, and the culmination of a series of cooperative activities—harvesting, processing, distributing, and preparing—that require behaving in ways that emphasize Inuvialuit values of cooperation, sharing and generosity. (Inuvialuit Regional Corporation, 2007)
In addition to community and cultural benefits, country foods are healthy, rich in essential nutrients and low in sugars and unhealthy fats. (Makivik Corporation, 2000)
Figure 2b: Comparing Labour Statistics Saskatchewan CD-18, with Yukon and Saskatchewan, 2016
90 77 80 69.9 73.2 70.1 70 72.5 66.2 70 56.9 60 54.4 46.3 50 44.2 40 31 29.9 22.3 30 18.6 20 10 4.6 5.6 5.9 0 Aboriginal Non-Abo. Aboriginal Non-Abo. Aboriginal Non-Abo. CD-18 Saskatchewan Yukon
Employment rate (%) Unemployment rate (%) Participation rate (%)
5 See: https://www.statsnwt.ca/community-data/
www.schoolofpublicpolicy.sk.ca | 7 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
Figure 2b provides a graphic representation of Aboriginals by part and full-time. This will show the data in Figure 2. Here the difference us an in-depth view of these populations’ work between Aboriginal Saskatchewan and Yukon structures. For annual full-time weeks worked, unemployment rates (UR) makes it appear that there is a sharp difference between Aboriginal Yukon has a higher Aboriginal UR. The study and non-Aboriginal populations, as expected must also account for the difference between (Figure 3). One can see that non-Aboriginals the two jurisdictions’ participation rates with a work 49-52 weeks, or between 6 (Yukon) and higher percentage of Yukon Aboriginal workers 14 (Far North) percentage points more than being both employed and participating in the Aboriginals. The difference is shifted to the 1- economy. 26-week periods. This could be connected to traditional Indigenous jobs being seasonal, with There is, however, a positive sign in the analysis hunting being an example. In both the Yukon of the average weeks worked. The difference and Far North, twice as many members of the between Aboriginal and non-Aboriginal is only Aboriginal population work full-time between 1 11%. This shows that once Aboriginals enter the and 26 weeks as do their non-Aboriginal labour force they work almost as frequently as counterparts. This could also be connected to non-Aboriginals. The main struggle for Aboriginal employment being task oriented, Aboriginal populations looks to be access to the community-based jobs, and not standard labour market. This leads to breaking down the positions in an organization. weeks worked by Aboriginal and non-
Figure 3: CD-18, Yukon Weeks Worked Full-Time Annually—Aboriginal, Non-Aboriginal Comparison
70.0%
60.0%
50.0%
40.0%
30.0%
20.0%
10.0%
0.0% 1 to 13 weeks 14 to 26 weeks 27 to 39 weeks 40 to 48 weeks 49 to 52 weeks
Yukon Aboriginal CD-18 Aboriginal Yukon Non-Aboriginal CD-18Non-Aboriginal
This poses challenges for those Aboriginal Seasonal employment is common, while both communities that are not receiving income regions contribute workers to the Alberta oil & throughout the whole year, with almost a third gas industries. Though these jobs are well paid, of the people in both regions earning income they are hazardous and risky, and are normally during less than half the year. This trend could fly-in/fly-outs positions requiring between two be connected to the natural resources and three weeks onsite with a week off in industries. Mining and mineral exploration are between. This adds more challenges to these two of the largest industries in both regions.
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT) communities.6 Additionally, these jobs tend to contrast between Far North Aboriginals and keep their employees in camps for up to two to Yukon Aboriginals. A divide between part-time three weeks at a time, away from their weeks worked by Yukon and Far North communities. Aboriginals is visible. Unlike full-time work, which saw a much closer relationship, part-time Part-time work is much more evenly distributed work sees Yukon Aboriginals working almost compared to full-time work (Figure 4). This identically to their non-Aboriginal counterparts. makes sense, as part-time work is more flexible, As was shown earlier, Aboriginals have difficulty allowing a more diverse group of people to entering the work force, but what is clear here enter the labour force: mothers, students, and is the difference between employment types the elderly. What is interesting is the now sharp once they have entered.
Figure 4: CD-18 and Yukon Weeks Worked Part-Time Aboriginal, Non-Aboriginal Comparison
35.0%
30.0%
25.0%
20.0%
15.0%
10.0%
5.0%
0.0% 1 to 13 weeks 14 to 26 weeks 27 to 39 weeks 40 to 48 weeks 49 to 52 weeks
Yukon Aboriginal CD-18 Aboriginal Yukon Non-Aboriginal CD-18 Non-Aboriginal
6 G.F. Finnegan and Jacobs, John (2015) “Canadian It should be noted that many Saskatchewan fly-in/fly-out interprovincial employees in the Canadian Arctic: a case workers drive long distances to reach job sites within and study in fly-in/fly-out employment metrics, 2004–2009,” out of the province as seen during the Covid-19 Pandemic, when the Far North was widely infected by one of more Polar Geography 38.3 (2015): 175-193. workers returning form the Alberta oilsands projects https://www.tandfonline.com/doi/abs/10.1080/1088937X. driving across the region infecting communities, 2015.1034795
www.schoolofpublicpolicy.sk.ca | 9 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
As shown, Far North Aboriginals are working fewer weeks of the Figure 5: Employment by Sector 2016, SASK. Far North Compared to year part-time, eleven percentage Yukon points more than Yukon’s between FAR NORTH YUKON 1-13 weeks. On the other hand, NAICS Industries Non- Non- Aboriginal Aboriginal Yukon Aboriginals are working Aboriginal Aboriginal more often, part-time (40-52 Total Industries 9390 2965 4390 17405 weeks). This could be linked to the Industry - Not Applicable 16.5% 0.7% 5.6% 0.9% Yukon economy having more 11 Agriculture, forestry, traditionally Western economic fishing, and hunting 2.4% 0.5% 1.5% 1.0% roles that are accessible to the 21 Mining, quarrying, and oil and gas extraction 8.8% 11.5% 3.5% 2.0% Indigenous population. Not least of which are government 22 Utilities 0.9% 0.3% 0.7% 0.7% positions, such as the some 1600 23 Construction 6.5% 6.6% 12.1% 8.8% in First Nation public 31-33 Manufacturing 1.1% 1.7% 1.4% 1.6% administration (see below). 41 Wholesale Trade 0.6% 1.7% 0.9% 1.6% As mentioned above, the reason 44-45 Retail Trade 8.0% 8.6% 6.7% 9.7% more Aboriginal people work full- 48-49 Transportation and warehousing 2.4% 7.4% 4.2% 5.1% time for fewer weeks of the year 51 Information and cultural than their non-Aboriginal industries 0.5% 1.2% 1.9% 2.6% counterparts may be due to 52 Finance and insurance 0.3% 2.4% 1.4% 1.4% traditional seasonal work. NAICS 53 Real estate and rental categorization helps prove this leasing 0.6% 0.8% 0.6% 1.0% narrative. Non-Aboriginals working 54 Professional, scientific, and in the “Not Applicable” industry technical services 1.1% 2.2% 4.0% 6.4% make up 0.7 and 0.9% of their 55 Management of companies & enterprises 0.0% 0.0% 0.0% 0.1% respective economies. Yet, the 56 Administrative and percentage of the Far North support, waste management Aboriginal population working in and remediation services 2.7% 2.2% 2.8% 2.5% this “not applicable” industry is 61 Education services 14.5% 17.9% 6.2% 7.8% 16.5%, the largest single category. 62 Health care and social In the Yukon, it is less at 5.6%, but services 13.3% 14.0% 9.8% 9.4% still significantly higher than for 71 Arts, entertainment, and Yukon’s non-Aboriginal recreation 0.7% 0.8% 2.4% 2.8% 72 Accommodation and food population. services 4.9% 4.4% 6.0% 7.4% The difference between the 81 Other services 1.4% 3.7% 2.2% 3.9% economies of Far North and the 91 Public administration 12.6% 11.3% 26.4% 23.3% Yukon could be a reason for the Sources: Census of Canada 2016, Saskatchewan Division 18, and Yukon sharp contrast between Far North and Yukon Aboriginals working would be required to develop this line of part-time. It is hard to decipher, as the NAICS inquiry. data does not break down industries by part and full-time employment. Further research
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As previously mentioned, the reason more Non-Aboriginal workers in Far North were also Aboriginal people work full-time for fewer at around the same rate of employment in weeks of the year than their non-Aboriginal mining and construction at 18.1%, while, in the counterparts may be due to traditional seasonal expanded public services sector, they work. NAICS categorization helps prove this accounted for a full 42.2% of positions held by narrative. Non-Aboriginals working in the “Not non-Aboriginal workers. Retail trade, which is Applicable” industry make up 0.7% and 0.9% of often an entry point for employment, their respective economies. Yet, the percentage represents roughly an equal percentage of each of the Far North Aboriginal population working groups’ labour force, although Yukon’s is in this “not applicable” industry is 16.5%, the slightly lower. This may be attributed to the largest industrial sector grouping for Aboriginal small number of retail stores in rural Yukon. workers. In the Yukon it is far lower, at 5.6%, for While there are no other significant undefined or Not Applicable Aboriginal workers employment groupings, it is apparent that the but still significantly higher than the Yukon’s Aboriginal population is underrepresented in non-Aboriginal population. the Transportation sector at only 2.4 in Far The largest difference by category behind North. In Yukon, they are 4.2% and non- Aboriginal/non-Aboriginal labour differences is Aboriginal workers in the sector are almost in the “Not Applicable” (Figure 5). Traditional three times greater at 7.4%. Indigenous practices may be an aspect in this It is clear though, the Far North economy is not difference whereby community members are allowing many individuals to enter the western active culturally and economically on the land. labour market, either through traditional or But we must also recognize that many residents Western employment. What may be holding in what are essentially “non-economic places” back the Aboriginal population of the Yukon and are active in the grey or underground economy, Far North from improving their labour statistics from having multiple roles doing odd jobs and catching up to their non-Aboriginal through to trading and bartering for goods and counterparts? Looking at education is a good services, to working off the books. Subsistence window to understand why Aboriginals are and employment are all too often a day-to-day struggling to enter the labour force. exercise.
Other significant differences in employment relate to Educational service which represented 4. EDUCATIONAL ATTAINMENT CROSS a higher percentage of Far North workers than REFERENCED TO LABOUR FORCE those in Yukon and the highest percentage of Aboriginal workers in any specified category at Both human capital and correspondence 14.5%, which was followed by Health care theories imply that an effective anti-poverty workers and public administration. These three strategy should incorporate the enhancement categories which all fall under the public of education and skills among households as services rubric accounted for 40.4% of all there seems to be significant linkages between workers. These are jobs that are more poverty and lower educational attainment. In commonly associated with female workers. remote communities, this relationship may More male-dominated industrial categories actually be exacerbated by success. This means such as construction and mining and oil and gas that to improve the educational attainment of accounted for 15.3% of Aboriginal employment. the community, it is necessary for the people in that community to travel out to major urban
www.schoolofpublicpolicy.sk.ca | 11 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
centres to access higher education. In so doing What is equally disconcerting is the drop in the they leave their community, often for good, percentage of Aboriginal students attaining resulting in a declining local skill pool in human degrees and or certificates the trades between capacity. 2006 and 2016. The percentage dropped from 9.8% to 5.4% over the decade. In 2006, 8,910 A high percentage of the Aboriginal Aboriginal people were listed as having an Saskatchewan’s population continued to have “Apprenticeship or trades certificate or very limited formal education, with 38.9% diploma” but, by 2016, this number had failing to graduate having “no certificate, dropped to only 6280 potential workers while diploma or degree”. This compares poorly with the Aboriginal population increased by 28.5% the non-Aboriginal population that reported (Figure 6). It is often assumed that the trades only 17.8% failing to acquire a school certificate. are a sector of the economy which requires However, we can see an improvement in the more workers and where Indigenous workers educational attainment of Aboriginal people have a more ready entry through training over time for 2006, when a full 49.4% had no programs and corporate partnerships. certificate of any kind. What has happened here?
Figure 6: Educational Attainment Aboriginal Compared with non-Aboriginal, Sask., Census 2016
NON- SIMPLIFIED EDUCATIONAL CATEGORIES ABORIGINAL AS A % AS A % ABORIGINAL Total - Highest certificate, diploma or degree for the population aged 15 years and over in private households - 117325 739970 25% sample data No certificate, diploma, or degree 45655 38.9% 131555 17.8% Secondary (high) school diploma or equivalency certificate 33065 28.2% 228145 30.8% Apprenticeship or trades certificate or diploma 6280 5.4% 31765 4.3% College, CEGEP or other non-university certificate or 15900 13.6% 130870 17.7% diploma University certificate or diploma below bachelor level 2495 2.1% 25695 3.5% University certificate, diploma, or degree at bachelor level 8945 7.6% 145530 19.7% or above Statistics Canada. 2018. Aboriginal Population Profile. 2016 Census.
One explanation may be the porous borders of region in 2006 are still working in the region but Far North. The likely scenario would be that have relocated themselves and their families to locally hired skilled labour active in the region in southern cities. This has certainly been the case 2006 are still working in the region but have in many northern villages where local hires relocated themselves and their families to become fly-in worker, based in southern cities, southern cities. This has certainly been the case overtime. in many northern villages where local hires Saskatchewan Aboriginal educational become fly-in worker, based in southern cities, attainment is drastically below the provincial overtime. One explanation may be the porous average and is a negative indicator of borders of Far North. The likely scenario would community capacity and resilience in a world be that locally hired skilled labour active in the that is increasing driven by the knowledge
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT) economy. (Figures 6 and 7). Saskatchewan population 15+ acquiring a university degree or Aboriginal educational attainment is drastically higher, having barley moved in a decade from below the provincial average and is a negative the 3.2% of 2006. indicator of community capacity and resilience Figure 8: Far North 2016 Aboriginal and Non-Abo in a world that is increasing driven by the Saskatchewan knowledge economy. 2016 non- 4.1 Progress? Far North and Yukon Census 2016 Aboriginal Aboriginal Educational Attainment Category Number As a % Number As a % Using the 2006 and 2016 Census reports for Far Total North and Yukon, this section tracks the change Aboriginal identity over time in educational attainment within the 21245 4055 region compared to Yukon for Aboriginal population 15 years and people. One uncontrolled factor here is over mobility. The best and brightest move south, No east, or west to gain educational credentials or certificate; 12210 57.5% 655 16.2% specialized trades programs and diploma or apprenticeships. They are often absorbed by degree the demand for Indigenous employees by High school southern governments and industries looking to certificate or 4280 20.1% 920 22.7% diversify and tap into the Indigenous economy. equivalent Tracking these individuals would require a Apprenticesh ip or trades special data tabulation at considerable expense, 1575 7.4% 510 12.6% but it may be worthwhile looking to do. certificate or diploma Educational Attainment for 2006 and 2016 College; compared shows little progress is being made in CEGEP or other non- the general population. The number of 1950 9.2% 865 21.3% Indigenous people failing to acquire a high university certificate or school degree or any certification at all actually diploma increased from 12135 to 12210. Although this University is a slight improvement as a percentage, many certificate or of the older population, the Elders, will have diploma 345 1.6% 130 3.2% naturally left the working population (Figures 8 below the & 9). bachelor level The apprenticeships/trades sector of the labour University force has declined as a percentage of the labour certificate or 730 3.4% 980 24.2% force although it did increase from 1380 degree individuals to 1575. This sector is driven by male Sources: Census of Canada 2016, Saskatchewan employment and educational attainment with Division 18 1125 males compared to 435 females (rounding accounting for difference). University Again, the porous nature of the Northern attainment remains a challenge for the Saskatchewan region means that those most Indigenous North, with only 3.4% of the capable of acquiring educational certificates are
www.schoolofpublicpolicy.sk.ca | 13 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
also most capable of relocating to where the Figure 9: Yukon Aboriginal (ABO), 2016 & 2006 jobs are. Many of these jobs are not in the Change over a Decade north. HIGHEST Comparing Aboriginal educational attainment CERTIFICATE, ABO ABO ABO ABO DIPLOMA, OR 2016 AS % 2006 AS % against non-Aboriginal for 2016, does to some DEGREE extent control for geography and mobility. No certificate, Clearly, jobs and lifestyle have attracted and diploma, or 1955 31.1% 2280 41.3% degree retained non-Aboriginal settlers to the Far Secondary North. While only some 4055 in number, they (high) school represent a very different educational profile diploma or 1635 26.0% 1135 20.6% equivalency with 24.2% of the settler population having certificate attained university graduation some 980 in total Apprenticeship or trades compared to only 730 for the much larger 715 11.4% 645 11.7% Aboriginal population (greater by a factor of certificate or diploma five). In 2016, 70.6% of the Aboriginal College, CEGEP population 15+ had educational attainment of or other non- high school or less compared to 38.9% of the university 1350 21.5% 1050 19.0% certificate or settler community, while even in the trades the diploma settler society outpaced the Aboriginal by University certificate or 12.6% to 7.4%. Finally, under College degrees 125 2.0% 115 2.1% diploma below or certificates, that are commonly about job bachelor level training, 21.3% of settler residents had acquired University specialist training compared to only 9.2% of certificate, diploma, or 505 8.0% 295 5.3% Aboriginal residents. degree at bachelor level In Yukon, the Aboriginal community has a much or above lower percentage of its 15+ population failing to Total 6285 100.0% 5520 100.0% obtain at least a certificate diploma or degree at Population 31.1% compared to a staggering 57.5% in Sources: Census of Canada 2016 and 2006, Saskatchewan Division 18 northern Saskatchewan (Figure 10). Yukon’s Aboriginal community also scores higher on Finally, education and employment are strongly Trades’ certificates, on College degrees and on correlated in Northern Saskatchewan as seen in University completion rates, at 11.4%, 21.5% Figure 11which covers labour force activity and 8%, suggesting a better educated, and based on three educational attainment more adaptable workforce. They still lag behind categories: No High School, the settler society for educational Apprenticeships/Trades, and University accomplishments, with 30% of Yukon’s 15+ graduates. There is no breakout of Aboriginal, population having attained a Bachelor level non-Aboriginal here, but the Aboriginal degree or higher in 2016, meaning that over population is overrepresented in the “No High 50% of the population had College or University School” population and underrepresented in certificates, diplomas or degrees at 54.1% University graduates. Without belabouring the compared to 31.5% for Aboriginal Yukon and point, securing employment in the modern only 14.2% for Aboriginal Far North or the economy is becoming ever more dependent on Saskatchewan Far North (Figure 10). education. It is important though to also
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT) address the extremely high number of people with low educational attainment who are “Not in the Labour Force.” This means they neither working nor looking for work, many are probably not “work- ready”. This group is reflected in the dreadfully low participation rate of only 31%, less than half the rate of those with Trades certificates or diplomas and almost three times lower that the participate rate for university graduates. This is effectively a disenfranchised population, dependent individuals who are a strain on the community, forcing the small workforce to spread ever more thinly their earnings to support them. These are not children. They are the 15+ population and they are ill-educated and poorly prepared for the modern economy. This is the group which requires immediate support and attention to reduce poverty. But that is easier said than done. Some workers probably work in the shadow economy and many have become overly dependent upon welfare; others are suffering from mental health and addiction issues. The situation for roughly 69% of the Far North labour force is bleak and it is not helped by low rates of literacy, numeracy, and digital capacity.
Figure 10: Yukon Aboriginal and non-Aboriginal Educational Attainment Compared, 2016
HIGHEST CERTIFICATE, ABORIGINAL AS NON- ABORIGINAL NON-ABO AS % DIPLOMA, OR DEGREE % ABORIGINAL No certificate, diploma, or degree 1955 31.1% 2760 12.2% Secondary (high) school diploma 1635 26.0% 5195 23.0% or equivalency certificate Apprenticeship or trades 715 11.4% 2430 10.7% certificate or diploma College, CEGEP or other non- 1350 21.5% 4770 21.1% university certificate or diploma University certificate or diploma 125 2.0% 700 3.1% below bachelor level University certificate, diploma, or 505 8.0% 6750 29.9% degree at bachelor level or above Total Population 6285 100.0% 22605 100.0% Statistics Canada. 2018. Aboriginal Population Profile. 2016 Census. Statistics Canada Catalogue no. 98-510-X2016001. Ottawa. Released July 18, 2018. http://www12.statcan.gc.ca/census-recensement/2016/dp-pd/abpopprof/index.cfm?Lang=E
Figure 11: Far North Employment Prospects – No certificate, diploma or degree, Census 2016
LABOUR FORCE STATUS NO HIGH SCHOOL TRADES UNIVERSITY Total - Labour force status 12870 2080 1860 In the labour force 3990 1420 1610 Employed 2435 1135 1545 Unemployed 1560 280 65 Not in the labour force 8875 665 255 Participation rate 31% 68.3% 86.6% Employment rate 18.9% 54.6% 83.1% Unemployment rate 39.1% 19.7% 4.0% Statistics Canada - 2016 Census. Catalogue Number 98-400-X2016365.
www.schoolofpublicpolicy.sk.ca | 15 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
4.2 Literacy, Numeracy and Digital Capacity Numeracy, which we can associate or used as a proxy for the fast-growing, high demand STEM PIAAC is the Programme for the International sector of the economy is again a problematic Assessment of Adult Competencies, an indicator for Aboriginal populations. Residents international assessment of the foundational scored 232 in Saskatchewan, 224 in Yukon, and information-processing skills required to only 210 in NWT. The Canada average was 266, participate in the social and economic life of while in non-Aboriginal Yukon the score rose to advanced economies in the 21st century. PIACC 274. In these three Aboriginal communities, less data breaks out Aboriginal and non-Aboriginal. than 10% of the population scored in the Level Once again, the Aboriginal population 4/5 ranges, which would be professional demonstrates frighteningly low literacy, competency. Almost half of Yukon and numeracy and technology competency scores Saskatchewan’s Aboriginal populations were on technology learning or PS-TRE (a composite effectively numerically challenged, scoring at score). These scores are related to the ability level 1 or below. The STEM sector represents of test subjects to navigate a computer and people educated in science, technology, perform various functions related to navigation, engineering and mathematics and statistics. writing and numeracy. Canada ranks above the Presently only 4.7% of Saskatchewan’s STEM OECD average in PS-TRE. Only Sweden exceeds educated residents are of Aboriginal origin Canada in the proportion of its population at (2,740 of 57,845) but Aboriginal people the highest level of proficiency. No minority represent 16.3% of the provincial population. population in our society should be falling Of the total Aboriginal educational attainment behind the core of the population. population, only 2.3% have studied in the STEM The author was involved with the PIACC 2012 in sector, or 2,740 of 117,325 people.7 Yukon and was responsible for the increase in Figure 12: Composite PIACC Average Scores sample size for the three Territories which Northern Saskatchewan, Canada, and the allowed for individual reporting versus the usual OECD, 2012 Territories* which had been the standard methodology, aggregating three very different REGION LITERACY NUMERACY PS-TRE populations from Nunavut, NWT and Yukon. AVERAGE AVERAGE AVERAGE SCORE SCORE LEVEL 1 OR The Yukon results were unexpected when BELOW AND compared to other Indigenous populations. On NON- RESPONDENTS “Literacy,” Yukon Aboriginal scored higher that AS % Nunavut and NWT at 242 compared to 229 and OECD 273.3 269.4 66.0% Countries 207, but worse than Saskatchewan Aboriginal at Canada 273.5 265.5 57.4% 248. The gap between the Aboriginal and non- Yukon 277.2 263.1 64.3% Aboriginal was higher in Yukon at 46 points than NWT 253.3 239.4 71.7% in Saskatchewan. However, if the entries for Nunavut 219.1* 200.5* 88.2% Aboriginal Saskatoon and Regina were removed, Sask. 248.2 231.6 78.7% Saskatchewan have a score closer to that for Source: Statistics Canada: Catalogue no. 89-555-X ISBN 978-1-100-22678- 1 Skills in Canada: First Results from the Programme for the International Yukon and NWT for the Indigenous portion of Assessment of Adult Competencies (PIAAC) Skills in Canada: First Results the province (Figure 12). from the Programme for the International Assessment of Adult Competencies (PIAAC). *Lowest scores in OECD PIACC Test, 2012
7 Statistics Canada - 2016 Census. Catalogue Number 98- 400-X2016263.
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT)
Figure 13: PIAAC Reference Material
In Saskatchewan, 32.6% of the ‘Aboriginal’ Population are operating at Level 1 - or below. For non- aboriginal Canada, the Level 1 population represented 16.2% in 2012 (Figure 13).
What does this mean?
PIAAC Level 1 individuals have skills that enable them to undertake tasks of only a limited complexity, such as locating single pieces of information in short texts in the absence of other distracting information. Those jobs categorized as “below Level 1,” do not command these skills. They demonstrate only basic vocabulary but also the ability to read brief texts on familiar topics to locate a single piece of specific information. The situation is even more problematic on numeracy with Level 1 or below standing at 45.2% of the Aboriginal population (Canada non-aboriginal equals 22.1%), which means that they do not have the skills to perform simple mathematical operations involving a single step, such as counting or ordering. Those categorized as “below Level 1,” means they can cope with simple tasks placed in concrete, familiar contexts where the mathematical content is explicit and requires only simple processes. What does this mean for the economy? Bluntly, it means that the existing labour body is ill-prepared for changing workforce demands, and that the educational gap is probably widening not narrowing.
If the future of Canada’s economy is to be based, if not dependent upon, STEM graduates, the Aboriginal North will essentially not be participating.
The link between Education and Employment is further supported when Participation Rates (PR) are reviewed. The PR for people with no formal educational attainment is depressingly low, at only 31%, or 31 percentage points below those that hold at least a High School certificate. Meanwhile, Indigenous
www.schoolofpublicpolicy.sk.ca | 17 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
people who hold a trade’s certificate in Far North have a PR of 68.3%. Participation continues to climb with educational attainment to 87.4% for university graduates in the North (Figure 14).
Figure 14: PIAAC Reference Material 2
4.3 Education and Income Briefly Correlated settler community fails to exceed. The graph also includes data points for Far North Figure 15 demonstrates how Indigenous and Aboriginal and non-Aboriginal and for Yukon settler communities have significantly different Aboriginal and non-Aboriginal. The Far North outcomes in both educational attainment and Aboriginal community has a low average employment income. This correlation uses the income of only $20,101 associated with an “2015 Median Employment Income” from the extremely high percentage (57%) of the Census of Canada 2016, to differentiate income population not having graduated from, high levels between two randomly selected groups school. This is less so the case with the Yukon of Saskatchewan communities: 20 First Nation Aboriginal population where the educational communities and 20 settler communities. The attainment levels are higher, and income rises correlation uses smaller scale settler to above $30,000 not unlike the “lower- communities to better compare with the income” settler communities. The small settler usually, small First Nation settlements (X axis). society population in Far North is both better Secondly, on the Y-axis is plotted - Educational educated with only 16% not having completed Attainment of each community based on the high school and has a much higher average percentage of the population 15+ years of age employment income of $52,563. that had not graduated high school as of 2016. The correlation has a definitive break point at Employed Indigenous people on average around $25,000, which no Saskatchewan First (community value) barely make $20,000 Nation community crosses and for which no annually. The range for ‘% of Education Less
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT) than High School’ or low educational similarly poorly educated people being paid attainment is dramatic in these communities. different wages. The range is from a low of 23% to a high of 70%. Indigenous communities fare worse than their This range of 47 percentage points is in sharp settler counterparts. Settler communities in contrast from the range within settler Saskatchewan are wealthier and appear to have communities which is only 19 percentage better paying employment opportunities points. Even if ignoring the 70% outlier, the compared with Saskatchewan’s Indigenous Indigenous community range would still be 26 communities, even when controlling for poor percentage points worse than settler educational outcomes. One northern communities. community, describing itself as being at the The next point to highlight is the income “breaking point,” said that they had been difference between similarly educated starved for money for 30 years. Many homes communities. There is a clear grouping of were in disrepair and overcrowding was indigenous and settler communities along the endemic. Mortality rates stood well above employment axis. Interestingly, indigenous national norms, and members had limited communities that have less than or equal to access to standard health care. Mental health education rates earn a few thousand dollars less supports were limited or non-existent, cultural than their comparable settler communities. This and tradition activities had stalled, many could indicate that settler communities have families lacked reliable access to food, talented stronger economic opportunities within or students struggled to get beyond high school, nearby, while Indigenous communities have job and business opportunities were sparse, lower paying opportunities. It also could and overall services stood well below provincial indicate industries are stronger and wealthier in norms. The numbers are disturbing, but much settler communities than Indigenous less so than the painful reality of poverty and settlements, leading to similar jobs earning less marginalization. in Indigenous communities. This is evidence of
Figure 15: Saskatchewan Education and Employment Income Regression with Yukon and CD-18 Added, 2016
80%
70% Indigenous Communities 60% Settler Communities Linear (Indigenous Communities) 50% CD-18 Abo Linear (Settler Communities) 40%
30% Yukon Abo
20% CD-18 non-Abo % of Education Less than High School High than Less Education of % 10% Yukon non-Abo 0% $- $10,000 $20,000 $30,000 $40,000 $50,000 $60,000 Median Employment Income
www.schoolofpublicpolicy.sk.ca | 19 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
risk takers, and generally have an element of 5. SELF-EMPLOYMENT AND professional qualification that lends itself to ENTREPRENEURSHIP investing time and expertise into the development of a new concept and company. There are currently no publicly accessible and Many of the self-employed captured here, are comprehensive databases for Aboriginal people running small firms from farms through business activity in Canada which are as to the building trades and mechanical services, inclusive and yet are divisible into multiple not future Bill Gates necessarily. metrics as the Census data available from Statistics Canada (Finnegan & Djokic 2017). The 2011 National Household Survey (which However. Aboriginal definers exist throughout unsuccessfully replaced the long-form census in the Statistics Canada universe including their 2011) reported that 4.7% of all First Nation business survey data, which could be accessed workers were self-employed. The rate of self- through special data linkage services by employment for Saskatchewan Aboriginal Statistics Canada staff. The Custom Data workers was 6.1% in 2016 compared to 15.8% Tabulation acquired allow one to look at for non-Aboriginal, people while non-Aboriginal Aboriginal and non-Aboriginal Canadians under self-employed workers represented 95.6% of all the workforce definitions of Self-employed and those self-employed. Figure 16 shows that this Employee at the national level, at the regional dropped to only 2.2% when focused on just First level and, where population allows, at the Nation self-employment, having removed the provincial and territorial levels of geography. Métis element. If the private sector is expected Self-employment is used here as a proxy for to lead the charge in job creation and wealth entrepreneurship; it is an uneasy marriage of growth, then there is little chance that concepts. Entrepreneurs are usually much more Aboriginal entrepreneurs will be leading the than just self-employed: they are innovators, charge.
Figure 16: Rate of Self-employed First Nations and Non-Aboriginal Ancestry Workers in Canada and Regions (from age 15 years and above)
8.4% 3.2% 5.1% 3.7% 7.0% 6.0% 7.2% 4.8% 7.8% 2.2% 11.3% 2.2% 9.2% 5.1% 9.2% 5.8% 7.6% 4.7%
0.0% 2.0% 4.0% 6.0% 8.0% 10.0% 12.0% Non-Aboriginal Self-Employed Rate First Nations Self-Employeed Rate
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT)
As shown above, Saskatchewan with its historical small farm business sector leads the nation in self- employment at 11.3%.
Figure 17: Comparison of First Nation Ancestry, Self-employed workers to non-Aboriginal Self- employed workers, Saskatchewan, 2011
50.0% 45.5% 45.0% 40.0% 35.0% 30.0% 24.9% 26.3% 25.0% 20.0% 16.1% 14.9% 14.7% 15.0% 7.7% 4.2% 4.7% 4.8% 9.0% 8.4% 10.0% 6.9% 2.8% 7.8% 5.7% 3.8% 4.8% 5.4% 0.0% 5.0% 1.2% 0.0% 0.0%
Self-Employed First Nations (NAI) Ancestry Self-employed non-Aboriginal ancestry only
In Saskatchewan, First Nation ancestry (FNA) have made inroads to this higher paying sector self-employed workers are highly of the economy. FNA self-employed workers in underrepresented compared to the size of the Saskatchewan have also made inroads into non-Aboriginal self-employed workforce (Figure other well-paying sectors such as education, 17). This is the greatest disparity in Canada at law and government and community services – the provincial level. Once again, FNA self- representing 7.8% of the labour force compared 8 employment is underrepresented in to 4.7% for non-Aboriginal workers. management occupations at 24.9% compared to 45.5% for non-Aboriginal workers and 6. SEPH DATA AND CENSUS HOUSEHOLD overrepresented in trades and transportation, INCOME sales and services, and resources occupational sectors, which are all considered lower paying Saskatchewan First Nations are currently fields of employment. While health only underfunded, and their staff are some of the represents 4.8% of the FNA self-employed lowest paid in Canada, by whatever metric population, they are overrepresented used. That said, they are currently fighting to compared to the non-Aboriginal labour force, safeguard their communities and their families, suggesting that FNA self-employed workers working long hours in uncertain and perhaps
8 Source: CRO0156912_CT.1 (2011): Aboriginal Identity (11), Area Population Aged 15 Years and Over in Private Households of of Residence (3), Highest Certificate, Diploma or Degree (10), Class Canada, Provinces and Territories, and of Selected Regions, 2011, of worker (5), Selected Characteristics (204) and Adjusted Base for National Household Survey Incompletely Enumerated Reserves 2006-2011 (2) for the
www.schoolofpublicpolicy.sk.ca | 21 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
even unsafe situations to ensure that the hire unemployed citizens during periods of necessities of community management, welfare lower private sector employment. For example, and safety are security are in place during in January 2020 they employed 262 fewer difficult times dealing with suicides, drugs and employees and appear to have staffed up alcohol problems and in 2020 the Covid-19 during the slowest months.10 pandemic.
The Survey of Employment and Payroll Hours 7. EI BENEFICIAIRIES DATA does not provide a breakout of Aboriginal employment by sector but there is one line item Employment Insurance Beneficiaries (Regular that is functionally populated by Indigenous Benefits) as shown below for Yukon and people, not 100% but at least majority, that is Saskatchewan have quite different trajectories Line 914 Aboriginal Government. Average (Figure 18). From 2011 through to November payroll a First Nation government employee 2014, EI numbers had been slightly declining was $849/week, compared to a Federal from around 11,340 to 10,700 overall prior to employee working for example in Crown- an upwards inclination that continued through Indigenous Relations and Northern Affairs to and peaked at double the November 2014 Canada (CIRNAC) in Saskatoon, who averaged nadir at 21,280 n July 2016. From this zenith, $1,638, or nearly twice as much as of January the EI numbers in Saskatchewan appear to have 2020.9 levelled off at a new norm of between 15,000 and 17,000 from April 2018 to January 2020. The income of Saskatchewan Aboriginal government employees can be compared to In what can only be called a severe contrast, the their counterparts in Yukon. Here the difference Yukon EI numbers steadily fall from 950 in 2011 is less pronounced, with Yukon Aboriginal to 760 in January 2016 to a nadir of 560 in government employees earning $924 week, or January 2020, with almost no variation in the about 9% more. This data set also provides trend line. In contrast, the Saskatchewan EI employment numbers. Again, the data deals trendline rises and levels out at the new normal with the entirety of Saskatchewan and Yukon, in the low 16,000 beneficiaries range. the data can not be drilled down for Aboriginal Figure 19 compares Yukon and Far North EI employees per se nor at the census district level, but it is still informative. In February 2020 Beneficiaries (all Types) which explains the Yukon First Nation governments employed 1846 increase in numbers for Yukon between Figures staff of “all kinds” (part-time, full-time, salary 19 ad 20. The predominant aspects of the and wage), a ratio of 1:4.4 government Yukon numbers are the seasonality that appears employees to citizens. In comparison, Aboriginal in the line and the trendline, which shows a governments in Saskatchewan employed 6741 steady decline from 2014 through to March workers that is a ratio of 1:25.9 workers to 2019 (although there were some higher peak citizens. Elsewhere, it has been argued that in years such as January 2018). In stack contrast, Yukon, First Nation governments are able to Far North sees a steady rise in EI Beneficiaries
9 Statistics Canada. Table 14-10-0203-01 Average weekly 10 G.F. Finnegan (2013) Analyzing the Role of Aboriginal earnings by industry, monthly, unadjusted for seasonality; Public Administration in Yukon – The Survey of Employment and Payroll Hours, aboriginal policy studies, https://www150.statcan.gc.ca/t1/tbl1/en/tv.action?pid=1 Vol. 2 no. 2: pp. 88-107 410020301
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT) from January 2014 through to about July 2018 This is 550 recipients higher that in 2014. when the number peaks at 2260 then stats to Yukon in January 2014 had 1600 EI beneficiaries decline slightly through March 2019 at 2020. compared to 1470 in Far North.
Figure 18: EI Beneficiaries Saskatchewan and Yukon Oct. 2011-Feb. 2020 Regular Benefits
25,000
21,280
20,000
16,180
15,000
11,340
10,000
5,000
950 760 560 0 Jul-12 Jul-13 Jul-14 Jul-15 Jul-16 Jul-17 Jul-18 Jul-19 Jan-12 Jan-13 Jan-14 Jan-15 Jan-16 Jan-17 Jan-18 Jan-19 Jan-20 Oct-11 Oct-12 Oct-13 Oct-14 Oct-15 Oct-16 Oct-17 Oct-18 Oct-19 Apr-12 Apr-13 Apr-14 Apr-15 Apr-16 Apr-17 Apr-18 Apr-19 Saskatchewan Yukon Poly. (Saskatchewan)
Figure 19: Comparison Saskatchewan Far North (CD-18) and Yukon EI Beneficiaries, all types, both sexes, 2014-2019
2,500
2,000
1,500
1,000
500
0
Sask CD-18 Yukon Linear (Sask CD-18) Linear (Yukon)
www.schoolofpublicpolicy.sk.ca | 23 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
By March 2019, the numbers had changed to Figure 20: Far North, Yukon, and Saskatchewan 1210 for Yukon and 2020 for Far North, Composition of Income 2015, Census 2016
Saskatchewan. Yukon during this period saw its CATEGORY EI numbers decreases by 400 workers, while Far OF TOTAL FAR NORTH SASK. YUKON North rose by 550. This strongly suggests the INCOME ABO Non- ABO Non- ABO Non- two economies are going in different directions. ABO ABO ABO Market An aspect of the Yukon labour market, which is Income - 71.3 92.1 80.1 90.4 85.3 92.1 probably less common in Far North, but which As % Government also needs to be mentioned, is that transfers - 28.8 7.8 19.9 9.6 14.7 7.9 unemployed workers in Yukon (non-Aboriginal) As % have a higher tendency to relocate south if they Statistics Canada: Census of Canada 2016 become unemployed. They have few family commitments and less investment in the Yukon 8. OTHER FACTORS FOR FUTURE and are more likely to see their time in the RESEARCH Yukon as an adventure and opportunity to learn new skills in what is now a tight labour market. Other research into the challenges facing the Far North could look at the problems around Finally, an aspect of both income and benefits is family and household formation. This is related the composition of household incomes in to the large NILF population discussed above Canada, which the Census tracks. It is another where far too many individuals, if not families way of measuring dependency on government and households, are not active in the formal support systems offered to the lower income labour force. One aspect that stands out from households in our communities. Figure 20 the Census population and family sections is the shows the composition of total income in 2015 high percentage of lone-parent families, of the population aged 15 years and over in especially female single parents, and the rather private households as a percentage of income. surprisingly grandparent headed households In Canada, the national breakout for with children present and no biological parent government transfers against earned income in the household. These are aspects of a higher was 88.3% market income and 11.7% dependency ratio, meaning that those working dependency on government transfers. This was and active in the labour force are supporting not the case in Fare North, where the majority more dependents than would be expected. Aboriginal population had a dependency rate of These could include aunts and uncles 28.8% on government transfers such as welfare, supporting unemployed adult children or EI, old age pension cheques and other programs nephews and nieces or friends helping non- compared to 7.8%. For the non-Aboriginal family members in need of support. This populations of Far North, the 9.6% rate for informal economy, this sharing within extended Saskatchewan and the 7.0% rate for Yukon. In households, is probably a common and comparison, the Yukon Aboriginal population everyday across the Far North in small family had half the dependency level of the Far North and clan-based societies. But from an economic at 14.7% versus 28.8%. development perspective, it creates challenges for growing an economy and a labour force
(Figure 21).
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT)
Figure 21: Saskatchewan Lone-parent household %, Median Employment Income Indigenous vs. Settler Communities with Yukon and CD-18 Added
70%
60%
Indigenous Communities 50% Settler Communities CD-18 Abo Linear (Indigenous Communities) 40% Linear (Settler Communities)
30% Yukon Abo Parent Families Parent (%) - 20% Yukon CD-18
Total Lone 10%
0% $- $10000 $20000 $30000 $40000 $50000 $60000 Median Employment Income
This correlation uses 20 randomly selected substantial earning power. The highest of the Indigenous communities across Saskatchewan 42 data points plotted here (r40 of them are and compares them to 20 randomly sampled, randomly selected) show this is also the case in smaller-size, settler communities in the Yukon. Why is this? What so greatly province. Once again, Yukon and Far North differentiates Aboriginal single-parent Aboriginal and non-Aboriginal data points have households and leaves them financially been plotted onto this study to show how these challenged, while in settler society single two jurisdictions compare. Comparatively, parents are much more financially secure? This settler communities fare much better. The is a question for future research. average settler community has a lone-parent rate of only 12%, or 36 percentage points lower than their Indigenous counterparts. As well, 9. LESSONS AND RECOMMENDATIONS settler communities have an average The data presented herein reveals the financial employment income of over $35,000 a year, and structural challenges facing the residents of more than double the rate in Indigenous Far North. The regional population has one of communities. the poorer average incomes in Canada, with Even in Yukon, Aboriginal single-parents fare particular problems for Indigenous peoples and better than the Saskatchewan Aboriginal single single families. The gap within Saskatchewan is parent people as plotted here. Single parent striking; the differences with Yukon show that households in the Far North settler community economic systems and government structures are less common and they clearly have matter greatly. Not mentioned in this report but
www.schoolofpublicpolicy.sk.ca | 25 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
worth remembering is that northern o Secondly, there is virtually no Saskatchewan has one of the highest per capita understanding of how Indigenous GDPs in Canada, a mark of the economic peoples’ engagement with the importance of the uranium mining industry and Indigenous or harvesting economy a sign that relatively little of the resource connects to the market and wage revenues filters down to the regional economy. The Indigenous and population. The dramatically high rate of shadow economies are valuable government investment in Yukon stands in stark parts of the Indigenous and contrast to the much smaller role of the northern economies, but there is no Government of Canada and the Government of precision as to the extent, Saskatchewan in Far North. From this study, seasonality, and nature of this several key elements and recommendations culturally and economic vital sector. emerge: It should be a high priority for a detailed study to be undertaken of • There is an urgent need to address the role the Indigenous economy and the and presence of government in the shadow economy. economic development of northern • It is vital to examine the reasons for the Saskatchewan. A comparison of the size of large number of single parents in Far North government operations across the and the extreme poverty and economic provincial and territorial North is required, dislocation experienced by these people. if only to provide a baseline indication of This socio-economic group requires specific what appears to be the government neglect public policy intervention and much more of northern Saskatchewan. needs to be known about the lifestyle • The statistical data hints at but does not dynamics of single parents and the explain either the Indigenous economy or community structures existing for them and the shadow economy. A great deal of required by them to succeed. northern economic activity occurs off the • It would be extremely useful to compare books and needs to be understood better, the region-wide employment, income and particularly for the Indigenous community. transiency data with the training and This could represent a sizable increase in employment efforts of the leading mining average incomes, potentially in the 10 to companies, particularly Cameco and Areva, 15% range. Equally, the strength of the with Indigenous peoples. The private sector Indigenous economy – hunting, trapping, investments in these areas are solid and fishing, gathering, wood-cutting and the like sustained, but too little is known about the – is poorly understood. There are two other collective income. For example, company considerations. officials report that many Indigenous First, the Indigenous economy and o workers with regional companies leave the the shadow economy has North to work at other locations, substantial cultural value for particularly in the Alberta oil sands. The Indigenous peoples. This value economic impact of this kind of transiency, needs to be quantified and plus the movement of northern-located explained as much as possible.
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT)
workers to southern home-bases, needs to Indigenous peoples are unacceptance. Endemic be understood much better. poverty carries many implications: poor • The data reveals the fundamental educational outcomes, unacceptable health educational gap in northern Saskatchewan, conditions, mental and social problems, which is clearly related to poor economic unacceptable housing and infrastructure among performance. It is clear that the current others. This study, particularly the comparison to Yukon, demonstrates the remarkably small educational system is not working for the government presence and investment in Far Indigenous people in the region. The North, a reality that strips the region of the current approach adopted by Indigenous economic stability that other northern communities and governments – investing jurisdictions enjoy. Broadening the more money in basically the same system – comparative study to incorporate other seems inappropriate for the challenges disadvantaged parts of the provincial North being faced. The poor educational (Labrador, northern Manitoba and northern outcomes are likely connected to family and Ontario) and the territorial North (Northwest community challenges in the 0 to 5 age Territories) will shed further light on the cohort. Early stage trauma has lasting economic and employment challenges facing effects; waiting to work with young people the Indigenous and non-Indigenous peoples of when they attend school is probably too northern Canada and northern Saskatchewan. late. Furthermore, a racial rethinking of the
education system, one tied directly to the regional Indigenous and market economy, is urgently required; • For a variety of reasons, tied substantially to the technical needs in the mining and other sectors, the progression from school and advanced education to the workforce is not working as well in Far North (and Yukon) as expected or desired. Detailed study is required of this vital transition, with a goal to improving the training and education programs, making more effective migration from learning to working, and improving long-term stability in the Indigenous and northern workforce. This is perhaps the most important element in the maintenance and strengthening of the northern and Indigenous economies and it requires urgent and sustained attention.
This report makes it clear that, in Canadian and provincial terms, the economic, employment and income outcomes for northern and
www.schoolofpublicpolicy.sk.ca | 27 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
10. STATISTICAL BIBLIOGRAPHY Labour Force Status (8), Highest Certificate, Diploma or Degree (15), Age (12A) and Sex (3) The bibliography provides references for all for the Population Aged 15 Years and Over in Statistics Canada Databases accessed for this Private Households of Canada, Provinces and report. Territories, Census Divisions and Census Subdivisions, 2016 Census - 25% Sample Data Brief descriptions are provided with the Statistics Canada - 2016 Census. Catalogue Website URL for Statistics Canada sources. Number 98-400-X2016365. https://www150.statcan.gc.ca/n1/en/catalogue 2016 Census Based Report /98-400-X2016365 This report is based on the 2016 Aboriginal and Census Profiles of Canada for Division 18 or CD- Labour Force Status (8), Highest Certificate, 18. Diploma or Degree (11), Major Field of Study - Classification of Instructional Programs (CIP) This downloads under two separate files 2016 (43), Age (9) and Sex (3) for the Population population and tenure and can be found at: Aged 15 Years and Over in Private Households http://www12.statcan.gc.ca/census- of Canada, Provinces and Territories and Census recensement/2016/dp- Divisions, 2016 Census - 25% Sample Data pd/abpopprof/index.cfm?Lang=E Statistics Canada - 2016 Census. Catalogue Number 98-400-X201628 Labour Force Status (8), Highest Certificate, https://www150.statcan.gc.ca/n1/en/catalogue Diploma or Degree (15), Aboriginal Identity (9), /98-400-X2016283 Age (13A) and Sex (3) for the Population Aged 15 Years and Over in Private Households of Employment Income Statistics (7), Highest Canada, Provinces and Territories, Census Certificate, Diploma or Degree (11), Work Metropolitan Areas and Census Activity During the Reference Year (5), Age (10) and Sex (3) for the Population Aged 15 Years Agglomerations, 2016 Census - 25% Sample and Over in Private Households of Canada, Data Statistics Canada - 2016 Census. Catalogue Provinces and Territories, Census Divisions and Number 98-400-X2016287. Census Subdivisions, 2016 Census - 25% Sample https://www150.statcan.gc.ca/n1/en/catalogue Data Statistics Canada - 2016 Census. Catalogue /98-400-X2016287 Number 98-400-X2016261. https://www150.statcan.gc.ca/n1/en/catalogue Aboriginal Identity (9), STEM and BHASE (non- /98-400-X2016261 STEM) Groupings, Major Field of Study - Classification of Instructional Programs (CIP) Aboriginal Identity (9), STEM and BHASE (non- 2016 (16), Highest Certificate, Diploma or STEM) Groupings, Major Field of Study - Degree (9), Labour Force Status (8), Age (9) and Classification of Instructional Programs (CIP) Sex (3) for the Population Aged 15 Years and 2016 (16), Highest Certificate, Diploma or Over in Private Households of Canada, Degree (9), Labour Force Status (8), Age (9) and Provinces and Territories and Census Sex (3) for the Population Aged 15 Years and Metropolitan Areas, 2016 Census - 25% Sample Data Statistics Canada - 2016 Census. Catalogue Over in Private Households of Canada, Number 98-400-X2016263. Provinces and Territories and Census https://www150.statcan.gc.ca/n1/en/catalogue Metropolitan Areas, 2016 Census - 25% Sample /98-400-X2016263 Data
Statistics Canada - 2016 Census. Catalogue Number 98-400-X2016263
POLICY NORTH (NORTH WEST SASKATCHEWAN POLICY UNIT) https://www150.statcan.gc.ca/n1/en/catalogue Other Reports /98-400-X2016263 Statistics Canada, Archived - Employment Statistics Canada. Table 14-10-0292-01 Labour insurance beneficiaries by census division, force characteristics by territory, three-month monthly, unadjusted for seasonality, inactive c moving average, seasonally adjusted and 1 2 3 4, Table: 14-10-0014-01 (formerly CANSIM unadjusted, last 5 months 276-0035) Table: 14-10-0292-01 (formerly CANSIM 282- https://www150.statcan.gc.ca/t1/tbl1/en/tv.act 0100) ion?pid=1410001401 https://www150.statcan.gc.ca/t1/tbl1/en/tv.act ion?pid=1410029201 Statistics Canada. Table 14-10-0203-01 Average 2006 Census Based Reports weekly earnings by industry, monthly, Statistics Canada - 2006 Census. Saskatchewan unadjusted for seasonality Division 18 Catalogue Number 94-581- Average weekly earnings by industry, monthly, XCB2006001. unadjusted for seasonality 1 2 3 4 5 Table: 14-10-0203-01 (formerly CANSIM 281- https://www12.statcan.gc.ca/census- 0026) recensement/2006/dp-pd/prof/rel/Rp- https://www150.statcan.gc.ca/t1/tbl1/en/tv.act eng.cfm?TABID=2&LANG=E&APATH=3&DETAIL ion?pid=1410020301 =0&DIM=0&FL=A&FREE=0&GC=0&GID=775443 &GK=0&GRP=0&PID=94533&PRID=0&PTYPE=89 Statistics Canada - 2011 National Household 103&S=0&SHOWALL=0&SUB=0&Temporal=200 Survey. Catalogue Number 99-012-X2011044. 6&THEME=81&VID=0&VNAMEE=&VNAMEF=& Secondary (High) School Diploma or Equivalent D1=0&D2=0&D3=0&D4=0&D5=0&D6=0 (14), Labour Force Status (8), Aboriginal Identity (8), Area of Residence: On Reserve (3), Statistics Canada; 2006 Census of Population, Registered or Treaty Indian Status (3), Age Saskatchewan Census Division No. 18 (Census Groups (13B) and Sex (3) for the Population division). Statistics Canada. 2007. 2006 Aged 15 Years and Over, in Private Households Aboriginal Population Profile. 2006 Census. of Canada, Provinces and Territories, 2011 Statistics Canada Catalogue no. 92-594-XWE. National Household Survey. Ottawa. Released January 15, 2008. https://www150.statcan.gc.ca/n1/en/catalogue https://www12.statcan.gc.ca/census- /99-012-X2011044 recensement/2006/dp-pd/prof/92- Northwest Territories Bureau of Statistics: NWT 594/index.cfm?Lang=E Summary of Community Statistics, 2019 https://www.statsnwt.ca/community-data/ Statistics Canada. 2007. 2006 Aboriginal Population Profile - Yukon 2006 Census. Statistics Canada: Catalogue no. 89-555-X ISBN Statistics Canada Catalogue no. 92-594-XWE. 978-1-100-22678-1 Skills in Canada: Ottawa. Released January 15, 2008. First Results from the Programme for the https://www12.statcan.gc.ca/census- International Assessment of Adult Competencies recensement/2006/dp-pd/prof/92- (PIAAC) Skills in Canada: First Results from the 594/index.cfm?Lang=E Programme for the International Assessment of
Adult Competencies (PIAAC). https://www150.statcan.gc.ca/n1/en/catalogue /89-555-X
www.schoolofpublicpolicy.sk.ca | 29 Comparative Analysis of the North Saskatchewan and Yukon Indigenous Labour Markets 2006 to 2020
Statistics Canada, Custom Tabulation, CRO0156912_CT.1 (2011): Aboriginal Identity (11), Area of Residence (3), Highest Certificate, Diploma or Degree (10), Class of worker (5), Selected Characteristics (204) and Adjusted Base for Incompletely Enumerated Reserves 2006-2011 (2) for the Population Aged 15 Years and Over in Private Households of Canada, Provinces and Territories, and of Selected Regions, 2011, National Household Survey (Tabulation Owned by Author)