The Existing Policy Framework for the Strategy

Transcription

1 T O W A R D A Métis Economic Development Strategy REPORT 2 MARCH 2015 The Existing Policy Framework for the Strategy

2

3 DEVELOPING THE STRATEGY: The Existing Policy Framework for the Strategy 3 The Métis Nation The policies adopted by the Métis Nation itself, the federal and provincial governments, and industry will play a significant role in the development of the strategy. An important element in this is the extent of recognition of Métis Aboriginal rights (harvesting and lands) which triggers duty to consult and economic accommodation. The Métis Nation Economic Development Framework emerged out of a forum in Winnipeg in January 2009 where the MNC, its Governing Members and their capital corporations, business support units, employment and training institutions, and members of the Métis business community addressed the federal government s decision to adopt an opportunity-driven Aboriginal economic development policy. Its overall strategy is to capitalize on expanded opportunity to partner with the private sector and government to build human and financial capital and generate wealth from increased economic activity. The Framework consists of four components (see Diagram 1): business development; human capital development; community economic development; and partnerships and strategic policies. As residents and taxpayers of provinces and municipalities, Métis receive most of their physical and social infrastructure from these jurisdictions. This enables the MNC and its Governing Members to concentrate their infrastructure plans on economic and business infrastructure or heritage and cultural tourism projects. In so doing, the Framework seeks to build on the advantageous province-wide service delivery platforms and proven track record of the MNC Governing Members, their professionally managed arms- Diagram 1 Mé#s Na#on Economic Development Framework 2013 Business Financing Loan Capital Mé@s Capital Corpora@ons Mé@s Entrepreneurship Fund Equity Capital Clarence Campeau Development Fund Mé@s Economic Development Organiza@on Business Support Services Business Development Partnerships and Strategic Policies Duty to Consult and Accommodate Resource Revenue Sharing Equity Par@cipa@on in Major Projects Federal PSAB Policy Provincial Procurement Policies Private Sector Engagement Strategies Early Childhood Development K- 12 Post- Secondary Educa@on Endowments Ins@tu@ons Gabriel Dumont Ins@tute Louis Riel Ins@tute Rupertsland Ins@tute ASETS Appren@ces and Trades Special Needs (Disabili@es and Literacy Ini@a@ves) Mé@s Human Capital Development Community Economic Development Community Infrastructure Business Readiness Impact Benefit Agreements Community Investment Workforce Development Business Development Planning and Environmental Protec@on

4 4 TOWARD A MÉTIS ECONOMIC DEVELOPMENT STRATEGY length developmental arms and their system of democratic accountability. Loan Capital Providers (Capital Corporations) The Métis capital corporations (MCCs) are developmental lenders and investors in businesses that have difficulty accessing conventional financing. Of the 32 Aboriginal capital corporations in Canada, the Governing Members MCCs on the prairies account for a disproportionately large amount of loans made to individual small businesses as opposed to community ventures. In addition to financing, the MCCs provide business advisory and support services starting with the business plan and continuing throughout the period of the investment. They also have an excellent track record, rolling their original capital over in new loans multiple times. The MCC in Alberta, Apeetogosan Metis Development Inc, was initially capitalized by the Government of Canada with $8 million in 1988 and has never been topped up, providing $60 million in loans to 800 Métis businesses that have created or maintained 2,100 jobs. SaskMétis Economic Development Corporation (SMEDCO) was initially capitalized by the Government of Canada with $5 million in 1987 and has provided over $35 million in loans to more than 600 Métis businesses that have created or maintained close to 2,000 jobs. The Louis Riel Capital Corporation in Manitoba, was initially capitalized by the Government of Canada with $7.4 million in 1992 and has never been topped up, providing more than $35 million in loans to more than 600 Métis businesses that have created or maintained 1,800 jobs. Equity Capital Providers The Métis Nation equity capital providers are also developmental investors in businesses and communities that have difficulty accessing conventional financing. The Clarence Campeau Development Fund (CCDF) in Saskatchewan, the Métis Nation s largest equity capital provider, was established through an agreement of the Métis Nation-Saskatchewan and Government of Saskatchewan in In 2001, the Gaming Corporations Act recognized CCDF as a Crown Agency ( Métis Development Fund ) for the purpose of the Provincial Auditors Act but all voting members of the Board are Métis and appointed by the MN-S CCDF provides equity and loan capital for business development and supports community economic development and development of management skills and assistance to new and existing Métis owned businesses. It has funded more than 800 businesses for a total of $47 million with client equity of $24 million and $127 million in leveraged financing. CCDF s investees have created thousands of direct and indirect jobs and more than $7 has been generated for every dollar put out in terms of social and economic impact. ASETS Human Resources and Skills Development Canada (HRSDC) launched the Aboriginal Skills and Employment Training Strategy (ASETS) in 2010, replacing the Aboriginal Human Resources Development Strategy (AHRDS). ASETS aims to improve labor market outcomes by supporting training for skills that are in demand, foster partnerships with the private sector and the provinces, and emphasize increased accountability and results. A key focus is on providing Métis youth with sufficient skills to succeed in the job market and to close skills gaps with the general population, especially in terms of post-secondary diplomas and degrees.

5 DEVELOPING THE STRATEGY: The Existing Policy Framework for the Strategy 5 authorizing them to establish endowments at post-secondary institutions for the purpose of providing bursaries to Métis students. Educational Institutions Métis Nation educational institutions play an important role in maximizing the value of education, culture and training for Métis people and the Canadian economy. Their roles are diverse and varied. Foremost of these institutions are: Valine Gaudet, SIAST Electrician Student The five MNC Governing Members administer about $55 million annually in ASETS funding, by far the largest part of federal funding for Métis. The Métis ASETS holders have a total of 49 delivery sites across the Métis Homeland: 10 in Ontario; 11 in Manitoba; 11 in Saskatchewan, 10 in Alberta, and 7 in B.C. Métis ASETS holders in Saskatchewan and Alberta offer itinerant services periodically in several communities, with a mobile unit in Alberta visiting 6 or 7 communities regularly. From 1999 to March 31, 2013, Métis AHRDS/ASETS holders accounted for 91,774 clients served, 31,558 employed, and 6,825 returned to school. Common labour market programs include: Single seat purchase - the ASETS holder provides funding to eligible clients to pursue a course of study at a recognized educational institution; Project-Base funding - the ASETS holder in collaboration with a third party service provider funds specific and sometimes customized training for a group of eligible clients; and Targeted Wage Subsidy the ASETS holder provides a wage subsidy to employers who provide on-the-job training and/or job experience to an eligible client for a specific period of time. Métis ASETS holders also have a unique Métisspecific funding agreement with HRSDC Gabriel Dumont Institute of Native Studies and Applied Research Inc.: Established in 1980, the Gabriel Dumont Institute (GDI) serves as the educational arm of the Métis Nation Saskatchewan and offers a variety of accredited educational, vocational and skills training opportunities for the province s Métis in partnership with the University of Regina, the University of Saskatchewan, the Saskatchewan Institute of Applied Science and Technology, the province s various regional colleges, and Service Canada. GDI s first major program, the Saskatchewan Urban Native Teacher Education Program (SUNTEP) trains Métis teachers to meet the needs of the province s Aboriginal students in the K-12 system and serves as a model for Aboriginal adult education programs across Canada. Since 1980, over 1,000 students have graduated with a Bachelor of Education degree from SUNTEP which is offered in Prince Albert, Saskatoon, and Regina. Through the Gabriel Dumont College, GDI delivers the first two years of a Bachelor of Arts and Science degree through the University of Saskatchewan. GDI has been instrumental in preserving and promoting Métis culture. Towards these ends, it pursues a number of educational and cultural initiatives including Métis-specific curriculum and publishing, library information services, a museum and archives, and, in partnership with

6 6 TOWARD A MÉTIS ECONOMIC DEVELOPMENT STRATEGY SaskCulture Inc., the administration of the Métis Cultural Development Fund. GDI is also responsible for fulfilling the skills training needs of Saskatchewan Métis. Dumont Technical Institute provides community-based adult basic education and post-secondary technical education and skills training including certificate, diploma, trades, and apprenticeship programs across Saskatchewan. Since 2006, Gabriel Dumont Institute Training & Employment has delivered ASETS in Saskatchewan through delivery sites in 11 communities. Louis Riel Institute: Established by provincial legislation, The Louis Riel Institute Act, in 1995, the Louis Riel Institute (LRI) is the educational arm of the Manitoba Métis Federation. It purpose is to promote the advancement of education and training for the Metis people in Manitoba and foster an understanding and appreciation of the culture, heritage and history of the Metis people in Manitoba for the benefit of all Manitobans. LRI operates the Louis Riel Institute Adult Learning Centre that is partnered with the University of Winnipeg Collegiate, a university-preparatory high school. LRI is active in assisting Métis children and their families in the public school system with culturally supportive programs and initiatives. It has programs in inner city schools and a variety of parent/child early years initiatives which incorporate Métis culture and essential skills. LRI publishes many books on Métis culture and history written for various age groups from pre-school to adult. It produces Metis Educational Resource Kits for teaching tools and Michif language resources and DVD s for learning to speak Michif. LRI also delivers interpretive programming at the Riel House National Historic Site. Rupertsland Institute: The Rupertsland Institute Métis Centre of Excellence (RLI) is the educational and training affiliate of the Métis Nation of Alberta. It is governed by a professional Board of Governors comprised of representatives from the MNA Provincial Council, Métis business community, the University of Alberta, and industry. RLI has a full mandate on education from the MNA that now includes the support of Metis students starting in kindergarten and extending to those in post-secondary studies. It seeks to engage the Province of Alberta, the Government of Canada, learning institutions, industry and the Métis community in order to promote partnerships that enhance education, skills development, and employment opportunities for Métis people. RLI s research arm conducts labour market research and supports relevant studies that will produce a better understanding of the social, economic and cultural conditions of the Métis people, and measures that will enhance their individual and collective well-being within Canadian society. RLI s main service delivery arm is the Métis Training to Employment Program which manages and deliver programs that enable Métis individuals to pursue education, enhance their skill level, and find productive and wellpaying occupations and employment. RLI is the largest Métis ASETS holder in Canada. Endowment Funds Métis ASETS and educational institutions have managed to establish a source of funding for Métis students who are excluded from the federal government s Aboriginal education assistance benefits and for whom the cost of post-secondary education is often a major barrier. They have created endowments with colleges and universities that can access matching funds from their provinces; in Alberta, leveraging some $6.7 million to create 9 endowments worth a total of $13.4 million; in Manitoba, leveraging $6.5 million to create endowments worth a total of $12.9 million at 5 Manitoba universities; and in Ontario leveraging approximately $1.5 million in the $3.2 million of endowments created at over 30 Ontario colleges and universities. In Saskatchewan, GDI made a one-time contribution of about $2 million to an endowment it administers, matching an amount from the MNS when the endowment fund was created in the 1970s.

7 DEVELOPING THE STRATEGY: The Existing Policy Framework for the Strategy 7 Housing MNC Governing Members have been heavily involved in social housing for some time, going back four decades on the prairies. The nature and extent of their involvement varies from province to province but they all work toward meeting the social and economic need for affordable housing, generate economic activity in the construction of new projects and and repair of old units, and in some cases are assisting Métis individuals to build equity through home ownership. The Government of Canada announced in its 1996 Budget that it would offer provinces and territories the opportunity to assume the management and delivery of existing off-reserve federally-funded social housing and this has occurred in all the provinces within the Métis homeland with the exception of Alberta where Canada Mortgage and Housing Corporation (CMHC) directly administers a portion of the existing social housing portfolio. The Métis Nation of Ontario, as a member of the Ontario Aboriginal Housing Services, is partnering with the Government of Ontario in a First Nation, Inuit, Metis Urban and Rural (FIMUR) Housing Program as part of the Investment in Affordable Housing for Ontario program. FIMUR is designed to help move renters and affordable housing tenants into market housing through a continuum of housing options from supportive and transitional housing to affordable rental housing to home ownership. The MNO also provides a full range of property management services to the portfolio of rental properties under the Rural and Native Housing Program. Its property management arm, Infinity Property Services, builds skills within the Métis community through initiatives such as its Building Systems Technical Advisor Internship Program that was designed to develop a workforce of highly skilled building inspection and energy conservation advisors. The Manitoba Metis Federation manages 1,673 units throughout Manitoba under the Rural and Native Housing Program as one of the Community Housing Managers of Manitoba. Under the program, tenants and homeowners pay no more than 25% of their family income towards housing, with the subsidy provided jointly by the federal and provincial governments. During the federal stimulus period, the MMF received $4.3 million from the province to renovate 645 homes across Manitoba. The MMF also offers a lease-topurchase program enabling young and growing families in urban centres to build future equity. In Saskatchewan, most of the social housing stock is administered through community-based housing authorities. The Provincial Métis Housing Corporation, an arm of the MNS, provides technical and inspection services on behalf of the Saskatchewan Housing Corporation. The Métis Urban Housing Association of Saskatchewan Inc. (MUHAS), incorporated in 1992, consists of six member corporations providing approximately 1,400 units for families in the Battlefords, Lloydminster, Meadow Lake, Prince Albert, Regina and Saskatoon. The housing affiliate of the Métis Nation of Alberta, the Métis Urban Housing Corporation and its sister company, Métis Capital Housing Corporation (MCHC ) is the largest provider of affordable housing for Métis. It has more than 3,000 tenants in 800-plus housing units in 14 urban centres. In coming years, all the homes it currently manages under the federal government s subsidized mortgage program will join the large Métis Capital Housing Corporation, Edmonton inventory of housing already owned by the MCHC. An innovative partnership between MCHC, Habitat for Humanity Edmonton and CMHC involves the renovation of old housing stock or

8 8 TOWARD A MÉTIS ECONOMIC DEVELOPMENT STRATEGY the construction of new houses for Métis families on MCHC properties. MCHC sees this changing of rental property into homeownership having a huge impact on its ability to meet the demands and the needs of the growing Métis population in large urban centres where real estate prices are prohibitive for many. Heritage and Cultural Sites and Tourism The Métis Nation seeks to develop its heritage and cultural assets and tourism industry. Métis heritage and tourism themes and products span provincial boundaries and often relate to historic trade routes that predate the establishment of provincial boundaries. The development of these historic sites contributes to the preservation and promotion of Métis identity and culture as well as entrepreneurial and economic opportunities for Métis people in Canada s tourism industry. Attracting thousands of visitors, particularly foreign tourists, these sites make significant contributions to provincial economies. Métis Crossing: Métis Crossing is the flagship heritage and tourism project of the Métis Nation of Alberta that has been operational since 2005 and is part of a National Historic Site. Located 100 km. northeast of Edmonton on a 512-acre property acquired by the MNA, it is the restoration of what was a significant Métis village and farmstead in the 19th century and a major stopping point along the Victoria Trail. The MNA developed the earlier phase of the project, consisting of a restored fort and farms, campgrounds, zip lines, recreational facilities and demonstration sites, with contributions from the Métis business community, industry and the Province of Alberta. It is seeking funding to build an interpretive and conference centre that would allow year-round operation. Batoche: The site of the last battle of the Northwest Resistance of 1885, Batoche is a significant Métis heritage site and a natonal historical monument. The Batoche National Historic Site is under the shared management of Canada and the Métis Nation-Saskatchewan. The MNS hosts Back to Batoche Days each summer which is one of the Province premier tourism events. The MNS and local Métis communities are engaged in ongoing development of the site. Métis dancers at Back to Batoche Métis National Heritage Centre: The Manitoba Metis Federation is seeking to establish a national flagship institution for Métis culture and heritage in Winnipeg, the birthplace of the Métis Nation. It is partnering with the Friends of Upper Fort Garry that is undertaking a world-class heritage park and interpretive centre at Upper Fort Garry, the administrative centre of Rupertsland during the period of Hudson Bay Company rule where the first Métis provisional government under Louis Riel was established in The Friends of Upper Fort Garry have raised more than $10 million for the Upper Fort Garry Heritage Park and Interpretation Centre and have done a substantial transformation of the site. The MMF is seeking funding for the construction of the Métis National Heritage Centre within the Upper Fort Garry Heritage Park, with funds to be used for completing the design process, exhibit/ programming development, a staff recruitment and training plan, and capital for the building construction, furnishings and equipment.

9 DEVELOPING THE STRATEGY: The Existing Policy Framework for the Strategy 9 Government of Canada On June 29, 2009, federal Aboriginal Affairs Minister Chuck Strahl announced a new Federal Framework for Aboriginal Economic Development to focus the federal government s actions on increasing the participation of Aboriginal peoples in the Canadian economy. A new opportunity-driven approach to Aboriginal economic development was to be put into effect by maximizing federal investments to: strengthen Aboriginal entrepreneurship; enhance the value of Aboriginal assets; forge new and effective partnerships to maximize economic development opportunities; develop Aboriginal human capital; and better focus the role of the Federal Government. Government of Canada Gouvernement du Canada Federal Framework for Aboriginal Economic Development Implementation of Framework through Métis Nation Protocol This new approach, with efforts focused on generating opportunity-ready Aboriginal communities, viable Aboriginal businesses and a skilled Aboriginal workforce, had immediate appeal to the Métis Nation. Moreover, the new Federal Framework committed the Government of Canada to engage Métis people, businesses and communities by way of the Métis Nation Protocol in moving forward with the implementation of the Framework. In addition to providing for a Métisspecific path to implementing the Framework for Métis people, Minister Strahl recognized the Métis economic development institutions and their track record as important vehicles for its implementation. At a forum in Calgary in October 2010, Métis Nation leaders and senior management of economic development corporations aligned their own Framework more closely with that of the federal government. Notable federal actions and investments under the Federal Framework included: New Métis Nation Equity and Loan Capital Funds Under the Major Resource and Energy Development (MRED) initiative, AANDC participated in the capitalization of new Métis Nation equity capital funds in Manitoba and Saskatchewan to increase the availability of equity funding to medium and large Métis businesses to participate in major development projects and be active partners in joint ventures. Clarence Campeau Development Fund established the new fund in Saskatchewan (Métis Energy and Resource Program) with $5 million in capital contributed by Canada, $1 million by CCDF, and the Province of Saskatchewan committed a further $1.4 million to CCDF s overall portfolio of Métis business development programs. In Manitoba, a new economic development arm of the MMF, the Métis Economic Development Organization (MEDO), established the Métis Generation Fund with $3 million in capital contributed by Canada and $1 million by the Métis Economic Development Fund, itself a joint initiative of the Province and the MMF. The federal government also provided initial capitalization of a new syndicated loan pool to enable the MCCs on the prairies to access the

10 10 TOWARD A MÉTIS ECONOMIC DEVELOPMENT STRATEGY mid-range loan market ($250,000-$1 million). The Métis Entrepreneurship Fund (MEF) is jointly owned and managed by the MCCs and has an autonomous Board. It enhances the lending capacity of the MCCs and creates further opportunities for funding on loan requests which had previously been declined due to a $250,000 lending limit. This increased lending capacity will also strengthen the long term sustainability and viability of the MCCs. Community Economic Development Planning The Framework also provided for a Business Ready Investment Development Gateway (BRIDG) program focused on the need to make communities business ready in order to capitalize on opportunities unfolding through major resource development projects. BRIDG financing was used in a number of Métis communities in Saskatchewan to build capacity at the community level to make investment decisions through a structured decision making process. The BRIDG funded projects included: the Métis community of Pinehouse prior to its Collaboration Agreement with uranium mining corporations Cameco and Areva; four predominantly Métis municipalities in northwestern Saskatchewan comprising the Primrose Resources Corporation; and two southern Métis Nation-Saskatchewan regions (Métis Western Region 2 and Eastern Region 2) involved with Shore Gold on the development of Saskatchewan s first diamond mine. Developing Human Capital HRSDC provided a suite of labor market and skills development programs to support the Framework s priority of developing Aboriginal human capital. In 2010, in addition to replacing AHRDS with ASETS, HRSDC launched the five-year Strategic Partnership Fund (SPF) to encourage innovation and partnerships, test new approaches to the delivery of employment services, address systemic gaps in service delivery, and increase Aboriginal skills development and labor market outcomes. SPF investments included Derek Klassen, Red River College, Aircraft Maintenance & Manufacturing $3.6 million to the Métis Nation of Ontario for a Métis Northern Mining Strategy and $2.4 million to the Gabriel Dumont Institute for training and work experience in apprenticeship trades. An additional $8 million over three years was provided by GDI, the Government of Saskatchewan, the Saskatchewan Apprenticeship Trade Certification Commission and private sector apprenticeship employers throughout the province. GDI will work with partners to train educational counsellors who will coordinate apprenticeships between Métis workers and employers and develop a long-term strategy for apprenticeship programming. Forging New and Effective Partnerships The Framework aimed to bring together the experience and resources of willing partners including Aboriginal peoples, provinces and the private sector to take advantage of economic opportunities and to promote partnerships toward this end. The co-investments by Ottawa and the provinces in Métis economic development in recent years exemplifies this approach. As does the MEDS process itself, the regional engagement sessions and roundtable with industry, and the greater engagement and collaboration of the corporate sector with Métis businesses and communities. The power of partnering also played out within the Métis Nation economic organization; the Métis Entrepreneurship Fund providing larger loans to growing Métis businesses will enhance the sustainability of its owners, three Métis capital corporations, by giving them access to broader and more profitable investments while keeping additional costs to a minimum by building on the existing investment management platform.

11 DEVELOPING THE STRATEGY: The Existing Policy Framework for the Strategy 11 Province of Ontario Economic development and duty to consult are among the priorities of the Government of Ontario- Métis Nation of Ontario Framework Agreement ( and renewed in 2014) which envisages joint action to expand the capacity of Métis communities, businesses and individuals to participate in economic opportunities. An interim agreement on Métis harvesting rights concluded in July of 2004 and covering much of the province continues to guide the MNO and the Ministry of Natural Resources in the management of Métis harvesting rights in Ontario. The Province has been pro-active in resourcing the MNO for its participation in collaborative initiatives toward ensuring the fulfillment of the Crown s duty to consult and, where appropriate, accommodate Métis rights in the province. Two collaborative initiatives in the resource development sector are proving to be of particular importance for Métis economic development in Ontario. Renewable Energy The first emerged out of Ontario s Feed-in Tariff (FIT) that was launched in 2009 to encourage the development of renewable energy technology, attract investment and create new clean energy jobs in Ontario. One of the core goals of the FIT Program is to encourage the development of Aboriginal renewable energy projects. This is done through the creation of an Aboriginal contract capacity set-aside, reduced security payments, additional price incentives, the granting of priority points and the creation of an Aboriginal Energy Partnerships Program. an independent Board of Directors. MVDF will also provide business advisory and support services such as developing business plans, accessing professional assistance and on-going training and skills. Province of Manitoba The overall relationship between the Province and the Métis Nation as represented by the MMF in Manitoba is set out in the Province of Manitoba Métis Policy of September Its goal is to strengthen the capacity of the Métis people to address current and emerging economic and social issues and achieve greater self-reliance and socioeconomic well-being. The principles of the Manitoba Métis Policy guide the Government of Manitoba in the way it approaches Métis issues and are based on recognition, partnership, a comprehensive approach, capacity and accountability. The Policy framework provides the strategic approach for the Government of Manitoba in its relationships with Métis people and the MMF and is made up of four elements: enhancing Métis people s participation; developing better understanding; following a distinctions-based approach; and improving relationships. In 2012, the MMF entered into a Métis Voyageur Development Fund Founded in 2011, the Métis Voyageur Development Fund (MVDF) provides grants and loans of up to $500,000 to Métis entrepreneurs and Métis-owned businesses in the resource sector. It fills a longstanding gap in Métis-specific business financing in Ontario. The Province committed to a $30 million capital contribution over 10 years. Like the other Métis capital corporations, the MVDF has an arms-length relationship with the Governing Member through

12 12 TOWARD A MÉTIS ECONOMIC DEVELOPMENT STRATEGY harvesting agreement with Manitoba Conservation, a branch of the Manitoba provincial government, enabling Métis with MMF issued harvester cards to harvest on Crown lands in most of the province. Metis Economic Development Fund In March 2011, the Province of Manitoba and the MMF established the Metis Economic Development Fund to stimulate economic development activities of the Metis people throughout Manitoba. The Province agreed to initially capitalize the Fund with $10 million over a 5 year period, commencing in The Fund provides equity capital for Metis entrepreneurs and businesses to support economic development initiatives. The Fund co-invests with the MMF s equity capital provider, the Métis Economic Development Organization. Aboriginal Procurement Initiative The objective of the Aboriginal Procurement Initiative is to increase the participation of Aboriginal peoples and suppliers in providing goods and services to the Manitoba Government. To that end, Manitoba Procurement Services Branch introduced an Aboriginal Procurement Initiative (API) to increase the participation of Aboriginal businesses in providing goods and services to government. All departments were to increase the participation of Aboriginal business in providing goods and services to the Manitoba Government by incorporating the API into tenders. and Aboriginal Business Standard indicates that Aboriginal business participation is desirable but no points are assigned in the tender for Aboriginal participation since the requirement is for goods only, or is primarily for goods with a minor service component and subcontracting is not possible. Province of Saskatchewan The Government of Saskatchewan First Nation and Métis Consultation Policy Framework released in 2010 outlines the process to fulfill its obligation to consult with First Nations and rights-bearing Métis communities on decisions or actions that may impact Treaty or Aboriginal rights. A First Nations and Métis Consultation Participation Fund was established to support project specific consultations when a duty to consult has been triggered. Consultations are to be held with the elected leaders of those communities, in the case of the Métis the president of a Métis Nation Saskatchewan Local, unless that Local president has delegated this authority to the regional or provincial MNS leadership. The Government will consult with Métis leadership in communities or regions where Métis Aboriginal rights have already been recognized, such as in Northern Saskatchewan, but in areas where Métis Aboriginal rights have not API establishes four categories of Aboriginal procurement for the consideration of tender administrators. Two require Aboriginal participation: the Aboriginal Business Set-Aside or a procurement for a good or service that has been reserved for competition among Aboriginal business only; and Mandatory Aboriginal Business Participation or a condition of a tender that specifies a portion of the contract must be provided by an Aboriginal business. Two do not make Aboriginal participation mandatory but indicate that Aboriginal business involvement is desirable: Aboriginal Business Participation awards additional points scored during the evaluation to proposals that offer Aboriginal participation;

13 DEVELOPING THE STRATEGY: The Existing Policy Framework for the Strategy 13 yet been recognized, the decision to consult will be made on a case-by-case basis. Over the years, the Province has channeled most of its Métis-specific economic development investments through two institutions affiliated with the MNS: Gabriel Dumont Institute The Province s Budget included $10,607,295 in total funding for GDI. The Ministries of Advanced Education and Economy provide the funding consistent with the priorities of supporting Métis students participation and success in achieving their education and employment goals and ensuring an educated and skilled workforce to meet existing and future labor market demand. The funding was allocated among the various units of GDI: GDI s core operations; SUNTEP; Dumont Technical Institute (DTI) operations; DTI training programs and services; and scholarship funding. Clarence Campeau Development Fund Through the original agreement between the Province and MNS establishing the fund, CCDF receives a 6.25% share of provincial gaming revenues that are paid out by the Saskatchewan Community Initiatives Fund. In fiscal year , the amount contributed was $3,400,000 and it is expected that this contribution will grow in conjunction with gaming revenues. The Province has recognized the proven strength and success of this Métis Nation institution. Minister of the Economy Bill Boyd has stated: They feel this is a result of the strength of their lending and investment policies and the level of prudence they exhibit in their due diligence. This is also positive evidence of the degree of aftercare provided to their clients. Province of Alberta An Interim Métis Harvesting Agreement between the MNA and the Province of Alberta in September 2004 gave MNA members the right to harvest for food at all times of the year without a licence on all unoccupied Crown lands throughout the Province. Alberta terminated the agreement in 2007 and implemented a unilateral harvesting policy that recognized 17 Métis communities in parts of Alberta north of Edmonton. In January 2013, Alberta Aboriginal Relations Minister Robin Campbell stated that the province would begin working with the Métis later in the year to develop a consultation policy for industrial development. That policy is still under negotiation at the time of MEDS III. Métis Settlements of Alberta The CCDF provides debt and equity financing to Métis business owners who otherwise might not qualify for financing. Our ex-officio board members advise that despite the high risk that is typically inherent with developmental financing, the CCDF has a delinquency ratio that is similar to mainstream financial institutions.

14 14 TOWARD A MÉTIS ECONOMIC DEVELOPMENT STRATEGY The Province s approach to Métis economic development is guided by its agreements with the MNA and MSGC as follows: Agreement with Métis Nation of Alberta Alberta and the MNA signed a seven-year Framework Agreement in 2008 which aims to promote Métis economic and community well being. Under the Framework Agreement, the MNA also has sub-agreements directly with Alberta Advanced Education and Technology/ Alberta Education, and Alberta Employment and Immigration. To implement the objectives of the Framework Agreement, Alberta provides funding to the MNA. In addition, Alberta Housing and Urban Affairs provides funding to the MNAaffiliated Métis Urban Housing Corporation. Agreement with Métis Settlements General Council The Alberta-Métis Settlements Accord (1989) aimed to secure the 1.28 million Métis land base in Alberta and promote local autonomy and economic self-sufficiency. The Accord was implemented the following year through four pieces of provincial legislation: transfering title to Settlement lands to the MSGC and protecting that title in the Province s constitution; strengthening Settlements self-government at the regional and local levels; and staying litigation brought by the Settlements against Alberta over the management of natural resource revenues with a payment of $310 million to the Settlements over seventeen years. A Co-Management Agreement between the Metis Settlements and the Minister of Energy, a Schedule to one of the statutes, established rules for more effective Settlements participation in oil and gas development. It enabled the Settlements to negotiate a royalty, above the provincial royalty, with the successful bidder on a mineral lease, and an equity participation of up to 25% in any development. In March 2013, the Province and the MSGC signed a new 10-year $85-million funding agreement to improve infrastructure, education, and employment on the Settlements. Province of British Columbia While recognizing that the Métis constitute 30% of the Aborignal population in B.C, the Province does not participate in rights based discussions with the Métis. The Province does not recognize a legal obligation to consult with and accommodate Métis people as it is of the view that no Métis community in B.C. is capable of successfully asserting site specific Section 35 rights. In 2006, the Province and Métis Nation British Columbia signed a bilateral agreement called the Métis Nation Relationship Accord to formalize their relationship and jointly commit to address social and economic issues for Métis people. Under the Accord, the Province works with the MNBC and Métis communities to close the gaps in education, health, housing and economic development. Notable provincial support was involved in MNBC s purchase of a building in Abbotsford for the Métis Skills and Employment Centre and in the implementation of Grade 4 Métis Cross-Curricular Unit in elementary schools to reinforce and regenerate Métis identity, culture and history in the classroom. MNBC is the only MNC Governing Member without a capital corporation but Métis in B.C. are eligible for business financing and support services from a number of pan-aboriginal capital corporations and trust companies that receive support from the Province s First Citizens Fund, a perpetual fund created in 1969 for the cultural, educational and economic development of Aboriginal people in British Columbia. In 2001, the Government of British Columbia doubled the net value of the Fund from $36 million to $72 million. The Private Sector Canadian business has a vested interest in a long-term Métis economic development strategy in order to meet some of the country s foremost economic challenges going forward. They are trying to contend with the uncertainty surrounding major resource development projects and the country s looming labour and skills shortage. The policy recommendations of the country s leading

15 DEVELOPING THE STRATEGY: The Existing Policy Framework for the Strategy 15 business organizations in this regard helped to inform and shape the development of the strategy. Major Projects For industry, the need to facilitate stronger partnerships with First Nations, Inuit, and Métis communities in resource development projects is dictated by the stakes of billions of dollars in natural resource investment. According to John Manley, President of the Canadian Council of Chief Executives, (CCCE) representing the CEOs and entrepreneurs of 150 leading companies: You have to find a negotiation arrangement where everybody benefits. The problem from the business side is more one of predictability of process. For corporations, which look at potential projects from a costbenefit perspective, the downside of not having all interested parties on board and pulling in the same direction quickly becomes insurmountable. Can you look at this, and construct a road map to completion within a reasonable period of time? Because if you can t get there in a reasonable period of time, or if you can t figure out how you are going to manage all of the different and contradictory interests, the odds are, your capital will be better deployed elsewhere. The CCCE prepared a report for the Premiers, Framing An Energy Strategy for Canada, in advance of the Council of the Federation meeting in the summer of 2012, with important recommendations on Aboriginal participation in major energy and mining projects. It called for new thinking on the process, scope and funding of consultation and engagement. It recognized that there is no one-size-fits-all approach when it comes to the large array of resource development projects and the number of distinctive Aboriginal communities. The report called for a broader application of the best practices currently being undertaken in some development projects. In this regard, it identified Impact and Benefit Agreements (IBAs) that some Aboriginal communities have entered into with resource companies to secure broader benefits from such projects including revenue sharing, minority equity interests and full partnership. It also viewed as a best practice the large number of Aboriginal-owned businesses that have grown up to service the needs of resource projects. Gaps in Labor Market For the business community, the issue of increased Aboriginal and, more specifically, Métis participation in the workforce is seen within a broader labour market challenge facing the country: Canada faces a looming labour and skills shortage driven by an aging population, low birthrates and increasing workforce specialization in the economy. These challenges are key barriers to Canadian competitiveness and productivity. To solve these challenges, business will need to engage previously underutilized pools of labour, including the Métis community. The work undertaken by the Chamber of Commerce on the prairies identified the advantages to partnering with the Métis: The Métis have the highest education levels and best labour market outcomes of any of Canada s three Aboriginal peoples, despite limited government funding and the lack of a coherent policy framework.

16 16 TOWARD A MÉTIS ECONOMIC DEVELOPMENT STRATEGY For business, the combination of underemployment, a younger than average population, and individuals rooted in the local community make the Métis community an ideal source of talent. The Chamber also identified the unresolved issues that hinder the ability of industry to effectively engage the Métis community. The first group of issues relate to gaps in educational attainment and training which are barriers to Métis filling positions in an increasingly specialized Canadian economy. Closing the Gap prioritized high school completion within a comprehensive and community approach supportive of Métis identity and culture and of Métis students and their parents. Closing the Gap: Partnering for Métis Labour Market Success Toolkit for Business Closing the Gap prioritized a tripartite solution involving education authorities, the business community and Métis representatives to combat the underemployment of Métis youth, an approach also highlighted in the report of the CCCE. It put forward a number of key policy recommendations in this regard including: 3 promoting the use of co-operative work placements among Métis students during high school, where the student could gain work experience, earn income and high school credits at the same time; educating high school students about the differences in terms of employment, training and career prospects between the designated trades-apprenticeship programs and the nondesignated trades-apprenticeship programs, so that students will be able to make the best decision regarding career choices; increasing workplace preparedness and employability by applying funding to programs and institutions that focus on pre-employment and applied skills training for job seekers; increasing the number of Métis apprentices entering and graduating from designated apprenticeship programs by working with industry associations such as Red Seal to develop a program to bridge experienced Métis tradespeople into designated apprenticeship programs through the accreditation (partial or complete) of hours earned in non-designated trades employment; working to foster collaborative partnerships between business and Métis employment and training organizations that would encompass agreements on training, pre-employment standards and certification delivered through Métis education/employment centres and if necessary, post-secondary institutions; working with industry to implement Métis specific awareness training in their places of business to create a welcoming work environment; and increasing access to capital for Métis economic development funds through strategic partnerships, including equity, debt financing and venture capital investments. The second group of unresolved issues that hinders the ability of industry to effectively engage the Métis community relates to the lack of legal and policy clarity surrounding Métis issues, despite the recognition of Métis as one of the three Aboriginal peoples in the Canadian constitution. For the Chamber, this policy void has led to a lack of adequate and stable funding for Métis education, training and business development

17 DEVELOPING THE STRATEGY: The Existing Policy Framework for the Strategy 17 programs relative to other Aboriginal peoples. It has left industry unsure on how to engage Métis communities; the Chamber states that clarifying issues surrounding Métis rights, responsibilities and entitlements will help to increase certainty for business, resulting in increased investment and employment. The policy void has also blurred the distinctions between Aboriginal peoples, with adverse effects for the Métis: There has been a tendency for Métis issues to be subsumed into broader Aboriginal issues. This has resulted in policy that is not designed to reflect the unique cultural, geographic, legal and economic realities that exist today within Canada s Aboriginal community, hindering our ability to maximize our workforce competitiveness. In 2012, the Canadian Chamber of Commerce adopted a policy resolution that had been submitted by its Calgary and Saskatoon branches, encompassing key policy recommendations from the Chamber s work on the prairies. The President of the Canadian Chamber, the Hon. Perrin Beatty, conveyed its recommendations in a letter to Prime Minister Harper a week before the Prime Minister s meeting with MNC President Clément Chartier on April 29, 2013 to discuss economic priorities. The Canadian Chamber recommended that the federal government: 1. Prioritize improving the educational outcomes of the Métis, focusing on high school completion and workplace training, in partnership with business. 2. Ensure equity in federal funding for Métis education and employment programs, relative to other Aboriginal groups. This funding will originate from within existing federal budget envelopes. 3. Work to ensure that any employment, education and economic development policies are designed to reflect the unique characteristics of the Métis. 4. Work in collaboration with Métis groups to clarify Métis rights, responsibilities and representation, thus spelling out the rules of engagement for government, business and Métis organizations.