Human Resources Committee on March 4th, 2014

[The Chair, Conservative, Phil McColeman]

Good morning, ladies and gentlemen.

I call the meeting to order. This is meeting number 14 of the Standing Committee on Human Resources, Skills and Social Development and the Status of Persons with Disabilities. Today is Tuesday, March 4, 2014, and we are continuing our study concerning opportunities for aboriginal persons in the workforce.

Today we have another split panel of witnesses to provide testimony.

For our first hour we are joined by Ms. Denise Amyot, president and chief executive officer of the Association of Canadian Community Colleges, and Anna Toneguzzo, who is the government relations and policy research manager with the Association of Canadian Community Colleges.

From the Canadian Electricity Association we are joined by Mr. Jim Burpee, president and chief executive officer.

We also have Mr. Joe Heil, who is the director of first nations and Métis relations at Ontario Power Generation Inc.

We welcome our witnesses.

I will now turn the floor over to our witnesses for their 10-minute opening presentations.

I believe Mr. Burpee and Mr. Heil are going to split their time.

We will start with Ms. Amyot, for 10 minutes.

[Denise Amyot, President and Chief Executive Officer, Association of Canadian Community Colleges]

Good morning.

I am happy to be with you today.

I would like to begin by acknowledging that we are in the traditional territory of the Algonquin Nation, and I'm honoured to greet and thank them.

Good morning to all of you. Thank you, Mr. Chair.

I hope that you will find our comments useful and that they will contribute to your study on opportunities for aboriginal persons in the workforce. As you know, we need to find ways to improve the socio-economic situation of first nations, Métis and Inuit people.

The Association of Canadian Community Colleges, which I represent, is the national and international voice of Canada's publicly funded colleges, institutes and polytechnics working with industry and social sectors to train 1.5 million learners of all ages and backgrounds at campuses serving over 3,000 urban, rural and remote communities from coast to coast to coast. Our 132 members are committed to supporting indigenous learners and communities.

We have provided folders to each of you with ACCC's most recent publication on how colleges serve aboriginal learners, as well as a process model of the holistic approach our members and partners have identified as essential to providing effective support.

Today I would like to begin with a brief overview of that holistic approach. There are four key elements of that approach.

First is proactive recruitment starting with K to 12, because of course ensuring the success of indigenous students in K to 12 is crucial to future achievement at the post-secondary level.

Second is open and supportive admission policies and culturally appropriate assessment services.

Third is a broad range of education and training programs, such as adult upgrading, essential skills, post-secondary programs, aboriginal-specific diploma and degree programs in high-demand fields of importance for aboriginal communities, and community-based and partner organizations. For example, Nicola Valley Institute of Technology in British Columbia, the Northern Alberta Institute of Technology in Alberta and the Cambrian College in Ontario, all have mobile trades training trailers that provide hands-on training in aboriginal communities based on the needs identified by community leaders and industry partners.

Fourth is wraparound support services, such as tutoring, day care, aboriginal gathering places, financial assistance, etc. Of course, support from elders is also important as they help ensure that first nations, Métis, and Inuit cultures are reflected across the institution.

Through the leadership of an indigenous education committee led by one of our presidents, Ken Tourand, who is president of Nicola Valley Institute of Technology, we are now developing an indigenous education protocol that our members will sign to affirm their commitment to supporting indigenous learners and communities.

I would like to address the federal government support programs, starting with the aboriginal skills, employment, and training strategy, known as ASETS, and the skills and partnership fund, SPF. Some colleges and institutes are training providers for ASETS organizations and are involved in partnerships funded by the SPF. The ASETS and SPF are important and successful programs that enable aboriginal organizations to meet local training needs tied to employment opportunities. These programs are needed to provide targeted upgrading, essential skills development, and pre-employment skills training.

To improve efficiency, we recommend the following.

First, in rural and remote areas and jurisdictions where there are numerous ASETS organizations and a large territory to serve, it can be challenging for colleges to meet training needs and at the same time capitalize on volume efficiencies. If training activities were allowed on a regional level, ASETS organizations could pool their students and render the program even more cost-effective.

Second, interventions are sometimes too short and are geared to direct employment. Many aboriginal learners require upgrading because they have low literacy levels, did not graduate from high school, or have been out of school for a long time. If funding were approved for longer periods and criteria were more flexible, ASETS could more effectively address the upgrading and essential skills development needs.

I would now like to speak to the importance of adult upgrading.

We believe that the federal government must focus primarily on improving the K to 12 education system for first nations and Inuit people, implement funding mechanisms that are on par with provincial and territorial education systems, and in time, improve outcomes.

I want to acknowledge the funding that was provided recently with respect to K to 12. This was a welcome addition to support first nations, Métis and Inuit.

However, we must recognize that a significant proportion of the aboriginal population has not completed high school and will be challenged to improve their employment prospects without post-secondary education.

According to the 2012 aboriginal peoples survey, 28% of first nations people living off reserve, 58% of Inuit, and 23% of Métis age 18 to 44 were not attending high school and had not met the requirements for a high school diploma. By comparison, from the 2011 national household survey, the figure for the non-aboriginal population was 11%.

More must be done to address this gap. Colleges and institutes are the main providers of high school equivalency programs and adult upgrading for indigenous learners across Canada.

The northern adult basic education program, known as NABE, is a successful model to serve the adult upgrading needs in northern and remote areas. Through the Canadian Northern Economic Development Agency, $27 million over five years is being invested to improve adult basic education capacity at Aurora College, Nunavut Arctic College, and Yukon College.

The goal is to increase the number of working-age adults with basic workplace and essential skills needed for the labour market or to benefit from occupational training.

In December 2013, Canada's territorial colleges reported that this funding is making a difference. The 85% to 90% of learners participating in upgrading programs supported by the NABE program are aboriginal. The colleges report that they have: first, developed enhanced and culturally appropriate prior learning assessment and recognition services; second, increased the number of instructors to deliver the programs; third, integrated support services for learners, in particular from elders; and fourth, developed and piloted literacy and workplace essential skills short courses that are culturally appropriate and in line with employment opportunities of industry.

[The Chair, Conservative, Phil McColeman]

Madam Amyot, you're running out of time. If you could—

[Denise Amyot]

I'm almost done.

Another critical area to share with this committee is essential skills development. This must continue to be at the forefront of improving access and supporting learner success. ACCC has led Employment and Social Development Canada to fund essential skills projects in recent years that have demonstrated the impact of essential skills. For example, findings in 17 pilot projects across Canada indicated that up to 60% of learners and workers tested were below level three literacy, which is what is needed to function in society. After some hours, 24 to 40 hours of essential skills training, students and workers demonstrated learning gains and improved performance.

In closing, I'd like to recommend the following to enhance and create efficiencies in the ASETS and SPF programs: more flexibility in program parameters; enhanced and culturally appropriate prior learning assessments; and expanded essential skills development programs.

During this committee study, we are eager to work with the Government of Canada to improve access to post-secondary education for first nations, Métis and Inuit learners so that we can improve their employment prospects and contribute to the socio-economic development of aboriginal communities.

[The Chair, Conservative, Phil McColeman]

Thank you very much for your presentation.

We move on to Mr. Burpee and Mr. Heil, for five minutes each, I believe.

[Jim Burpee, President and Chief Executive Officer, Canadian Electricity Association]

Good morning.

Thank you, Mr. Chair and committee members, for inviting us here today to share our knowledge and experiences with respect to opportunities for aboriginal persons in Canada's electricity sector workforce.

Aboriginal employment in Canada's electricity sector is characterized by tremendous opportunities, but also persistent challenges and barriers which we continue to address through a variety of ways, some which we will highlight for you today.

I'm pleased to be joined today by Joe Heil, director of first nations and Métis relations at Ontario Power Generation. OPG is an active participant in the CEA aboriginal relations task group, a forum for utility representatives from across Canada to share best practices and collaborate on innovative approaches, particularly on the issue of aboriginal employment in the workforce.

I'll pass it over to Joe to provide some examples of aboriginal partnerships.

[Joe Heil, Director, First Nations and Métis Relations, Ontario Power Generation Inc., Canadian Electricity Association]

Thank you, Jim.

My primary responsibility involves implementation of OPG's first nations and Métis relations policy. Given the location of OPG's nuclear, thermal, and hydroelectric operations, we have relationships with over 50 first nations and Métis communities in Ontario. OPG's first nations and Métis relations policy is designed to build strong, mutually beneficial relationships with first nations and Métis communities. It commits OPG to addressing past grievances related to historical development.

To date, OPG has settled over 20 past grievances. On an ongoing basis, each business unit is required to develop plans in the areas of community relations and outreach, employment and contracting opportunities, and capacity building. As well, the policy makes a clear commitment to enter into commercial arrangement partnerships with first nations and Métis communities on new developments.

One of these partnerships involves our Lower Mattagami project in northeastern Ontario. In 2010, OPG and Moose Cree First Nation entered into a partnership for the redevelopment of hydroelectric facilities on the Lower Mattagami River. Moose Cree First Nation will be taking a 25% equity stake in this $2.6-billion project. As well, Moose Cree and other surrounding first nations and Métis communities are enjoying significant employment and contracting opportunities.

The environmental assessment for the Lower Mattagami project required that 200 person-years of employment be provided to specific local aboriginal communities. To meet this target, OPG entered into preferential employment agreements with Moose Cree, Taykwa Tagamou Nation, and the Métis Nation of Ontario. To address the lack of existing service coordination at the time in the region and to meet the EA employment goals, OPG worked with Moose Cree to create a training-to-employment agency called Sibi. Sibi is a Cree word for river. Its board of directors includes representatives from Moose Cree, Taykwa Tagamou, the Métis Nation of Ontario, OPG, and our contractor, Kiewit-Alarie.

To date, Sibi has helped to achieve over 400 person-years of employment for the aboriginal people on this project. With more than a year before the construction phase is completed, we expect this number to grow beyond 500 person-years of aboriginal employment. Additionally, more than 70 of Sibi's clients are registered apprentices, and an estimated 25 will complete their apprenticeships by the end of the project. Sibi is providing transitioning to ensure continued full-time employment and program support for its clients beyond this project. The program utilized by Sibi is seen as a best practice across Canada.

The program has cost approximately $16 million over a four-year period. Roughly $4 million was provided by HRSDC through the ASEP program. Success in the program can be accredited to OPG having an equal say with the aboriginal communities in the management of the program dollars. Together we have worked with the contractor and unions to ensure follow-through on the commitments, to provide information on the timing of jobs, the qualifications required, and the most appropriate training programs, etc.

OPG has provided structure, resources, reporting tools, and more.

At a higher level, the greatest success by far is the individual capacity that has been created for the aboriginal people in the region. A significant number of persons who previously did not have their grade 12 now have achieved this, as well as additional certifications and work experience required to continue on a path of lifelong progressive careers.

Over and above these significant achievements, OPG has worked to put an exemplary training and employment service into a place where it did not previously exist. With OPG's partnership, Sibi has created a database of 2,000 clients and has trained and employed over 700 persons in the region. OPG's next challenge is to ensure a successful hand-off of our Sibi model and to maximize the aboriginal employment on other large-scale projects such as our Darlington refurbishment, and to put systems in place to better coordinate with aboriginal skills and employment training agencies, the ASETAs, and other community and industry partners. OPG has begun to do this work to some extent in partnership with the Aboriginal Apprenticeship Board of Ontario, AABO. We look forward to working with the federal government in whatever capacity may be available for assistance in putting such regional training board structures into place.

I'll now pass it back to Jim.

[Jim Burpee]

Thank you, Joe.

The Canadian electricity industry supports increased funding for aboriginal education and hopes the first nation education act will help enable them to participate fully in Canada's workforce of the future. Canada's electricity industry has a strong commitment to aboriginal education at all levels, and recognizes that progress depends on strong collaborative relations with aboriginal communities and educators.

l'd like to conclude with a few words about the aboriginal skills, employment, and training strategy, ASETS, because I know you are seeking feedback on that specific program. We believe that a renewal of funding and focusing of ASETS on collaboration with key sectors such as ours would be a positive way forward.

While we are supportive of the program in principle, we have identified an area for improvement that could help address the current disconnect with our industry. The need for improvement is not solely a result of program design and administration. We as industry know that we, too, can do a better job of outreach and collaboration, specifically with aboriginal program partners who administer the program.

ASETS is more infrastructure project focused and less targeted at specific sectors. In light of the tremendous renewal and expansion of physical infrastructure taking place across the country, particularly in the energy sector, this is not a bad thing, and the electricity sector is one of those sectors, projected to undertake close to $350 billion in current Canadian dollars of investment by 2030. However, there is a distinct difference and advantage in the employment opportunities for aboriginal people in our sector when compared to other sectors.

Think of a new hydroelectric generating facility. The completion of construction is only the beginning. Once connected to the grid, the facility begins a long life of at least 100 years. In addition to the skilled workforce required to operate the generating facility, many more are needed to maintain and service the related infrastructure, everything from distribution substations, wires, poles, meters and all other aspects of the system, including the customer service and billing operations. These are deep and substantive long-term opportunities. Better connecting ASETS with our sector would benefit and open up more of these high-quality and long-term jobs to aboriginal people.

As with all aspects of engaging and partnering with aboriginal communities, we recognize that industry has a role. CEA is committed to continuing our work in identifying public policy options for attracting the aboriginal workforce to the electricity sector, and we look forward to working with the federal government to do so.

Thank you.

[The Chair, Conservative, Phil McColeman]

Thank you very much for your presentation and for being under 10 minutes. It's very much appreciated.

We now move on to questioning. Our first round of questioning for five minutes is with Madame Groguhé.

[Sadia Groguhé, NDP, Saint-Lambert, QC]

Thank you, Mr. Chair.

I would like to welcome the witnesses and thank them for their testimony.

Ms. Amyot, you talked about a holistic approach. Other witnesses who work with aboriginal people have also talked about that. You raised three points when you talked about the importance of being proactive when it comes to education from K to 12.

You also highlighted the importance of acquiring essential skills. Unfortunately, without those skills, people who are outside the workforce cannot get the support they need for secondary and post-secondary education. Last, you talked about the importance of more flexible, longer-term funding.

My question is about renewal of your funding. How often is your funding renewed, and how does that influence your activities? What recommendations would you make about that funding?

[Denise Amyot]

I'm not sure I understand the question about our funding because we do not receive any funding.

[Sadia Groguhé, NDP, Saint-Lambert, QC]

Let's look at it in terms of the overall strategy.

[Denise Amyot]

In terms of the strategy, funding goes directly to organizations, not to our association. I represent an association of colleges.

[Sadia Groguhé, NDP, Saint-Lambert, QC]

Okay.

I'll modify my question to focus less on funding and more on learning.

What's your approach to education for aboriginal people? What are the advantages of that approach and what are the outcomes?

[Denise Amyot]

I could talk about that for hours.

[Sadia Groguhé, NDP, Saint-Lambert, QC]

You'll have to keep it brief because I have other questions for you.

[Denise Amyot]

I'll try to be very precise.

First, we have a variety of models. Colleges in Canada typically work with industry and the private sector to ensure that the courses they offer match workforce needs. It's essential that the courses as a whole prepare students for specific jobs.

I'd like to give an example of how we make sure that courses match needs. In Yukon, they started offering a program called “First Nations Governance and Public Administration”. That course is being offered because it's important for Yukon to have a public administration program to foster a better understanding of the aboriginal element. The program has been very successful. Initially, the program was offered only to Yukoners, but there's now a huge demand for it to be offered more broadly.

Now let's talk about essential skills, which are crucial. As I said earlier, we launched 17 pilot projects. Those projects showed that up to 60% of learners had not mastered essential skills. There are five levels, the fifth being the highest. People need at least level three to function in society. We discovered that a significant proportion of people didn't have that level. To our great surprise, we discovered that it was the same for people who were employed.

We realized that by providing 24 to 40 hours of training, we were able to get those people, including aboriginal people—

[Sadia Groguhé, NDP, Saint-Lambert, QC]

That's very interesting, but I would like to know what you need to deliver that kind of program.

[Denise Amyot]

I'll give a specific example of what would be useful.

We asked Employment and Social Development Canada for $13 million to train trainers, and we're waiting for an answer. Right now, we can't do any large-scale training of trainers in many parts of the country.

The Government of Canada has helped us a lot on the essential skills front. We have developed tools and the training has been a success. Now, to close the loop, we need funding to train trainers.

[The Chair, Conservative, Phil McColeman]

Thank you very much.

Now we'll go on to Mr. Shory from the Conservative Party.

[Devinder Shory, Conservative, Calgary Northeast, AB]

Thank you, witnesses, for coming here to help us to better understand how we can improve the opportunities for aboriginal people and at the same time address all kinds of skills shortages. Certainly there is a disconnect; I'm sure we all agree. There are thousands and thousands available in the aboriginal workforce, while at the same time we have a shortage of workers. There is a gap.

I see the passion of the community colleges. I'll start with the research you have done in this area. I believe that this has led you to predict certain economic impacts from increasing the levels of education and work for our first nations. I'd like to start by asking you to share your research. What was the outcome of that research? Why do you it will have an impact on the economic outlook?

[Denise Amyot]

From a social and an economic point of view, everybody should be allowed the chance to work. To be able to feed your family is a matter of pride, and from the economic side, to contribute to society.

We are finding that if you provide the training for people to be able to contribute to society, to develop skills, then you are able to motivate people to be part of society and be engaged.

Let me give you a very neat example that was done in Yukon. A company needed truck drivers. Many companies need them. Unfortunately, the truck drivers came from the south. There was a big turnover, and they had to start training again. They decided to do a pilot project for 15 individuals who were living in the north and go to their community, so the students wouldn't have to go far from their community. The training was provided on site, and the company said right at the beginning that they were going to recruit 10 people if they were successful in the program.

They were so impressed with the way the students worked that they decided to recruit 12 of them. They said to the three others—all 15 were very successful in the program—that it was a matter of weeks or months before they would be recruiting them. They wanted to have another program similar to that.

The reason I give this example is that this is what is important very often with aboriginal communities, to offer the program, the training, on site. That's why some of our colleges.... There may be one college in a territory, but they have 25 learning centres to ensure training is happening in the community.

It motivates people. They realize that not only did they stay in their community and acquire new skills, but now they're able to sustain themselves and bring money to the family also.

We have many examples like that across Canada, and they have been very successful. It's important to recognize the importance of doing things like that. Sometimes it's difficult because there aren't a large number of people and sometimes people are not sure what skills they would like to have. That's why I mentioned the mobile trades training centres in my presentation, which circulate in different communities to entice people to discover the different trades. Hopefully, it will stimulate their passion for one of those trades.

[The Chair, Conservative, Phil McColeman]

Thank you, Mr. Shory. That's five minutes. It goes fast, doesn't it, sir?

We move to Mr. Cuzner from the Liberal Party for five minutes.

[Rodger Cuzner, Liberal, Cape Breton—Canso, NS]

Thank you, witnesses, for your presentations.

I'm going to try to get in two questions. I'll just throw them out, and you can divvy them up.

You talked about flexibility, and I fully appreciate the significance. You talked about the ASETS program and the inability of the restrictions.... Are there restrictions around pooling? Could you speak to that specifically? Are we able to address that?

As well, what's happening with the students who don't have the prerequisite skills? What are the community colleges doing for those students before they get any training? Are you guys able to do something there?

[Denise Amyot]

I'll answer the second one, and I'll ask my colleague to answer the first one because she knows the program better than I do.

We do two different types of things, but if I may, I will summarize because a number of them are explained in this.... We provide upgrading to ensure that people have the equivalent of a grade 12, because often people arrive at our colleges and they don't have that.