University-Indigenous Relations: a Policy Assessment Framework in Four Dimensions in Partial Fulfilment of the Graduate Certificate in Indigenous Nationhood
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University of Victoria University-Indigenous Relations: A Policy Assessment Framework in Four Dimensions In partial fulfilment of the Graduate Certificate in Indigenous Nationhood Peter R Elson PhD 8-23-2019 Dedication and Supervision Dedication This paper is dedicated to my older brother Nick Elson (1943-2017) who continues to be interested in my work and George Larivière, age eight, one of the more than 6,000 Indigenous children who did not survive residential school Supervision: Dr Jeff Corntassel, Associate Professor, Faculty of Arts, Indigenous Studies Dr John Burrows, Professor, Faculty of Law, Canada Research Chair in Indigenous Law 1 Table of Contents Dedication and Supervision ....................................................................................................... 1 Summary and Key findings........................................................................................................ 5 Introduction and Background ................................................................................................. 10 Project Purpose ......................................................................................................................... 12 Policy assessment variables .................................................................................................. 13 Methodology .............................................................................................................................. 14 Limitations ................................................................................................................................. 17 The State of University-Indigenous Relations ........................................................................ 18 Indigenous relations principles ............................................................................................ 18 Accreditation standards ....................................................................................................... 20 University policies and programs ........................................................................................ 20 Universities in action............................................................................................................. 24 Denial .................................................................................................................................. 25 Indigenization ..................................................................................................................... 25 Reconciliation ..................................................................................................................... 28 Decolonization .................................................................................................................... 30 Resurgence .......................................................................................................................... 32 University-Indigenous Relations Surveys (National) ......................................................... 34 Universities Canada survey of Indigenous initiatives ......................................................... 35 Assembly of First Nations Post-Secondary Review ........................................................... 36 Indspire: Truth and reconciliation in Post-Secondary settings ........................................... 37 University-Indigenous Relations Surveys (Provincial/regional) ....................................... 40 British Columbia: Aboriginal policy framework and action .............................................. 40 ............................................................................................................................................. 42 Case Study: Vancouver Island University .......................................................................... 42 Saskatchewan: First Nations and Métis Initiatives ............................................................. 43 Ontario: Deepening Our Relationship ................................................................................ 46 Atlantic Region: Starting the Journey ................................................................................. 47 Policy Assessment Framework ................................................................................................ 51 External Indigenous Relations ............................................................................................. 53 Beyond the duty to consult and accommodate ................................................................... 55 2 Policy assessment variables (external Indigenous relations) .............................................. 60 University-Indigenous Governance (legal and jurisdictional authority) ............................. 61 The nature of university governance................................................................................... 61 Indigenous representation ................................................................................................... 64 Committee of the Board: The Anishinaabe People’s Council ............................................ 64 Seats on the Board: Yukon University................................................................................ 65 Policy assessment variables (University-Indigenous governance) ..................................... 67 Internal Indigenous relations (research and educational relationships with Indigenous communities)........................................................................................................................... 69 Policy assessment variables (Internal Indigenous relations). ............................................. 73 Land relations: (relationship with facilities, spaces, land and waterways) ........................... 74 Policy assessment variables (Facilities, spaces and Land relations) .................................. 78 Case Profiles .............................................................................................................................. 79 University of Victoria ........................................................................................................... 79 Algoma University ................................................................................................................ 81 Findings: University of Victoria (UVic) .................................................................................. 84 Findings: Algoma University (AU) .......................................................................................... 92 Discussion................................................................................................................................. 101 Conclusion ............................................................................................................................... 108 Next Steps ................................................................................................................................ 110 References ................................................................................................................................ 111 APPENDIX A: 2017 Universities Canada’s Indigenous Student Survey .......................... 121 APPENDIX B: Summary of Leading Practices (BC) .......................................................... 126 APPENDIX C: Universities Canada Principles on Indigenous Education ....................... 132 APPENDIX D: Indigenous Plan (2017-2022) University of Victoria ................................. 133 APPENDIX E: Strategic Framework (2018-2023) University of Victoria ........................ 136 APPENDIX F: The Shingwauk Covenant (and addendum) .............................................. 137 Acknowledgements ................................................................................................................. 140 3 Figures Figure 2: Four Dimensions of University-Indigenous Relations ................................................ 53 Figure 3: Four Dimensions of University-Indigenous Relations (expanded version) .............. 107 Tables Table 1: Policy Dimensions and “Aboriginal Policy Framework” ............................................. 43 Table 2: Policy Dimensions and “First Nations and Métis Initiatives” ...................................... 46 Table 3: Policy Dimensions and “Deepening Our relationship” ................................................ 47 Table 4: Policy Dimensions and “Starting the Journey” ............................................................ 50 Table 5: Policy Dimensions and University of Victoria ............................................................. 84 Table 6: Policy Dimensions and Algoma University ................................................................. 92 4 Summary and Key findings The purpose of this policy paper is to create and test a University-Indigenous Relations Policy Assessment Framework for use by Canadian Universities and their associated Indigenous communities. The University of Victoria (UVic) and Algoma University (Algoma U) are presented as comparative test cases. These two cases examine the extent to which the proposed policy assessment framework was applicable to two very different universities with similar declarations of commitments to reconciliation. This paper poses the question: do universities have the policies, structures and practices in place to develop and sustain an institutional commitment to respectful, reciprocal and relevant relationships with local Indigenous host nations. This question