JustResearch Issue 15

Research in Profile (cont'd)

Research in Profile

Opportunities in Aboriginal Research: Results of SSHRC’s Dialogue on Research and Aboriginal Peoples

Craig McNaughton and Daryl Rock, Social Sciences and Humanities Research Council of Canada (SSHRC)[21]

Purpose of the paper

In March 2002, as part of an overhaul of its strategic research programming, the Board of Directors of the Social Sciences and Humanities Research Council (SSHRC) requested staff to develop Aboriginal research as a priority area.

Working with advice from a number of key Aboriginal organizations and individuals, a decision was made to launch a thorough, multi-stage public dialogue with all stakeholders interested in research on, for, by and with Aboriginal peoples. Over 500 individuals from a wide variety of Aboriginal, academic, government and non-governmental organizations participated in SSHRC’s Dialogue on Research and Aboriginal Peoples. This paper presents the results of the Dialogue in the form of both potential program initiatives and policy considerations.

Structure of the paper

The paper is divided into two main sections:

assessment and evaluation designed to enhance program results.

Essential argument in the paper

SSHRC’s dialogue process has served to develop two complementary approaches to Aboriginal research – one focused on joint promotion of knowledge opportunities; the other on issues of equity.

The first approach envisions a set of measures focused on SSHRC’s primary mandate – promotion of the knowledge opportunities available through collaborative initiatives such as:

  1. creation of strong research partnerships with Aboriginal communities (via community organizations);
  2. supporting research on Aboriginal systems of knowledge; and
  3. strategic investment in the research capacity of Aboriginal and non-Aboriginal researchers interested in careers in Aboriginal research.[22]

The second approach envisions a set of measures designed to correct situations in which positive and full development of the research potential represented by Aboriginal researchers and their respective knowledge traditions is impeded:

A. SSHRC’s Dialogue process

1. Aboriginal research

The Dialogue on Research and Aboriginal Peoples reflects a clear shift away from the ways in which research has been understood and organized in relation to Aboriginal peoples. Once understood more as intriguing or pertinent research objects, Aboriginal peoples are increasingly seen as researchers and research partners conducting research within Aboriginal knowledge traditions, using Aboriginal methodologies as well as methodologies drawn from interaction with non-Aboriginal intellectual traditions.

At the same time, non-Aboriginal researchers are seen less as the conventional “external experts” and increasingly as equal partners involved in developing new understandings of Aboriginal knowledge and ensuring that research and research training directly benefit Aboriginal nations and communities.

In this context Aboriginal research is more a method of study than an area of study. In its emerging conception, “Aboriginal research” is research that derives its dynamic from traditions of thought and experience developed among and in partnership with Aboriginal nations in Canada and other parts of the world.

2. Council’s starting point on Aboriginal research

In March 2002, SSHRC’s Board of Directors identified four strategic priorities based on earlier consultations with the research community: culture, citizenship and identities; environment and sustainability; image, text, sound and technology; and, Aboriginal peoples.

“Aboriginal development” (the term used at the time to designate Aboriginal research issues) was understood as “an issue that is growing among several federal departments, [an area that has] been identified by the federal government as one of its priority issues…”. Drawing on consultations with the academic community in 2001, it was recognized that a very wide range of Aboriginal research themes [were] possible: “cultural heritage (art, language, traditions); Aboriginal governance; health care; community development and healthy living; erosion of Aboriginal cultures; the role of Aboriginal women in traditional culture and modern society; Aboriginal identities vis-à-vis the 1995 Indian Act; best practices in developing strong aboriginal communities….”.[23]

Indeed, the existence of a multitude of Aboriginal research themes was confirmed by the submissions received from both Aboriginal and non-Aboriginal researchers in September 2002 following the Dialogue’s national call for briefs.

3. An emerging paradigm shift

SSHRC’s Dialogue on Research and Aboriginal Peoples began in earnest with the arrival of an unsolicited brief from the Saskatchewan Indian Federated College (SIFC) in May  2002.[24] That brief introduced a theme that was to be confirmed again and again over the course of the Dialogue: the need to recognize a paradigm shift in Aboriginal research.

The SIFC brief opened with the observation that the Royal Commission on Aboriginal Peoples (RCAP) and other studies “agree that a significant element of the solution [to the costs of social problems facing Indigenous peoples] is the need to shift the research paradigm from one in which outsiders seek solutions to ‘the Indian problem’ to one in which Indigenous people conduct research and facilitate solutions themselves.”[25]

The SIFC brief then went on to highlight a number of the characteristics of this new research paradigm:

SIFC’s advice was supplemented by input from members of the Canadian Indigenous and Native Studies Association (CINSA) at the 2002 Congress of the Humanities and Social Sciences and advice from an ad hoc guiding group assembled during the summer of 2002.[27]

These early interventions and meetings helped to shape the content of the national call for briefs that went out in August 2002 to a wide cross-section of individuals working in Aboriginal, academic and government organizations.

4. Securing the wider community’s view

Over fifty briefs were received in response to the national call from a good cross-section of individuals and organizations. This work reflected the input of at least 100 individuals, many working in discussion groups. These responses were synthesized in a 50- page synthesis paper.[28]

This synthesis paper served as the focal point for Council’s first-ever national Round Table on Research and Aboriginal Peoples held on November 29, 2002, in Ottawa. The round table drew together 65 individuals from across the country – from the three major Aboriginal traditions (First Nation, Métis, and Inuit); from a cross-section of post-secondary institutions and disciplines; from federal, provincial and territorial governments; and, from community organizations.

The round table generated over 100 recommendations that were presented in a summary paper circulated in February 2003.[29] An invitation to review the summary paper recommendations was extended to the round table participants, those who had submitted the original briefs, and to a wide range of potential stakeholders in Aboriginal, academic and policy communities. The vice-presidents (research and academic) and scholars at Canadian universities and colleges were invited to review the recommendations, as were the presidents and memberships of all Canadian academic societies. The 600 participants in the federal Aboriginal Policy Research Conference (November 26-28, 2002) were also invited to provide their comments.

Four electronic discussion groups were organized around the major themes used to group recommendations in the summary paper:

By May 2003, some 350 people had joined the online discussions, including individuals from various Aboriginal nations (Inuit, Métis, Salish, Anishinaabe, Haudenosaunee, Lenape/Delaware, Cree, among others); from most regions of the country; from a wide range of academic disciplines and institutions; from Aboriginal community, professional and business organizations; from government agencies; etc.

In summary, this was not a cursory conversation among a few dozen scholars. Over 500 individuals from a wide range of backgrounds and occupations spent substantial time and energy advising SSHRC. While there are many individual points requiring continued discussion, there is agreement that a shift in approach is both emerging and needed.

B. Program initiatives in Aboriginal research

Dialogue participants provided Council with two connected but distinct “strategic directions” that reflect relatively high levels of consensus and that appear to have a reasonable chance of success:

  1. Joint exploration of knowledge opportunities; and
  2. Equitable treatment of Aboriginal researchers.

Participants also identified seven possible program initiatives for Council’s consideration.

These seven proposed initiatives reflect virtually all of the recommendations emerging from last fall’s synthesis paper, the round table and the ongoing electronic discussion. These seven possible program initiatives are discussed below.

  1. Aboriginal Community Research (ACR) Program
    Proposed program:

    This program would facilitate research initiated by Aboriginal community organizations with research mandates, in partnership with university and college researchers, as well as

    governments and other policy research organizations, on projects addressing key  political, social, economic and cultural opportunities and challenges identified by urban and non-urban Aboriginal communities in Canada.

    Context:

    There is a very wide range of research interests and concerns that could be pursued through this initiative including: language preservation, cultural survival, poverty, health, healing, violence, self-governance, economic development, education, etc.

    However, the firm recommendation from members of the Dialogue is that Aboriginal communities (i.e., various community organizations) be given the opportunity to decide on what the research priorities should be for their communities (each community’s needs and capacities being different), with government policy people and academics making themselves available as allies working to support these community-based research initiatives.

    The proposed program could draw fairly heavily on SSHRC’s experience with the Community- University Research Alliances (CURA) program.[30]

    Prospective partners and funding:

    Working with input from Aboriginal organizations (e.g., Inuit Tapiriit Kanatami, Métis National Council, Assembly of First Nations, Congress of Aboriginal Peoples, National Association of Friendship Centres, regional associations), as well as members of the Dialogue group, SSHRC staff could approach federal and provincial agencies (e.g., Indian and Northern Affairs, Privy Council Office, Canadian Heritage, Statistics Canada, Justice Canada, Health Canada, the Canadian Institutes of Health Research, etc.) to identify which research areas of interest to Aboriginal communities these agencies might be interested in funding through  Joint Initiatives.

    Adjudication:

    It was proposed that all members of the adjudication committee be either accomplished researchers or highly respected knowledge-keepers within Aboriginal traditions and be respectful of Aboriginal peoples and Aboriginal knowledge.

    A majority of the committee would be Aboriginal researchers drawn from First Nation, Métis and Inuit traditions. The committee would include at least one Aboriginal Elder, drawn in rotation from the First Nation, Métis and Inuit communities.

    The adjudication committee would advise Council regularly on needs met and unmet by the program.

    Training:

    The ACR program would include supplementary provisions for training and mentoring of both Aboriginal and non-Aboriginal students interested in developing their research skills within both Aboriginal and non-Aboriginal knowledge traditions.

    Knowledge mobilization strategies:

    Emphasis will be placed on knowledge mobilization strategies that primarily serve the interests of Aboriginal communities, and secondarily wider public interests.

    Program option:

    Some of the objectives of this initiative potentially could be realized within SSHRC’s existing CURA program. One could envisage a concerted effort to encourage and accommodate proposals from Aboriginal community organizations.

  2. Aboriginal Knowledge Systems (AKS) Program
    Proposed strategic initiative:

    This strategic initiative would support research on Aboriginal knowledge systems both in their own right and in the context of their interaction with non-Aboriginal systems of thought.

    Context:

    Modeled to some extent on SSHRC’s revised Research Development Initiative (RDI) program,[31] the objective of this program is to mobilize Aboriginal knowledge, first, for the benefit of Aboriginal nations and communities in Canada, and then, for the benefit of Aboriginal and non-Aboriginal communities around the world.

    The proposed AKS program gives special attention to research proposals geared to knowledge held by Aboriginal Elders. This knowledge is crucial for an understanding, development and application of Aboriginal knowledge – as well as for the well-being of Aboriginal communities and intellectuals. The program will be open to all researchers.

    The AKS program adjudication committee would be tasked to assign importance to the proposals received in relation to two needs: (1) building-up, retrieving and restoring Aboriginal knowledge; and, (2) exploring the application of Aboriginal knowledge in relation to other knowledge traditions.

    Training:

    The AKS program may be designed to include supplementary provisions for training and mentoring of both Aboriginal and non-Aboriginal students interested in developing their research skills within and in relation to Aboriginal knowledge traditions.

    Knowledge mobilization strategies:

    The program must be flexible with regard to knowledge mobilization: ultimately, all Canadians will benefit by preservation and restoration of Indigenous knowledge, but there are many ways in which Aboriginal nations and communities first need to situate themselves in relation to this knowledge – and then bring that knowledge to fora that involve interaction with other knowledge traditions. The researchers themselves will have the task of deciding which knowledge mobilization strategies are most appropriate.

    Adjudication:

    It was proposed that all members of the adjudication committee be either accomplished researchers or highly respected knowledge-keepers within Aboriginal traditions and respectful of Aboriginal peoples and Aboriginal knowledge.

    A majority of the committee would be Aboriginal researchers drawn from First Nation, Métis and Inuit traditions. The committee would include at least one Aboriginal Elder, drawn in rotation from the First Nation, Métis and Inuit communities.

    Program development:

    Research within the proposed AKS program could form the “cornerstone” for SSHRC’s engagement of Aboriginal research: non-Aboriginal people especially need to have an opportunity to understand the ways in which Aboriginal knowledge traditions are distinctive, yet complement non-Aboriginal traditions. Other more-specific research programs could flow from this work. The adjudication committee will advise Council annually on needs met and unmet by the program.

    Program option:

    Some of the objectives of this initiative potentially could be realized within SSHRC’s recently revised Research Development Initiatives (RDI) program. Special emphasis may be required on the value of investigating Aboriginal knowledge traditions.

  3. Aboriginal Research Careers (ARC) Program
    Proposed training initiative:

    The proposed Aboriginal Research Careers program could be designed to advance the capacity of Aboriginal and non-Aboriginal researchers in Aboriginal research.

    Context:

    The ARC program will respond to the Dialogue recommendation that SSHRC develop a “multifaceted approach to strengthening [the capacity of] Aboriginal researchers” – by providing “undergraduate development, fellowships, scholarships, mentorship, practicums and support to ongoing networking through summer institutes, conferences and workshops.”[32]

    The main focus of the program is development of research capacity in and through Aboriginal scholars. The ARC program would reflect and acknowledge that individuals with Aboriginal ancestry are, on average, facing an array of particular challenges within the Academy – and that these individuals are needed to facilitate the effective development of Aboriginal research.

    However, the program will be open to non-Aboriginal scholars as well. It falls to the adjudication committee to assess relative needs and opportunities. Funding methods could be modeled to some extent on the basis of the Fellowship, conferencing and other programs that already exist at SSHRC, though the proposal is that applications for career-building programs be received from Aboriginal community organizations and Canadian post-secondary institutions working in partnership.

    The ARC program may, for example, include consideration of innovative measures –

    • to allow Aboriginal faculty members with MAs to obtain their doctorates (e.g., via summer institutes);
    • to allow non-academic Aboriginal researchers to augment research credentials; and,
    • to increase the interest of young Aboriginal people in social science and humanities research careers.
    Adjudication:

    It was proposed that all members of the adjudication committee be either accomplished

    researchers or highly respected knowledge-keepers within Aboriginal traditions and respectful of Aboriginal peoples and Aboriginal knowledge.

    A majority of the committee would be Aboriginal researchers drawn from First Nation, Métis and Inuit traditions. The committee would include at least one Aboriginal Elder, drawn in rotation from the First Nation, Métis and Inuit communities.

    Future program development:

    As future needs are identified, separate programs may be proposed and created. The ARC program could in many ways be fact-finding in orientation, charged with assessing demand and identifying unrealized opportunities. The adjudication committee would advise Council regularly on needs met and unmet by the program.

    Program options:
    • Some of the objectives of this initiative may potentially be realized within SSHRC’s existing fellowship and conference programs. Special emphasis may be needed on the value of developing research talent in Aboriginal research;
    • The program could be directed solely at Aboriginal researchers and students;
    • The range of program options could be narrowed (Council may wish to focus only on Aboriginal doctoral students as a start[33]);
    • Applications could be received from individuals instead of sponsoring organizations.
  4. Aboriginal Participation in Peer Committees and External Assessments
    Proposed initiative:

    This initiative proposes to involve Council in ensuring that Aboriginal researchers and experts are involved, as appropriate, in all SSHRC peer adjudication committees, and employed for external peer assessments for those committees.

    Context:

    Aboriginal researchers are active in all academic fields. Aboriginal research does not involve only the study of Aboriginal topics.

    Broad agreement to involve qualified Aboriginal researchers in committees and external evaluations can be expected. The challenge is in developing effective ways of identifying (e.g., in the SSHRC data bases) which scholars are Aboriginal.

  5. Community Protocols Information (CPI)
    Proposed initiative:

    This initiative proposes to involve SSHRC in ensuring, in the context of ongoing efforts to revise Section 6 of the Tri-Council Policy Statement on Ethical Conduct for Research Involving Humans,[34] that a national effort is made to identify, analyze and promote research protocols being established by various Aboriginal communities and  organizations.

    Context:

    The Dialogue brought attention to efforts by Aboriginal communities to develop research protocols and ethics review procedures. Such efforts include:

    • the “Indigenous Community Research Protocol” developed by the First Nations Aboriginal Counselling Program at Brandon University;
    • the research protocols at Akwesasne;
    • the “Protocols & Principles For Conducting Research in an Indigenous Context” developed (and currently being revised) by the University of Victoria’s Indigenous Governance Programs;
    • “Respectful Treatment of Indigenous Knowledge" developed for the Ontario government's Aboriginal Healing and Wellness Strategy;[35]
    • the “Mi’kmaq Ethics Watch - Principles and Guidelines for Researchers Conducting Research With and/or Among Mi’kmaq People”;
    • Kahnawake Schools Diabetes Prevention Project Code of Research Ethics;[36]
    • the Ownership, Control, Access and Possession (OCAP) principles;[37] and
    • research rules developed by the Alaska Federation of Natives.[38]

    Community research protocols appear to be helpful in empowering Aboriginal communities as well as in providing greater certainty for researchers around questions of ownership of information, dissemination, access to various kinds of knowledge, privacy, etc.[39]

    The CPI initiative may also provide a useful way of developing practical understandings among researchers and ethics boards on various ethical questions, including those focused on intellectual/cultural property.

    Partners:

    SSHRC would collaborate with the Interagency Advisory Panel on Research Ethics and other appropriate partners in this effort, perhaps leading off with a joint workshop or small conference on community protocols in areas of research covered by the three federal granting councils. Canadian Heritage and the Canadian Biodiversity Office (Environment Canada) could also be involved given their interest in Aboriginal intellectual property issues.

  6. Web-based Network for Aboriginal Research
    Proposed initiative:

    This initiative proposes to involve SSHRC in ensuring continuation of the electronic network created through the Dialogue,adding in features that promote research, knowledge mobilization and assessment of research impacts.

    Context:

    The Dialogue has served to identify the need for a supportive Aboriginal research network – a place to exchange information on research ideas, research resources, training opportunities, employment opportunities, etc…

    A Web-based network can also be used to disseminate research results, especially unpublished research or research available only in “gray literature.”[40] As well, such a network can be used as a source of ongoing advice for SSHRC on its Aboriginal research initiatives.

    Partners:

    SSHRC may wish to partner on this initiative with such organizations as the Canadian Indigenous and Native Studies Association (CINSA) and/or various Aboriginal universities/colleges or other interested organizations. Moderating the Network could fall to SSHRC’s partner, working in close collaboration with SSHRC staff.

  7. Representation of Aboriginal peoples within SSHRC
    Proposed initiative:

    This initiative proposes to involve SSHRC in reviewing options for augmenting participation of  Aboriginal peoples at all levels of its organization (Board, committees, staff).

    Context:

    SSHRC may wish to examine the Aboriginal Council established by Queen’s University[41] and the Aboriginal Peoples Secretariat established by the Canada Council[42]  to determine whether and how Aboriginal representation within SSHRC may be organized. Questions that may be asked include: Should a special or formal advisory relationship be established (e.g., an Aboriginal Circle or a special committee on Aboriginal research)? Or should Council simply ensure that Aboriginal individuals are included at all levels of the organization? Moreover, if a SSHRC transformation exercise moves forward, is it be appropriate to explore the idea of establishing an Aboriginal Research Institute similar to CIHR’s[43] Institute for Aboriginal Peoples Health (IAPH)?

C. Program management measures

  1. Monitoring, assessment and evaluation

    Because the above programs are exploratory, they need active monitoring, assessment and evaluation with a view to strategic program re-design and active “harvesting” of the benefits to Aboriginal peoples, researchers and the general public. SSHRC staff may be assigned to interact with the ongoing Web-based network, the adjudication committees, and interested stakeholders to assess in an organized manner how these initiatives are faring. In the context of ongoing work on monitoring, assessment and evaluation, key anticipated program outcomes can be identified as follows:

    Aboriginal Community Research (ACR) Program:
    • The research sponsored by this program, in the view of the applicant communities or community organizations, will have made a demonstrably positive impact in meeting the challenges or realizing the opportunities identified by those communities.
    Aboriginal Knowledge Systems (AKS) Program:
    • Evidence of the value of Aboriginal knowledge systems in their own right and in relation to other knowledge systems will have been generated.
    Aboriginal Research Careers(ARC) Program:
    • The set of funding mechanisms established will have, in both quantitative and qualitative terms, advanced the capacity of Canadian researchers in Aboriginal research.
    Aboriginal Participation in Peer Committees and External Assessments:
    • The number of Aboriginal members involved in SSHRC adjudication and planning committees will have climbed dramatically.
    Community Protocols Information (CPI):
    • The information generated will have been found useful by researchers and Aboriginal communities in establishing effective agreements on intellectual and cultural property, mobilization of research information, etc.
    Web-based Network for Aboriginal Research:
    • The proposed Network will have generated a sizeable number of productive research connections.        
    Representation of Aboriginal peoples within SSHRC:
    • Council will have adopted the set of representation measures which in its view obtains the maximum possible engagement of researchers and organizations active in the rapidly evolving area of Aboriginal research.
  2. Special program requirements

    There may be a need, in the context of the proposed ACR, AKS and ARC programs, to provide simultaneous interpretation in French, English and certain Aboriginal languages. Funds for this can be sought from within the federal government.

    Alternatively, more committee time may be needed to allow members to express themselves in their strongest language and to then allow other members or assistants who know the language used to provide summary interpretations.

D. Ongoing[44]

The Dialogue on Research and Aboriginal Peoples consistently confirmed that a paradigm shift is well underway in the way Aboriginal research is understood. However, the exact nature of that shift remains a matter of ongoing discussion among members of the Dialogue.