Archived - Summative Evaluation of the Elementary/Secondary Education Program on Reserve

1.1 Overview

This summative evaluation of the Elementary/Secondary Education (ESE) Program was conducted in time for consideration of policy authority renewal in 2012-13. It follows a formative evaluation of the ESE Program in 2010, which provided a preliminary examination of the state of information on First Nations education at Aboriginal Affairs and Northern Development Canada (AANDC) and was required to approve the continuation of terms and conditions of the program as of March 31, 2010.

This evaluation was conducted concurrently with the summative Evaluation of Post-Secondary Education (PSE) programming in order to obtain a holistic understanding of AANDC's suite of education programming and its impact on First Nation and Inuit communities. This approach allowed the evaluation team to minimise costs and reduce the burden for individuals and communities by collecting all the information at one time.

1.2 Program Profile

1.3 Current Evaluations

The current evaluations of ESE and PSE looked at the entire suite of education programming offered by AANDC. In the past, AANDC has evaluated components of its education programming, such as the Evaluation of the First Nations SchoolNet Program (2009), the Evaluation of the Special Education Program (2007), the Summative Evaluation of the Cultural Education Centres Program (2005), and the Summative Evaluation of Band-Operated and Federal Schools (2005). While evaluating programs from this lens has its benefits, the result is a lack of understanding of how all programs affect overall student outcomes. It is expected that evaluating Aboriginal education in this light will provide the Department with a clearer sense of the current state of Aboriginal education and insight on future direction.

Internally, the Branch's evaluation work is informed by its Engagement Policy that provides Branch staff with a framework for including Aboriginal people and organizations in the evaluation process. The underlying principle is that, for evaluations to be relevant to, and have meaning for, Aboriginal people, Aboriginal people need to be fully involved in the evaluation process. As part of this evaluation, Aboriginal involvement was attained through interviews, surveys and case studies (including focus groups).

Furthermore, an Advisory Committee was established, composed primarily of national First Nation and Inuit education organisations, and with representation from AANDC. The purpose of the Advisory Committee was to provide guidance and insights on the development of evaluation tools, and on broader interpretation of findings and forming recommendations. The Advisory Committee representatives met at various stages of the evaluation process to discuss and provide advice on:

1. Terms of Reference
2. Methodology Reports
3. Acquisition of Qualified Consultants
4. Potential Key Informants, Case Study Communities and Literature
5. Technical Reports
6. Evaluation Findings
7. Draft Final Evaluation Report

2.1 Evaluation Scope and Timing

The evaluation examined the following components of ESE programming: instructional services for Band Operated Schools, Federal Schools and Provincial Schools; Elementary and Secondary Student Support Services; New Paths for Education; Teacher Recruitment and Retention, Parental and Community Engagement, First Nation Student Success Program, Cultural Education Centres, Special Education, Education Partnerships Program and First Nations SchoolNet.

The Terms of Reference were approved by AANDC's Evaluation, Performance Measurement and Review Committee (EPMRC) on May 14, 2010. This evaluation provides information on program relevance, performance, and efficiency and economy to support the management of program authorities in compliance with the Policy on Transfer Payments

Four contractors, Donna Cona Inc., Harris/Decima, KPMG and the University of Ottawa were contracted to undertake primary data collection (see Section 2.3). Data collection and analysis was undertaken primarily between September 2010 and April 2012.

2.2 Evaluation Issues and Questions

In line with the revised evaluation questions approved at EPMRC in September 2010, the evaluation focused on the following issues:

• Relevance
  • Is there an ongoing need for the program?
  • Is the program consistent with government priorities and AANDC strategic objectives?
  • Is there a legitimate, appropriate and necessary role for the federal government in the program?
• Performance
  • To what extent have intended outcomes been achieved as a result of the program?
  • To what extent has the program influenced the constructive engagement and collaborative networks to further education and skills development?
  • What are the factors (both internal and external) that have facilitated and hindered the achievement of outcomes? Have there been unintended (positive or negative) outcomes? Were actions taken as a result of these?
  • To what extent has the design and delivery of the program facilitated the achievement of outcomes and its overall effectiveness?
• Efficiency and Economy
  • Is the current approach to programming the most economic and efficient means of achieving the intended objectives?
  • How could the program be improved?

2.3 Evaluation Methodology

The following section describes the data collection methods used to perform the evaluation work, as well as the major considerations, strengths and limitations of the report and quality assurance.

2.4 Roles, Responsibilities and Quality Assurance

EPMRB of AANDC's Audit and Evaluation Sector was the project authority, and managed the evaluation in line with EPMRB's Engagement Policy, outlined in Section 1.3, and the Quality Assurance Strategy (QAS). The QAS is applied at all stages of the Department's evaluation and review projects, and includes a full set of standards, measures, guides and templates intended to enhance the quality of EPMRB's work.

Oversight of daily activities was the responsibility of the EPMRB evaluation team, headed by a Senior Evaluation Manager. The EPMRB evaluation team was responsible for overseeing all aspects of data collection and validation, as well as composition of the final report and recommendations.

All information from consultants was thoroughly reviewed by the Project Authority (EPMRB) for quality, clarity and accuracy. Subsequently, the consulting firms thoroughly reviewed the analysis of data conducted by EPMRB to ensure their information was well-captured. The Advisory Committee assisted in the development of tools, interpretation of findings and the development of final reports.

In addition, status updates and key findings were regularly provided to EPMRC for strategic advice and direction.

3.1 Continued Need

Is there an ongoing need for investment in First Nations Education programming?

Finding: This evaluation found that there is a need for continued investment in the Authorities for Elementary/Secondary Education stemming from projected population growth and from the need for significant improvements in student outcomes.

The need for continued investment in Education programming is amply demonstrated by the significant gap in educational opportunities and outcomes between First Nation and other Canadian learners^{Footnote 17}. Findings in the current study are consistent with observations made in the Formative Evaluation of the Elementary/Secondary Program On Reserve^{Footnote 18} - that the expected growth in the on-reserve population will undoubtedly generate greater needs for ongoing investment in education services and the sustainability of programs and facilities to accommodate this growth. Population projections obtained from Statistics Canada show a projected growth in the population of children on reserve of approximately 15 percent, or an additional 30,000 children (see Figure 1) over the next two decades. This does not include the potential implications of persons relocating to reserves as a result of amendments to Bill C-31^{Footnote 19} and Bill C-3^{Footnote 20}.

Among the greatest concerns raised by First Nation interview and case study participants were significant ongoing and projected increases in operational costs relative to available resources. It was broadly agreed among most case study and interview participants, both First Nation and government, that there are serious gaps in the ability of First Nation schools to attract and retain teachers and support staff with competitive salaries and benefits, and in the ability to manage increasing costs for programming and infrastructure. There was broad consensus that these issues need to be addressed strategically and expeditiously to ensure improvements in student outcomes.

Text description of Figure 1: Projected Population Growth by Age Category of Interest from 2010 to 2026

This figure is a graph indicating the projected population growth by age category each year during the period of 2010 to 2026. There are three age categories represented by independent lines: 0-18 years, 19-64 years, 65 years and over. The population rates are indicated on the 'y' axis and the years are indicated along the 'x' axis.

The 0-18 age category in 2010 is listed at approximately 175,000 and progresses to 200,000 by 2022. By 2026, the population rate for this age category reaches approximately 210,000.

The 19-64 age category had the most pronounced population growth. The 2010 rate began slightly below 250,000 and consistently progressed at a 30 degree trajectory, ending at just under 350,000 by 2026.

The 65 years of age and older category has a slow growth rate, beginning at approximately 25,000 in 2010 and progressing at a consistent rate, reaching 50,000 by 2026.

As stated in the Report of the National Panel on First Nation Elementary and Secondary Education On Reserve^{Footnote 21}, the lack of a high school education is strongly tied to significant unemployment, high use of social assistance and a high incidence of involvement in the justice system. Given the broad and excessive social costs associated with these elements, coupled with the current rate of graduation (estimated between 25-30 percent on reserve and 35-40 percent for reserve students attending off reserve, according to Nominal Roll data), and the potential for successful First Nation graduates to address projected labour shortages over the next two decades, there is likely a far greater cost associated with status quo than with strategic investments into the future.

Case study and interview participants frequently raised the issue of transferability of skills and knowledge from schools on reserve to secondary schools off reserve. It was noted that a key priority of education programming investment needs to be in ensuring that students in any given grade on reserve are receiving equal quality instruction and transferable knowledge and skills as those in provincial schools to increase the probability of success.

3.2 Alignment with Government Priorities

3.3 Role of the Federal Government

Is the current role of the Government of Canada legitimate, appropriate and necessary for the improvement of First Nations education success?

Finding: The role of the Government of Canada in ESE programming is generally appropriate; however, policy changes with respect to service delivery and local operational control may have implications on this role in the future.

All AANDC participants stated that the role of the Government of Canada, and specifically of AANDC, was appropriate with respect to ESE programming. The Reforming Education Initiative was frequently cited as the ongoing mechanism of the Government's prioritising its support of First Nations to better ensure positive student outcomes. There were also references made to the Government's stated notions that First Nations youth represent an enormous potential for the current and future labour market, and that currently the potential is not being met.

Similar to issues discussed in Section 3.2.1, however, the precise role of the Government has the opportunity to evolve given the major reforms underway, and the desire to increase First Nation control of First Nations education. While there was no clear sentiment expressed by interview participants of the broad role of the Government needing to change, as discussed in Section 4.4, issues with respect to jurisdiction and control, as well as evidence of a need for broader education initiatives from early childhood, and potentially innovative structural changes designed to better meet learning needs, have all been raised. Evidence from this study, and that of the National Panel on First Nations Education, have pointed to key aspects needing change, which may have implications on the Government's current specific roles in program design and delivery.

4.1 Achievement of Intended Outcomes

To what extent have intended outcomes been achieved as a result of AANDC programming?

Finding: It is the finding of this evaluation that the intended outcome of comparable education opportunities and results to the Canadian population is not being achieved.

Evidence from case studies and key-informant interviews is consistent with notions in the National Panel on First Nations education that suggest First Nation students do not have comparable education opportunities to other Canadians. Issues related to this lack of comparable opportunities are discussed in detail in sections 4.3 and 4.4. Without comparable opportunities, there can be no reasonable expectation of comparable outcomes, and it is clear from the evidence below that neither the opportunities nor outcomes are comparable.

As shown in Figure 2 and as discussed in the Formative Evaluation of ESE^{Footnote 31}, data from Statistics Canada shows that while the rates of Aboriginal Canadians with a high school diploma or greater living off reserve have typically been about 20-30 percent lower than the Canadian average, the gap is slowly narrowing. The same cannot be said of those living on reserve. Generally speaking, the on-reserve population had only seen a five percent increase in the proportion of individuals with a high school diploma or higher on reserve – from about 25 percent to 30 percent of adults under 25 between 1996 and 2006.

Text description of Figure 2: Proportion (%) of individuals by Age Group, Status (Aboriginal Off Reserve, Aboriginal On Reserve, Non-Aboriginal), Gender, and Census Year with a High School Diploma or Higher

This figure shows a graph comparing the proportion of people with a high school diploma or higher by gender, by status, by year, and by age group of interest.

The age groups of interest (20 to 24 and 25 to 29) are segmented along the horizontal x axis. Each cluster of bars on the graph represents a status (non-Aboriginal, Aboriginal Off-reserve and Aboriginal On-Reserve) by gender, year (1996, 2001 and 2006) and age groups of interest. The proportion of those with a high school diploma or higher is indicated along the vertical y axis.

Within the age group of 20 to 24 years, approximately 80% of the Non-Aboriginal population (78% of males and 83% of females) had a high school diploma or higher in 1996, compared to approximately 52% of the Aboriginal Off-Reserve population (51% males and 53% females) and 33% of the Aboriginal On-Reserve population (32% of males and 35% of females).

In 2001, approximately 83% of the Non-Aboriginal population (80% of males and 85% of females) ages 20-24 had a high school diploma or higher, compared to approximately 56% of the Aboriginal Off-Reserve population (54% males and 85% of females) and 37% of the Aboriginal On-Reserve population (36% of males and 41% of females).

In 2006, approximately 87% of the Non-Aboriginal population (85% of males and 89% of females) aged 20-24 had a high school diploma or higher, compared to approximately 67% of the Aboriginal Off-Reserve population (65% males and 69% females) and 38% of the Aboriginal On-Reserve population (36% of males and 42% of females).

Within the age group of 25 to 29 years, approximately 81% of the Non-Aboriginal population (78% of males and 83% of females) had a high school diploma or higher in 1996, compared to approximately 56% of the Aboriginal Off-Reserve population (54% males and 59% females) and 39% of the Aboriginal On-Reserve population (41% of males and 43% of females).

In 2001, approximately 84% of the Non-Aboriginal population (82% of males and 86% of females) aged 20-24 had a high school diploma or higher, compared to approximately 64% of the Aboriginal Off-Reserve population (61% males and 67% of females) and 46% of the Aboriginal On-Reserve population (43% of males and 49% of females).

In 2006, approximately 89% of the Non-Aboriginal population (85% of males and 92% of females) aged 20-24 had a high school diploma or higher, compared to approximately 73% of the Aboriginal Off-Reserve population (71% males and 75% females) and 47% of the Aboriginal On-Reserve population (44% of males and 51% of females).

Examining Nominal Roll data for the years subsequent to 2006, there appears to have been little to no improvement. The drop-out rates^{Footnote 32} have remained consistent, although significant improvement was noted in the pre-grade 11 cohorts. Being above the average age for any given grade was strongly associated with an increased likelihood of drop-out, and the likelihood becomes stronger the older the student. Generally speaking, the drop-out rate is higher among females before grade 9; and roughly even between males and females for higher grades. Being older than average within a grade, however, has a far greater impact on the likelihood of males to drop out than of females. In particular, males over 18 are far more likely to drop out and this trend becomes progressively sharper with age^{Footnote 33}.

The average age of a school-aged student dropping out is 17.5 years old and as shown in Figure 3, the drop-out rates increase sharply with age and overall the rate is high, from about five to eight percent on average in any given school year for students between grade 9 and 12, and much higher for older aged students. It is important to note that these figures reflect only official and logged drop-out (a student who was present in the previous year and is not enrolled the following year but did not graduate) thus, the actual figure may be underestimated.

Text description of Figure 3: Drop-out Rates by Age Collapsed across 2006-07 to 2010-11

This graph represents the drop-out rates by age collapsed across 2006-07 to 2010-11. The 'y' axis measures the percentage of withdrawals that are greater than zero, whereas the 'x' axis measures "leavers' age". The drop-out rates increase sharply with age, beginning at 15 years old. Between age 20 and 53 the rate remains above 10% and does not surpass 20%. Age 53 drop-out rates rise slightly to 21%, but decrease to around 17% by age 55. The drop-out rate significantly increases to 23% by ages 57-58.; The rate further peaks at 39% for 60 year olds and dips to the lowest point (approximately 9%) since the teenage demographic, at age 62. From that point the drop-out rate experiences another sharp increase, peaking at the highest point in the graph, approximately 43% for 67 year olds. Finally, the graph depicts one final drastic dip, hitting 10% in the 69 year old age bracket.

In examining those that dropped out, approximately 23 percent eventually returned, but only 13 percent of those who returned and reached their final year actually graduated.

The rate of graduation^{Footnote 34} has shown virtually no improvement at approximately 34 percent overall. Looking only at school-aged individuals (21 or younger), the rate has remained steady at 37 percent. The average age at graduation is 20 years old and this has not changed over time.

Examining regional trends, there was a significant^{Footnote 35} improvement in Ontario from about 23 percent to 30 percent and this was particularly pronounced for female students, from about 23 percent to 34 percent. Atlantic region had the highest rate of graduation overall and also showed significant^{Footnote 36} improvement from about 55 percent to 65 percent.

The graduation rate was higher for females (33 percent) than males (30 percent), and while the percentage difference appears small, it represents a difference of about 200 students per year and is significant.^{Footnote 37} This trend, however, reverses with age with males tending to have a higher likelihood of graduating among cohorts over 21 – a trend that increases with age.^{Footnote 38} Thus, the data appear to suggest that older males are more likely to drop out than females and more likely to graduate. In other words, among older cohorts, male students in their final year will more often either graduate or drop out, whereas female students, while less likely to graduate, are also less likely to withdraw.

For the cohort^{Footnote 39} examined in this study, only 44 percent progressed through grades (to the start of grade 12) within the expected time frame. Nearly a third of these students repeated one grade and 15 percent repeated two grades. More than 600 students in this cohort repeated three or more times within the five years examined. There is no obvious gender difference in these trends. Importantly, education administrators surveyed in this study suggested schools were generally well-equipped to prepare students to transition through earlier school years, but much less so in later years, and certainly there was very little optimism about the ability of schools to facilitate transitions to post-secondary or the labour market.

When speaking with educators, there was a general sentiment that while there is little to no improvement in raw outcome figures, they have noticed some improvement in attitudes toward education in their communities, among their leadership and among students. They further indicated that it will take time for these changes to translate into obvious results.

Survey participants suggested that where there was strength in the quality of learning, it came mostly from the dedication of staff and innovative programming at the school level. With respect to off-reserve schools, issues mostly concerned the lack of culturally-relevant learning, the tendency to push students through the system without adequate preparation, and issues with transferability of knowledge from on- to off-reserve school systems (mostly from elementary to secondary).

4.2 Program Influence on Collaborative Engagement and Networks

To what extent has the program influenced collaborative engagement and collaborative networks to facilitate education and skills development?

Finding: Continued work is needed to better facilitate constructive engagement and collaborative networks between First Nation education authorities, and where appropriate, with provincial governments or other organisations, and there is evidence that AANDC programming is improving in this regard.

Partnerships were said to be integral to future feasibility of a strong First Nations education system, according to participants from all groups. There were key examples from First Nation representatives of partnerships with larger organisations and neighbouring First Nations where collaboration was highly beneficial. It was noted that AANDC must support this type of cooperation in its programming and incorporate partnership development in its support to education programming – which was noted as beginning to improve in recent years with the Education Partnerships Program.

For example, communities that worked together on coordinated transportation, or shared social services, such as social workers and special needs specialists, were noted as seeing improvements in this regard in recent years. Partnerships with mainstream school systems also support the inevitable transition from band-operated schools to public schools off reserve.

Support from the tribal councils and bands was also seen as crucial. There are varying degrees of involvement in education via the leadership, but ultimately First Nation participants viewed their engagement as highly valuable when it happens. Some noted extensive efforts by their band and/or tribal council to facilitate cooperation and the availability of better services, such as school psychologists and recreational staff. There was certainly a sense that leadership needs to take an active role in encouraging students to attend school and succeed through a combination of: facilitating better labour market opportunities locally; promoting labour market opportunities broadly; acknowledging and encouraging students for their efforts and success; speaking directly to students at general assemblies periodically; and lobbying for more effective programming and better resources.

There was also a strong sentiment, especially among AANDC participants, that there needs to be a strengthening of partnerships between First Nation communities and provincial education ministries, as well as leadership and specific Aboriginal education policies embedded within the ministries of Education. Specifically, it was felt that First Nation authorities, school boards and other education service providers could mutually benefit from cooperation to facilitate an economy of scale and better shared services to ensure equity, and a better understanding of First Nation student needs when attending schools both on and off reserve. Additionally, it was noted by respondents from all groups that strong links to provincial ministries were essential because so many of their students eventually attend provincial schools, especially for secondary. It was noted that the perceived gap in readiness for secondary could be better addressed with better linkages and coordination between provincial ministries, bands and tribal councils.

4.3 Factors Facilitating or Hindering Achievement of Outcomes

What factors have facilitated or hindered the achievement of outcomes?

Finding: Student success is associated with parental engagement, the level of education in the community and the strength of the local economy. There are deeper issues related to the historical trauma of residential schools that may be interrelated with these factors.

Finding: Community governance, the quality of teacher instruction and the quality of school curriculum were suggested as key factors affecting student success.

Among First Nation participants in this study, where there were successful educational outcomes, they were mostly attributed to good leadership and governance, and a stronger economy. This latter finding is unsurprising in light of the fact that when examining data on communities, the strength of the labour market and household income were strongly associated with positive educational outcomes.^{Footnote 40} For example, Figure 4 shows a significant^{Footnote 41} tendency for higher median household incomes to be associated with lower drop-out rates as defined by Nominal Roll. Unsurprisingly then, there is also a significant relationship between higher income and higher graduation, as shown in Figure 5.

The education level in the community as measured by the CWBI was the strongest predictor of graduation among the four composite CWBI indicators^{Footnote 42}, although income and labour force were also strong predictors. By far, the best predictor of drop-out rates appears to have been labour force activity.^{Footnote 43} Other factors such as community size and isolation were examined, and while community size did not appear related to educational success in Nominal Roll indicators, there was a significant^{Footnote 44} tendency for greater isolation (as measured through geo-zone^{Footnote 45}) to be associated with lower graduation, as shown in Figure 6.

Nominal Roll data also suggests that the likelihood of drop-out is dependent on school type, with high school students in band-operated schools significantly more likely to drop out than those in provincial and private schools.^{Footnote 46} Similarly, the graduation rate is highly dependent on school type, with those attending grade 12 on reserve in any given year are far less likely to graduate (25.8 percent) than those in provincial (36.7 percent) or private (39.7 percent) schools.^{Footnote 47}

Text description of Figure 4: Scatterplot of Median Individual Income and Community Drop-out Rate

This graph is a scatter plot representation of the median individual income in relation to the community drop-out rate. The 'y' axis charts the drop-out rate in increments of 10, and the 'x' axis lists median individual total income in increments of $10,000 ending at $40,000.

There are approximately 275 points scattered in a pattern that is concentrated between the $5,000 to $20,000 range on the 'x' axis (median individual total income) and between 0 and 15 on the 'y' axis (WD Rate). There are a few outliers within the same 'x' axis range, but they are featured within the 25 to 30 range on the 'y' axis.

The mean begins at 9 on the WD rate axis (y) and has a steady decline to 0, connecting with the $35,000 point on the 'x' axis (median individual total income).

Text description of Figure 5: Scatterplot of Median Individual Income and Community Graduation Rate

This graph is a scatter plot representation of the median individual income in relation to the community graduation rate. The 'y' axis charts the drop-out rate in increments of 20, and the 'x' axis lists median individual total income in increments of $10,000 ending at $40,000.

The graph has approximately 250 points scattered on the chart, but mainly concentrated between the $7,000 and $20,000 range on the 'x' axis. The points are more dispersed along the 'y' axis, with most outliers reaching as high as 90 and the highest point positioned at 100. The bulk of the points are concentrated between 5 and 50 on the 'y' axis.

The mean begins at 30 on the graduation rate axis (y) and has a gradual incline to 50, aligning with the $40,000 range indicated on the 'x' axis (median individual total income).

Text description of Figure 6: Mean Community Drop-out Rate by Geo-zone

This figure illustrates mean community drop-out rates by geo-zone. The 'y' axis has the mean graduate rate plotted in increments on 10. The 'x' axis lists the geo-zones separately, numbered from 1-4. The first geo-zone reaches a mean graduation rate of approximately 38. The second geo-zone's median graduation rate is approximately 26, whereas the third geo-zone is the lowest among all regions at 16.

Perhaps unsurprisingly, a significant^{Footnote 48} predictor of the likelihood of graduation is the rate of progression through grades. The likelihood of graduation for the cohorts examined dropped between five to seven percent for each extra year taken to complete any given grade between grade 8 and 11. Among graduates in any given year, only half of them had not repeated any grades past grade 8. Additionally, consistent with observations regarding school type, students in band-operated schools are significantly more likely to take longer to progress through grades than those in provincial or private schools.^{Footnote 49} For any given cohort of the five examined in this study, among grade 12 students, 44 percent had progressed from the start of grade 9 to the start of grade 12 within three years.

Survey participants saw strength in the ability of schools to equip students to progress through elementary school, but less so through high school, and much less so to post-secondary or into the labour market. This was not attributed to the secondary schools being weaker than elementary; rather to the cumulative skills of students not being attained over time – with respondents suggesting more students are being "pushed ahead" than actually learning. The sentiment across interview, survey and case study participants was that students are not learning through elementary school and are, thus, at a serious disadvantage at the start of secondary, causing a cumulative impediment to progression and very low graduation success.

The most pervasive programming issue affecting success, according to First Nation participants, was the ability to pay teachers competitive salaries to facilitate recruitment and retention at the same level as provincial counterparts. They suggested that the result was a high proportion of inexperienced teachers and a high staff turn-over. They further suggested that where many students transfer into the provincial system for secondary school, they are at a significant disadvantage because of an often weak or inconsistent teaching base at the start, coupled with transitional issues and a lack of culturally-relevant teaching off-reserve.

The quality of teacher instruction was generally not viewed favourably by most survey participants. Two key themes emerged: For teachers off reserve, the main concern was a lack of awareness and understanding of First Nations culture. This concern was also expressed by some respondents with respect to teachers from outside the reserve coming to the community to teach. For teachers on reserve, the main concern was a lack of professional development opportunities for those who need to enhance their skills, coupled with an inability to attract and retain the most qualified teachers because of a lack of available funds to make teaching salaries and benefits competitive.

There were mixed views on the impacts of local school curricula, and those views were correlated^{Footnote 50} with views on the quality of teacher instruction. In much of the commentary from both case study and survey participants, this largely was related to perceptions of the retention of native language and culture. The vast majority of respondents indicated that the retention of native languages and culture has at least somewhat of an impact on student success, but very few suggested that students are actually retaining their culture and language.

Most participants suggested that the most significant factors affecting student success were parental engagement and poverty. This was linked by participants to the historical trauma of the residential schools system, and parents' resultant resistance to strictly enforce school attendance and studying, and the tendency to create a distance between school and home life. Consistent with the analysis of student outcomes, participants also indicated that the strength of the local economy can mediate this factor, in that with a stronger local economy and job market, parents and the community in general are much more likely to encourage active participation and school success.

Additionally, most First Nation respondents spoke at length about addictions and poor lifestyle behaviours among both parents and children as being major impediments to school success. Links were also made between these issues and the legacy of residential schools.

First Nation participants highlighted the point that improvement in student outcomes is unlikely where basic communities needs, such as basic infrastructure, safety, quality and sustainable housing and family stability are unmet.

Most survey participants had a generally positive view of their community's governance structure to have a positive impact on student outcomes. There seemed to be a mix of opinion, however, with respect to whether the community's system of governance should have more or less involvement in education both among those with positive and negative views of their community's governance. In other words, among those who viewed it positively, some felt that way because the band did not interfere, and others because the band were heavily involved. Among those viewing it more negatively, the same reasons were applied. Overall, however, there was a general desire for more involvement from the band, rather than less. There was a large mix of ideas on what the band could improve in terms of governance, but by far the most common issues raised were the need to not allow education programming to fall victim to political issues, and the need for more advocacy for education funding.

Other issues raised by education administrators included the presence of positive role models; the prevalence of bullying, drugs and alcohol; the general health of the community (mostly related to parenting, drugs and alcohol, and the availability of services); the availability of extra-curricular activities; and the quality of education facilities. Ultimately, however, when asked to comment specifically on factors outside of the education system that factor in to student performance, the overwhelming majority of respondents referenced drug and alcohol issues; parenting and parental engagement; child nutrition; and the local economy and poverty.

4.4 Design and Delivery

To what extent has the design and delivery of the program facilitated the achievement of outcomes and its overall effectiveness?

4.4.1 Available Resources for School Operations and Student Support

Finding: Expenditures to First Nations and tribal councils for the operation of schools does not appear to account for actual cost variability applicable to the needs and circumstances of each community or school, and particularly the cost realities associated with isolation and small population. There is a need for a more strategic understanding of resource needs and allocation methods.

A key issue that has been raised in numerous reports and discourse is an apparent gap in the amount of resources available to schools on reserve compared to their provincial counterparts. As stated in the recent report of the National Panel on First Nations Education On Reserve, there are serious concerns with uncertainty and unpredictability of funding, particularly given proposal-based funding requirements. The figures regarding the actual gaps in resource availability vary; however, analysis completed for this study (data gathered by KPMG from provincial education ministries and AANDC), assessing 2009 revenue and expenditure figures from most provincial school boards across Canada and comparing them with AANDC expenditures reveals interesting findings.

First, it is important to note that expenditure and revenue are not captured in a consistent fashion within regions, between regions, or between AANDC and provincial districts. To the extent possible, adjustments were made to figures to allow for meaningful comparison. Second, it is apparent from the data that there is a great deal of regional variability^{Footnote 51} in these comparisons, and thus, broad comparisons or commentary on a national level would not be productive or informative.

Funding for total education expenditures on reserve exceeded that of provincial districts on average between $5,000 and $7,000 per full-time equivalent (FTE) in British Columbia, Ontario and the Maritimes. There was no apparent difference in the remaining regions. Importantly, however, these costs are largely made up of broader operations and maintenance, as well as project costs, which would naturally be higher on reserve given the higher operating costs and the complex needs of students living in distant and sparsely populated communities^{Footnote 52} and thus these figures do not undermine the point of underfunding. Based on the notion expressed by interview, case study and survey participants – that the resource gap pertains largely to instructional services (mostly teacher salaries) – the current analysis confirms that this gap exists.

While broadly examining a funding amount per-FTE for instructional services, it is only in Saskatchewan that provincial divisions receive significantly more per FTE for instructional services – in the remaining regions the average difference is either nil or First Nation schools receive more.

In comparing these differences, however, it is essential to consider the relative size of each district, considering that an economy of scale will no doubt apply to districts with larger populations and higher numbers of FTEs. Conducting the same comparison of funding for instructional services only for districts where the FTE count is less than 1000 – characteristic of most First Nation communities – there is a marked and somewhat dramatic change in these differences for all regions.

With the exception of Manitoba, for districts with these smaller populations, the provincial districts receive more than First Nation counterparts for instructional services. For British Columbia, the difference reversed from the previous analysis to funding per FTE for instructional services on average to $2,029 greater than their First Nation counterparts. It also changed dramatically in Quebec, with an average $5,953 per FTE higher in the one provincial district with fewer than 1000 FTEs. For all other regions^{Footnote 53}, the difference widened markedly, as shown in Figure 7 below. This analysis was replicated with all funding types combined and the same general findings were observed.

Given the larger expenditures on instructional services funding per-FTE in provincial districts with smaller populations, it is clear that provinces are accounting for a higher cost per FTE associated with a smaller pool of students and thus, an economy of scale. This relationship was very apparent in provincial districts (with the exception of Manitoba), and does not appear to be the case on-reserve. On reserve, the only regions observing any clear relationship between the number of FTEs and instructional services funding per FTE on reserve were Manitoba^{Footnote 54} and Ontario.^{Footnote 55} Additionally, while there was no ability in this study to assess the relationship between remoteness and funding per-FTE in provincial schools, it was clear that there is no obvious relationship between remoteness and funding on reserve.

Text description of Figure 7: 2009 Instructional Services Dollars per FTE between AANDC and Provincial Districts, by Region for Districts with Fewer than 1000 FTEs

This graph illustrates the 200- instructional service dollars per FTE between AANDC and Provincial Districts, by region for districts with fewer than 1,000 FTEs. Rates are represented in separate columns for both provincial as well as First Nation (FN) divisions, and are indicated for each region represented on the graph.The 'y' axis measures the mean adj per FTE in increments of 10,000. The 'x' axis represents the regions.

Quebec provincial divisions reach 13,000 whereas the FN division rate is 7,000. The Ontario provincial division measures in at 17,000, and demonstrates the largest gap out of all the regions between the two columns, as the FN rate is listed at 9,000. The Manitoba region is the only representation on the graph where the provincial rate (6,000) is lower than the FN rate (7,000). In Saskatchewan, the provincial division's mean FTE rate is 11,000 versus 7,000 for the FN division. In Alberta, the provincial rate is 9,000 and the FN rate is 8,000. Finally, in British Columbia the provincial division rate reaches 13,000, whereas the FN rate is listed at 11,000. The confidence interval for this graph is 95%.

Taken together this analysis suggests that AANDC does not account for actual cost variability in the same way as provincial education ministries. Deeper analysis of provincial district formulas showed that the broad rates and formulas applied in provincial districts do not translate into the actual expenditures at the school board level. This is because funding allocations in provincial districts are not made based on raw formulae in isolation; rather based more on the specific and unique circumstances in each school.

Assessing the gap in funding between First Nation and provincial schools by assigning average dollar funding gaps per-FTE is not meaningful or useful as the real issue is cost in light of need in each school, which would be more aligned to provincial methodology. If comparability of educational opportunity is the goal, then provincial methodologies, not just raw funding amounts, need to be fully understood and applied to First Nation districts to fully appreciate the degree of gap.

There is also a need to account for the key differences between First Nation and provincial divisions in the realities on reserve that do not exist in other "like" communities off reserve. It also needs to be considered that most First Nation divisions have very few revenue streams and an extremely limited ability to leverage resources, which sets them at an immediate disadvantage when compared to the typical provincial school district. Additionally, the fact that much of the funding for instructional services is proposal-based, and not based on a consistent and predictable funding stream as observed in provincial districts, makes long-term planning for teaching and resources a significant challenge.

Even understanding the differences in revenue to districts between on- and off-reserve communities, it has become clear through examining provincial formulae that there are numerous and quite complex methods of leveraging resources from multiple streams and allocating funds. Thus, there is a need for considerable research into better understanding resource needs and applying resource allocations strategically based on what a First Nation school will need to meet standards in teaching, quality of facilities and access to programs.

6.1 Conclusions

Results over the past two decades have not been encouraging with respect to student success, and all information included in this evaluation strongly suggests a need for significant revision to AANDC's approach to ESE programming. While there is no doubt that the Government has an integral role to play in ensuring ESE programming is functional and is providing First Nation students with learning opportunities and environments equitable to their counterparts off reserve, there is also a clear need to better ensure programming and delivery are suited to First Nation learner needs and optimal school operations on reserve.

The general role of the Government of Canada in ESE programming is generally appropriate; however, policy changes with respect to service delivery and local operational control may have implications on this role in the future. As demonstrated in the evidence presented above, there is a strong need for the Department to consider significant revisions to its approach to ESE program delivery to address key deficiencies in performance. To that end, this report has observed the following:

Relevance

1. There is a need for continued investment in the Authorities for Elementary/Secondary Education stemming from projected population growth and from the need for significant improvement in student outcomes.
2. Education authority activities are generally aligned with Government of Canada priorities; however, recent major reforms are reflective of the need to better align activities and better ensure improvements in student success.
3. The priorities as stated by First Nation Education Authorities and those of AANDC are aligned insofar as the need to address marked gaps in educational opportunities and success. However, First Nation participants emphasise key priorities in the areas of cultural and language retention as being critical to success, and emphasise the need to recognise key differences in learning needs and the current state of education gaps, rather than simple notions of comparability.
4. The role of the Government of Canada in ESE programming is generally appropriate; however, policy changes with respect to service delivery and local operational control may have implications on this role in the future.
   
   Performance
5. The intended outcome of education opportunities and results that are comparable to the Canadian population is not being achieved.
6. Continued work is needed to better facilitate constructive engagement and collaborative networks between First Nation education authorities, and where appropriate, with provincial governments or other organisations, and there is evidence that AANDC programming is improving in this regard.
7. Student success is associated with parental engagement, the level of education in the community and the strength of the local economy. There are deeper issues related to the historical trauma of residential schools that may be interrelated with these factors.
8. Community governance, the quality of teacher instruction and the quality of school curriculum were suggested as key factors affecting student success.
9. Expenditures to First Nations and tribal councils for the operation of schools do not appear to account for actual cost variability applicable to the needs and circumstances of each community or school, and particularly the cost realities associated with isolation and small population. There is a need for a more strategic understanding of resource needs and allocation methods.
10. Jurisdictional issues, implications for the provision of second- and higher-level services, and early childhood and adult education are considerations of significant importance in future policy development.
11. Many First Nation schools and communities are not adequately resourced to provide proper assessments and services to meet the needs of First Nation students with special needs.
    
    Efficiency and Economy
12. The current approach to programming may not be the most efficient and economic means of achieving the intended objectives of ESE programming.

6.2 Recommendations

It is recommended that AANDC:

1. Develop a strategic and transparent framework for the investment of new funds that are explicitly allocated to facilitate improvements in student success in the short-term;
2. Undertake further research into funding allocation methodologies that are equitable to provincial approaches, while at the same time accounting for cost realities on reserve;
3. Ensure that future policy and program exercises develop clearly defined roles, responsibilities, and accountabilities for Elementary and Secondary Education;
4. Explore and pursue options for the comprehensive development of second and higher-level services where possible and appropriate to reduce administrative burden and overhead costs, while supporting First Nations in developing long-term capacity for service management;
5. Work with First Nations to develop strategies to strengthen culture and language retention as it relates to better student outcomes;
6. Examine the implications of integrating support for early childhood education in AANDC's education portfolio;
7. Examine the implications of integrating support for adult education in AANDC's education portfolio; and
8. Develop a strategy to work with First Nations in building the capacity to strengthen the provision of special needs assessments and services.

APPENDIX – Education Programs Intended Outcomes

AANDC Education Case Studies

School Principals, Managers / Directors of Education

Name of First Nation: ___________________________________________

Position / Type of Respondent: ____________________________________

Length of time in Position: _______________________________________

I would like to lead a discussion with you about local education programs and services. To guide us, I want to discuss several different aspects of the local education programs and services. These areas include:

• Parental involvement (parents volunteer, parents respond to letters sent home)
• Student involvement (volunteers, attend events, sit on committees)
• Community involvement (volunteers, attend events, sit on committees)
• Cultural inclusion (language course, culture in the curriculum)
• First Nation directed and controlled education

The following questions provide a framework for our discussion, and not all questions will apply to each interview. Please offer any information or perspective that you feel would be of value.

Before we begin, I want to mention that this evaluation follows the Personal Information Protection and Electronic Documents Act, as well as the Privacy and Access to Information Acts. As such, we would like to ensure that you fully understand the purpose of this evaluation. If you do not, please feel free to ask me more questions. Further, your name will not be associated with any of the data collected, the data will be securely stored and all information will be disposed of after five years.

I would like to tape our session. We are taping for several reasons: 1) it allows me to hold a conversation with you as opposed to being focused on note-taking; 2) it will allow for an improved record of the information you are willing to share with me today, and 3) it provides for a richer and more comprehensive analysis and reporting of what we are able to record. Your name and identifying information will be removed from any written records created from your interview. A summary of your interview can be emailed to you, for your own use. If you so wish, you may review the notes and make corrections as you see fit and send those along back to us. The data you provide will be stored in a security protected system both on the computer and in hard copy. Do you have any questions before we begin?

1. What is your definition of educating children in preparation for their lives as adults? [refer to laminated Card A to help facilitate discussion] (probes: A. What are their educational needs as infants, children, teenagers, and adults? B. What is the Ideal means for addressing the full educational needs of infants, children, teenagers, and adults? C. What are your limits in understanding what is best; do you feel you could adequately comment on how to best meet the needs?)
2. Please describe the current education system offered through your Band. Please comment on the ways in which each of these types of services are provided:
   1. How does the education authority work? (probes: Does it have strong relationships with the community, parents and students; Does it coordinate an advisory committee, Parent Council, or Student Council; does the authority's office have its own targets for success defined and action taken to meet those goals; How are new programs implemented; do teachers, principals, families, community leaders, or other community members take part in designing the way education is delivered and designed?)
   2. How does/do the school(s) work to meet the basic needs of those students in need? (probes: How many counsellors are employed and how do they work to meet student needs; Do you have child and youth workers and how do they help students; Are there after-school and weekend programs; are there other support programs (e.g., breakfast and/or lunch programs); How are other community service providers linked directly to students in-need of extra supports (e.g., Mentors, Leaders, Guardians, Police, Social Services, a network of providers that case conference).
   3. What kind of outreach and linkages does/do the school(s) do between student groups at school and between the school and the community? (probes: Does the school put on community feasts/gatherings, how often; Are socials held at the school for students or parents; How are parents involved in the day-to-day school environment (e.g., home-visiting, parent supports/counselling).
   4. What types of student data do you collect and how is it stored? (probes: How are student data analyzed; Are data linked back to student success indicators; Is there a system in place that enables you to know if student targets are met).
   5. How are students supported to reach high-levels of self-confidence and academic achievement? (probe: In what ways are tutoring services provided; Are any other programs that target building a belief system around academic achievement offered (e.g., counselling, mentoring programs, guidance from specially trained teachers, specific credit-based courses, scholarships/bursaries, and physical activity); Are there any school courses that are designed around ensuring these elements are met and are there systematic checks to ensure this is happening and they are effective; How are high school students linked to the adult world: such as college courses, volunteer program, work for pay program, summer job opportunities, and exchange programs).
   6. How does the school exemplify an environment with cultural understandings of all staff and students? (probe: Would you characterize the school(s) as having a welcoming environment that promotes and embraces culture and traditions; do teaching staff have opportunities for professional development and access to cultural curriculum and resources specific to some courses, and grades; How are language, culture, history, and cultural-relevance a part of the core subjects; Are Elders and Cultural Teachers brought into the school(s); Is there a Cultural room designated with resources).
3. Now I'd like to show you three models and ask you to place your First Nation's education programs and services within one of the models or to map out the way you see it on a blank model or a blank page. [Interviewer: explain the models, Cards D-F, and give respondent a blank model and a blank page, Cards G/H, and a pen]
4. How does the current AANDC funding and the various programs your Band receives funding under, support and limit this First Nations children's ability to have their full educational needs met? [ask respondent to complete Card C for the programs he/she is aware that are offered within this First Nation] (probes: A. What are the specific strengths and weaknesses of the way you receive funds? B. What are the strengths and weaknesses of what you can do with the AANDC funding you receive? C. What are the strengths and weaknesses of the current resources you have in-place to offer educational services (e.g., other federal/provincial government programs, or private sector, such as colleges/universities)? D. What are the additional needs of students beyond what AANDC provides funding for? E. What needs do students have that you feel are beyond the scope of what an educational system can offer?)
5. To what extent do AANDC's administrative systems and operational practices make it possible for this First Nation to deliver elementary/secondary programming in a cost-effective manner? What are some of the barriers? What are some of the efficiencies?
6. Are the current AANDC Education programs the most economic and efficient means for reaching First Nations student success? Do the costs outweigh the current outcomes or vice versa?
7. How do the various authorities impede or enhance the programs and services this First Nations educational system offers to its membership? Specifically, please discuss each of: A. Band Council, B. regional management organization, C. AANDC region, D. AANDC headquarters, and E. other education authorities (such as the local off-reserve school board/school)?
8. What current mechanisms are in-place that let you know how well student success is being achieved? (probes: A. How do you define student success? B. How are you measuring success rates? C. What are your current rates of success? D. Can you share (give) any data with me? E. What are your success targets for five years from now? F. What key factors will contribute to you improving student success over the next five and ten years?)
9. In what ways have these [show Card B] achievements been recently reached among students from this First Nation?
10. How does this First Nation as a whole, both support and limit student's ability to have their full educational needs met? (probes: A. What barriers, if any, exist that prevent different/alternative educational approaches from flourishing? B. What kind of support does the education department get from the community to support student success? C. In what ways do parents support and get involved in the school, why and why not? D. In what ways do students support and get involved in the school, why and why not?
11. How does/do this First Nations school(s) work to both support and limit student ability to have their full educational needs met? [show Card A] Again, go back to the life cycle and the educational programs and services available for infants, children, teenagers, and adults. (probes: A. What are they doing right? B. What are they doing wrong? C. What areas could they easily change to improve student success? D. What areas are difficult to change that impact student success? E. What could change, but would take more work/money/support?)
12. [if off-reserve school that this reserve's students attend] How does/do the current off-reserve school(s) education programs and services both support and limit First Nation student's ability to have their full educational needs met? [show Card A] Again, discuss the educational programs and services off-reserve that your band members attend for infants, children, teenagers, and adults. (probes: A. What are the programs and services doing right? B. What are they doing wrong? C. What areas could they easily change to improve First Nation student success? D. What areas are difficult to change that impact First Nation student success? E. What could change, but would take more work/money/support?)
13. With regard to student success, think back ten years (what first hit your mind when you thought back to 2000), and five years ago (what comes to mind about the 2005 mark). How have the achievements of the students changed with regard to: [show Card B]
14. Now let's talk about where this First Nations education goes from here? [Interviewer: show the models again, Cards D-F, and give respondent a blank model and a blank page, Cards G/H, and a pen], let's draw this First Nations Education Programs and Services as you think they need to grow in order to better attain optimal student success? Again, you could use a blank paper of the blank model to map it out. (probes: A. What are the needs of students in the future? [show Card A] B. What are the best practices of this future educational system? C. What are the new approaches as well as programs and services you would see being offered?)
15. Do you have any final comments or thoughts you can share?

Text description of The Seven Stages of Life

Graphics developed from teachings shared by Pauline Shirt, Cree, 5th Degree Medawin, Toronto Elder

Good Life 0-6 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Wondering 7 - 13 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Fast Life 14 - 20 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Wandering 21 - 27 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Parenting 28-34 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Teaching 42-49 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Education Authority
With Minimal Activities

Text description of Education Authority With Minimal Activities

Models adapted from Urban Aboriginal Education Pilot Project: Provincial Evaluators Findings, FINAL REPORT, 03 March 2011, by Johnston Research Inc.

1. Education authority commitment (Secondary Focus)
2. Focus on urgent needs of First Nation students (Secondary Focus)
3. Focus on outreach, Student-Data and linkages for First Nation students (Secondary Focus)
4. Focus on self confidence and academic needs of Focus on outreach, Student-Data and linkages for First Nation students in select settings (Primary Focus)

Education Authority With Activities

Text description of Education Authority With Activities

Models adapted from Urban Aboriginal Education Pilot Project: Provincial Evaluators Findings, FINAL REPORT, 03 March 2011, by Johnston Research Inc.

1. Increased Education Authority commitment (Secondary Focus)
2. Focus on urgent needs of First Nation students (Secondary Focus)
3. Focus on outreach student-Data and linkages for First Nation students (Primary Focus)
4. Focus on self confidence and academic needs of Focus on outreach, Student-Data and linkages for First Nation students in select settings (Primary Focus)

Education Authority With Many Activities

Text description of Education Authority With Many Activities

Models adapted from Urban Aboriginal Education Pilot Project: Provincial Evaluators Findings, FINAL REPORT, 03 March 2011, by Johnston Research Inc.

1. Increased Education Authority commitment (Secondary Focus)
2. Focus on urgent needs of First Nation students (Secondary Focus)
3. Focus on outreach, Student-Data and linkages for First Nation students (Tertiary Focus)
4. Focus on self confidence and academic needs of First Nation students in select settings (Primary Focus)
5. Focus on cultural presence for all staff and students in select or all settings (Primary Focus)

School Programming and Data Tool

Name of First Nation: ________________________________________________

I need your assistance in completing this environmental assessment tool that will assess the complex systems within your community and your community's education system.

Principals of each school should first be approached to complete this Tool; they may choose to appoint someone once they have reviewed what we are asking.

ENSURE THESE NAMES MATCH: Situational Perspective Tool

School A:  ___________________________________________________________________

2010/11 Enrolment in A: _________ ; if off-reserve 2010/11 add non-FN enrolled: _________

School B:  ___________________________________________________________________

2010/11 Enrolment in B: _________ ; if off-reserve 2010/11 add non-FN enrolled: _________

School C:  ___________________________________________________________________

2010/11 Enrolment in C: _________ ; if off-reserve 2010/11 add non-FN enrolled: _________

School D:  ___________________________________________________________________

2010/11 Enrolment in D: _________ ; if off-reserve 2010/11 add non-FN enrolled: _________

School E:  ___________________________________________________________________

2010/11 Enrolment in E: _________ ; if off-reserve 2010/11 add non-FN enrolled: _________

Basic Descriptors of Key Activities

Students, aged 16 and Over who are Involved at School

Name of First Nation: ___________________________________________

Location of School and Grade: ____________________________________

Length of time in that school: ____________________________________

I would like to lead a discussion with you about local education programs and services. To guide us, I want to discuss several different aspects of the local education programs and services. These areas include:

• Parental involvement (parents volunteer, parents respond to letters sent home)
• Student involvement (volunteers, attend events, sit on committees)
• Community involvement (volunteers, attend events, sit on committees)
• Cultural inclusion (language course, culture in the curriculum)
• First Nation directed and controlled education

The following questions provide a framework for our discussion, and not all questions will apply to each interview. Please offer any information or perspective that you feel would be of value.

Before we begin, I want to mention that this evaluation follows the Personal Information Protection and Electronic Documents Act, as well as the Privacy and Access to Information Acts. As such, we would like to ensure that you fully understand the purpose of this evaluation. If you do not, please feel free to ask me more questions. Further, your name will not be associated with any of the data collected, the data will be securely stored and all information will be disposed of after five years.

I would like to tape our session. We are taping for several reasons: 1) it allows me to hold a conversation with you as opposed to being focused on note-taking; 2) it will allow for an improved record of the information you are willing to share with me today, and 3) it provides for a richer and more comprehensive analysis and reporting of what we are able to record. Your name and identifying information will be removed from any written records created from your interview. A summary of your interview can be emailed to you, for your own use. If you so wish, you may review the notes and make corrections as you see fit and send those along back to us. The data you provide will be stored in a security protected system both on the computer and in hard copy. Do you have any questions before we begin?

1. How should children and youth be educated in preparation for their lives as adults? [refer to laminated Card A to help facilitate discussion] (probes: A. What are their educational needs as infants, children, teenagers, and adults? B. What is the Ideal means for addressing the full educational needs of infants, children, teenagers, and adults? C. What are your limits in understanding what is best; do you feel you could adequately comment on how to best meet the needs?)
2. Where do you go to school (on- or off-reserve)? How well is your school performing, how well are students doing in your school? (probes: A. How do you define a successful student? B. What are the challenges for students in reaching that success? C. What is working well for students?)
3. How well would you say students within this First Nation are doing with reaching these [show Card B] achievements, most recently?
4. How does this First Nation as a whole, both support and limit student's ability to have their full educational needs met? (probes: A. What barriers, if any, exist that prevent different/alternative educational approaches from flourishing? B. What kind of support does the education department get from the community to support student success? C. In what ways do parents support and get involved in the school, why and why not? D. In what ways do students support and get involved in the school, why and why not?
5. How does the school you attend work to both support and limit First Nation students' ability to have their full educational needs met? [show Card A] Again, go back to the life cycle and the educational programs and services available for infants, children, teenagers, and adults. (probes: A. What are they doing right? B. What are they doing wrong? C. What areas could they easily change to improve student success? D. What areas are difficult to change that impact student success? E. What could change, but would take more work/money/support?)
6. Now let's talk about where this First Nations education goes from here? [show Card A] Again, discuss the changes that will best help this First Nations' people do well in school as infants, children, teenagers, and adults? What else should stay that same – what is just right, now?
7. Do you have any final comments or thoughts you can share?

Text description of The Seven Stages of Life

Graphics developed from teachings shared by Pauline Shirt, Cree, 5th Degree Medawin, Toronto Elder

Good Life 0-6 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Wondering 7 - 13 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Fast Life 14 - 20 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Wandering 21 - 27 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Parenting 28-34 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Teaching 42-49 years
Infant > Child > Youth > Adult > Parent > Grand Parent > Elder

Immediate Outcomes

1. First Nations students actively participate in elementary and secondary education
2. Learning environments with appropriate education programs and support services are in place
3. Supported First Nations and Inuit students participate in post-secondary education
   
   Intermediate Outcomes
4. First Nations learners progress in their elementary and secondary education, including students with special education needs reaching their full potential
5. First Nations and Inuit post-secondary students progress in their program of study
   
   Ultimate Outcome
6. First Nations and Inuit learners achieve levels of education comparable to other Canadians
   
   Strategic Outcome
7. Individual, Family and Community Well-Being for First Nations and Inuit