THUNDER BAY
COMMITTEE
AGAINST RACISM
AND DISCRIMINATION:
A REPORT
ON THE
THUNDER
BAY PLAN
FOR ACTION
OVERCOMING RACISM & DISCRIMINATION:
A PLAN FOR ACTION
THUNDER BAY
FINAL REPORT
AND RECOMMENDATIONS
Researched and written by
Leisa Desmoulins
RESEARCH RATIONALE
Racism does not begin or end with this report. Racism is based on historical
relationships between peoples. Looking back, we can see that newcomers to
Canada subjected First peoples to colonial rule through violence, and more
subtle forms of power. Changes have happened slowly:
• First Nations peoples on reserves got the right to vote in 1960
• Canada signed the Official Multicultural Act in 1988
SPONSORs
•T
he federal government formally ended its colonial power over First
Nations peoples by closing the last residential school in 1996.
However, social relations continue to define and maintain differences between
groups: between dominant groups and Aboriginal peoples and other visible
minorities, also called other racialized peoples. These unequal social relations
challenge healthy and vibrant communities. These challenges exist between
individuals, as shown in the examples below.
Racism Today EXAMPLES
Wednesday, March 25, 2009
Day for the Elimination of Racism and Discrimination (Thunder Bay)
Breakfast participants stated their top priorities for the community to address:
Diversity
Thunder Bay
“Reduce the gap in achievement between Aboriginal and nonAboriginal students”
“Increase emphasis on social and economic inclusion. Our
community diVersity needs to be reflected in employment and
on boards, committees and all aspects of community life”.
Saturday April 4, 2009 Rising Voices Youth Forum (Thunder Bay)
A youth delegate said “Racism and discrimination for our families
(e.g. low income) and the issues that come with that were the
prevalent issues that arose in the forum”.
Tuesday April 26, 2009 CBC Radio Thunder Bay Talk-back line
A listener contacts CBC to respond to a recent item on drive-by racism
whereby spoons are thrown at sex-trade workers and homeless individuals
in the south core. She clarified that ‘spooning’ is race-based, and that she had
spoons thrown at her while walking along the sidewalk with her children. These challenges are also bigger than individuals. This report is a call to
identify and work to change the historical, unequal social relations that
permeate institutions and organizations, and mostly relationships. Racism
is not unique to Thunder Bay. Yet the solutions to the race issues here need
local and community-based solutions. This report begins the dialogue on
opportunities to address racism in Thunder Bay.
TABLE OF CONTENTS
Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Executive Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Chapter 1: INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
TBCARD Contexts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
A Note on Terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Chapter 2: METHODOLOGY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Research Questions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .24
Data Gathering . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Data Analysis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Dissemination of Research Results . . . . . . . . . . . . . . . . . . . . . . . 28
Chapter 3: KEY FINDINGS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Research Findings on Socio-Economic/Demographic Dimensions . . .
Summary of Dimensions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Implications of Dimensions . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Research Findings Organized Through 10 Commitments . . .
One: Increase Vigilance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Two: Monitor Racism and Discrimination . . . . . . . . . . . . . . .
Three: Inform and Support Individuals . . . . . . . . . . . . . . . .
Four: Policing Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Five: Municipal Employer . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Six: Labour Market . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Seven: HousinG . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Eight: Citizens’ Voices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Nine: Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Ten: Respect . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Summaries of Key Findings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
31
33
33
34
35
35
37
38
39
41
47
54
58
59
63
65
65
Chapter 4: CONCLUSIONS and RECCOMENDATIONS . . . . . . . . . . . . . . . .
Reference . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Appendices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
One: Declaration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Two: Interview GuidE . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
Three: Information for Focus Groups . . . . . . . . . . . . . . . . . .
Four: Focus Group Questions . . . . . . . . . . . . . . . . . . . . . . . . . .
Five: Literature Review . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
69
71
72
73
75
81
82
83
LIST OF FIGURES
Figure 1: opulation pyramid for the Aboriginal and non-Aboriginal populations,
P
Thunder Bay, 2006 Figure 2: roportion of persons living below the before-tax low income cut-off by
P
Aboriginal identity group and sex, Thunder Bay, 2005
LIST OF TABLES
Table 1: Focus group participants Table 2: Community consultations by group/sectors
Table 3: Aboriginal identity population, 2001/2006
Table 4: CRIEC Socio-economic/demographic dimensions and results indicators
Table 5: edian income and distribution of total income of Aboriginal and nonM
Aboriginal people 15 years of age or older with income, Thunder Bay, 2005
Table 6: edian earnings, in 2005 constant dollars, of full-time full-year
M
earners by population group, Thunder Bay, 2000 and 2005 Table 7: Summary of quantitative data findings PREFACE: LETTER OF TRANSMITTAL
The Thunder Bay Committee Against Racism and Discrimination (TBCARD)
is pleased to present Overcoming Racism & Discrimination: A Plan for Action.
This report reflects a lengthy process of dialogue and documentation. Most
recently, TBCARD formed and undertook a year long community-based research
project. TBCARD reports out the project findings and recommendations in this
document. The report identifies opportunities for overcoming racism and all
forms of discrimination within the city of Thunder Bay.
The process to signing the Declaration Against Racism and Discrimination
was challenging, as new and controversial initiatives may be. The community
helped to move this initial work forward. Community members and groups
made deputations to Council to support joining the larger Canadian coalition.
Their presentations demonstrated their convictions and enthusiasms for
anti-racism and discrimination initiatives for our community. City Councilors
voted in favour of joining the Coalition. The City of Thunder Bay became a
signatory city to the Declaration Against Racism and Discrimination.
The municipality set the research problem by joining the Canadian Coalition
Against Racism and Discrimination. By approving the motion they agreed
to develop a Plan of Action for Thunder Bay. The City then turned to
Diversity Thunder Bay, with its expertise and experience in anti-racism and
discrimination work, to provide background information to inform the Plan
of Action. Key members of Diversity Thunder Bay dedicated time and efforts
into developing proposals for funding. Once Diversity Thunder Bay secured
funding, key members mobilized a project sponsor, advertised for and hired
a researcher to conduct the study, and continued to guide the project as the
Thunder Bay Coalition Against Racism and Discrimination (TBCARD) Steering
Committee. A lot of preparatory work happened before the project began.
The TBCARD developed Terms of Reference and set a goal of bringing back
relevant and useful information to City Council. To fulfill its goal, the TBCARD
researched broadly with a range of stakeholders across sectors towards
a community-based/community-informed plan for action reflective of
communities most affected by racism and discrimination in the city.
This project would not have been possible without generous supports from
government and private sector sponsors. In-kind services and offerings
contributed significantly to the project’s success. Specific groups’ and
individuals’ participation benefited the project.
7
A PLAN FOR ACTION
LIST OF FIGURES AND TABLES
The TBCARD would first like to thank all community members who rallied
City Council and those who participated in the research; all of them provided
their time, input, insights, and experiences into problems and potential
resolutions for Thunder Bay. Without their participation, the TBCARD could
not have formed recommendations.
EXECUTIVE
SUMMARY
Overcoming Racism & Discrimination is intended to provide support and
direction to City Council and its partners towards a strategic plan of action
against racism and discrimination. This report is also intended as a tool
for community members, groups, organizations, and the public and private
sectors to come together to continue the dialogue and, more importantly,
to collaboratively address issues of racism and discrimination that thwart
social cohesion within our community. TBCARD members anticipate that this
report will generate initiatives beyond our expectations.
In 2006, Diversity Thunder Bay and community members made deputations
to City Council to join the Canadian Coalition Against Racism and
Discrimination (CCMARD). Thunder Bay City Council voted to become a
signatory municipality to the CCMARD. By joining this initiative, City Council
assumed leadership to develop a unique, municipal Plan of Action Against
Racism and Discrimination for Thunder Bay, adhering to CCMARD’s 10
common commitments.
Sincerely,
Rebecca Johnson
TBCARD Chairperson
On behalf of the TBCARD Steering Committee
Thunder Bay City Council asked a local anti-racism group, Diversity
Thunder Bay (DTB), to develop a Plan of Action. DTB secured funding from
the Ministry of Citizenship and Immigration, Thunder Bay Ventures, the
City of Thunder Bay, BDO Dunwoody LLP and the Chamber of Commerce.
Diversity Thunder Bay contributed funding. Generator Strategy Advertising
generously donated expertise, formatting, and printing to the project.
Lakehead Social Planning Council held the Contribution Agreements and
housed the project. Diversity Thunder Bay formed a Steering Committee to
hire a researcher and direct the project activities. The project began in May
2008 and TBCARD presented the Plan of Action to City Council in May 2009.
In 2007, City Council included the review of the Plan of Action from Diversity
Thunder Bay in its New Foundations Strategic Plan document (p. 15). Given
that background, recent statistical data, and input from representatives from
other cities and focus group participants, TBCARD formed the following five
recommendations to City Council:
1. Acknowledge the harmful effects of racism and discrimination within
Thunder Bay
2. Demonstrate leadership by working with community partners to create a
welcoming and
inclusive community
3. Establish a Standing Committee of Council to work with community
partners to develop a
plan of action with measurable success indicators
4. Develop and communicate an equity vision to overcome racism and
discrimination
5. Communicate annually with CCMARD and the community.
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A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
8
The TBCARD equally thanks the researcher and the Steering Committee
members for their efforts in conducting thorough community-based
research and writing and editing this report. Steering Committee members
consistently demonstrated their dedication to the project through their
willingness to meet often and regularly, make suggestions, provide contacts
and feedback, and in their commitment to make the report concise, readable,
useful, and meaningful for our community.
These recommendations build on the work of other CCMARD municipalities
through TBCARD interviews with representatives from other signatory cities.
Following the interviews, the researcher reviewed the literature, collected
socio-economic and demographic data, and held 8 focus groups. The data
provided a snapshot of promising practices and areas for improvement for
Thunder Bay.
Commitment 4: Support policing services in their efforts to be
exemplary institutions in combating racism and discrimination.
Focus group participants identified gaps in addressing the 10 common
commitments within the community. Participants identified opportunities to
address each commitment.
• The TBPS has an opportunity to report on its ongoing progress with antibias policing through an annual public reporting
Commitment 1: Increase vigilance against systemic and individual
racism and discrimination.
Focus group participants said:
• The Thunder Bay Police Services (TBPS) are positioned to take a leadership
role and share its anti-racism and anti-discrimination work
• The TBPS needs to develop and implement measures to track complaints
so that allegations of racism and discrimination by uniform and civilian staff
can be flagged and addressed by management for resolution.
Focus group participants said:
Commitment 5: Provide equal opportunities as municipal
employer, service provider and contractor.
•C
ommission a research study of the economic contributions of Aboriginal
peoples to the community
Focus group participants proposed that:
• Mount a city-wide anti-racism/anti-discrimination campaign.
Commitment 2: Monitor racism and discrimination in the community
more broadly as well as municipal actions taken to address racism and
discrimination.
Focus group participants said:
• Address the gap of monitoring racism and discrimination within the
community
• Develop an Ombud’s office within the community.
Commitment 3: Inform and support individuals who
experience racism and discrimination.
Focus group participants said:
•C
ity Council acknowledge the presence of systemic racism and
discrimination within the city
•T
he Corporation and City Council convene an advisory committee of
representatives from racialized and other groups facing discrimination
•T
he Corporation develops a vision statement and integrates measurable
outcomes within the Strategic Plan
•T
he Corporation lead in developing partnerships to address racism and
discrimination in all aspects noted in the Plan of Action
•C
ity Councilors acknowledge and attend events put on by Aboriginal and
other racialized peoples and youth to demonstrate support for their work
•T
he Corporation through City Council publicly and annually report out to
community on the Plan of Action work through multiple channels to reach
all stakeholders
•T
he Corporation and City Council maintain neighbourhood recreation
facilities and programs for youth.
•S
upport persons who experience/speak out against racism and
discrimination through an independent, local body such as an Ombud’s
Office for the city
•L
et people know when and where newly-developed supports become
available.
Commitment 6: Support measures to promote equity in the
labour market
Focus group participants said:
• I nstitutions and organizations collaboratively research, develop, and provide
anti-racism/anti-oppression training for their staff. Begin with school staff,
hospital staff, landlords, business owners, and transit workers
•L
ocal employers receive training to recognize and address racism and
discrimination in hiring and retention of Aboriginal and other racialized
peoples.
11
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
10
•A
coordinated mechanism to address racism and discrimination locally is
non-existent and needed
Commitment 7: Support measures to challenge racism and
discrimination in housing
Focus group participants said:
• Municipal levels of government need to advocate for more affordable
housing and housing reforms for Aboriginal peoples (especially women)
and other racialized peoples’ living conditions
• Municipal levels of government are well-positioned to plan and foster
housing dialogues in neighbourhoods and between residents and
neighbours of group homes.
Commitment 8: Involve residents by giving them a voice in
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
12
Focus group participants said:
• Encourage publicly-funded institutions to establish and maintain
representative advisory bodies to guide their equity work
• Acknowledge and support existing anti-racism/anti-oppression initiatives
by community groups in a variety of ways (presence of leaders, funding, inkind contributions, community engagement).
Participants consistently expressed through their examples
and discussions that racism lives in Thunder Bay. Their
overarching message?
“Make racism and discrimination
unacceptable within this community”.
Commitment 9: Support measures to challenge racism and
discrimination in education
The full report, Overcoming Racism and Discrimination: A Plan for
Focus group participants said:
Action, is available in print and electronic versions. Print copies
• Find and provide anti-racism training for all staff in schools, boards of
education, colleges, and universities to address the pervasive, systemic
racism that exists in education
are available through the Thunder Bay Public Libraries. Electronic
• Create locally-developed and representative curriculum with Aboriginal and
other racialized peoples that spans the curriculum.
www.diversitythunderbay.ca
Commitment 10: Promote respect and Include Aboriginal
and Racialized peoples in Community
Focus group participants said:
• Use the existing celebrations (e.g. Folklore Festival), days (e.g. National
Aboriginal Day) and events (e.g. International Day for the Elimination of
Racism and Discrimination) as part of a campaign to overcome racism and
discrimination
copies are available through the Diversity Thunder Bay website @
13
A PLAN FOR ACTION
anti-racism initiatives and decision-making
CHAPTER 1:
INTRODUCTION
& BACKGROUND
The Lakehead Social Planning Council (LSPC) held the Contribution
Agreements, housed the researcher, provided the Steering Committee
meeting space and other in-kind contributions, and oversaw the budget and
administration of the study.
A Steering Committee of local community leaders led the research. Rebecca
Johnson chaired the Steering Committee. Leisa Desmoulins served as the
researcher and writer. The committee provided governance and directed the
year-long project. Steering Committee members included:
• Lisa Beckwick, City of Thunder Bay
• Carolyn Chukra, Lakehead District School Board
• Cindy Crowe, Waabi-ma’iingan Teaching Lodge
• Anna Gibbon, City of Thunder Bay
• Jo Jo Guillet, Thunder Bay Catholic District School Board
• Sandy Isfeld, District of Thunder Bay Social Services Administration Board
• Rebecca Johnson, City Council
• Joanne Kembel, United Way of Thunder Bay
• Marie Klassen, Lakehead Social Planning Council
• Anne LeSage, Thunder Bay Indian Friendship Centre
• Mary Lucas, District of Thunder Bay Social Services Administration Board
• Ann Magiskan, Thunder Bay Catholic School Board
• Evelina Pan, Thunder Bay and District Labour Council
• Martha Picard, Thunder Bay Chamber of Commerce
• Beth Ponka, Kinna-aweya Legal Clinic
• Carol Rusak, Confederation College
• Frances Wesley, Thunder Bay Urban Aboriginal Strategy
This TBCARD
research
study received
funding from
many sources.
BDO Dunwoody
LLP
Diversity
Thunder Bay
Generator
Ministry of
Citizenship and
Immigration
The Corporation
of the City of
Thunder Bay
Thunder Bay
Chamber of
Commerce
Thunder Bay
Ventures
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A PLAN FOR ACTION
The Thunder Bay Committee Against Racism and Discrimination (TBCARD)
researched ways to overcome racism and discrimination in the community.
This study did not investigate the experiences of or the persistence of racism
within the community or its institutions: that work has been done already
through several local studies. These are described in the review of literature
in the Appendices. This project extends these studies to provide information
to City Council to guide its Plan of Action for Thunder Bay.
The TBCARD Steering Committee members interpreted the research
findings and recommended actions. TBCARD representatives presented the
recommendations to Thunder Bay City Council on May 25, 2009.
In this chapter TBCARD outlines three contexts for this study: the
international, national, and local contexts that informed the Plan of Action
for Thunder Bay. Where available, TBCARD provides web links for more
information.
TBCARD Contexts
overcome racism and discrimination. Not making changes diminishes the
social cohesion of cities and erodes economic potential. Communities can
no longer afford the social and economic consequences of socio-economic
disparity.
In June 2005 the Canadian Commission for UNESCO launched a call for
municipalities interested in joining the Canadian Coalition for Municipalities
Against Racism and Discrimination. Thirteen Canadian municipalities
responded to the original call. These municipalities signed the Canadian
Declaration of Municipalities Against Racism and Discrimination.
CCMARD original municipal signatories
International Context
In 2005, UNESCO commissioned the Centre for Research on Immigration,
Ethnicity, and Citizenship (CRIEC) of the Université du Québec à Montréal, to
research anti-racism approaches in several large North American cities. The
CRIEC researchers conducted six case studies of anti-racism policies and
practices. Based on the data collected and analyzed, the researchers found a
common approach for cities to collect and analyze data, develop a plan, and
set benchmarks for their work to affect anti-racism. TBCARD used the CRIEC
study to guide its research work and frame its Plan of Action.
The CRIEC study, Indicators for the evaluation of municipal politics fighting
discrimination is available at
www.unites.uqam.ca/criec/pdf/CRIEC%20Cahier%2028%20(en).pdf
National Context
The historical colonizing of the Canadian landmass along with later,
historical immigration events formed colonialism and racialization as part
of Canada’s history. Ongoing racialization continues in the socio-economic
and political landscapes of Canada. Within communities and amongst
people interpersonal racism can be seen, heard, and felt. Systemic racism
within cities and their organizations is not as overt, but it has similar effects
to interpersonal racism on racialized peoples and on social cohesion for
communities. Policies and practices within institutions are often assumed
to be right and the only way that makes sense. The unseen, ‘taken-forgrantedness’, makes systemic racism difficult to understand by those not
affected. Systemic racism can be difficult to measure (in terms of existence
and effects on Aboriginal and other racialized peoples). Individuals and
groups who benefit from systemic racism often resist changes to correct
it. That is why it is difficult to effect organizational and social changes to
17
In Calgary in 2007, Thunder Bay City Councilor, Rebecca Johnson, joined the
13 representatives from the original signatories to the Canadian Declaration
Against Racism and Discrimination. View the Thunder Bay CCMARD
Declaration in the Appendices.
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
16
The United Nations Educational, Scientific, and Cultural Organization
(UNESCO) launched the International Coalition of Cities against Racism
in 2004 to establish an international network of cities united in their fight
against racism. For more information on the International Coalition of Cities
Against Racism and Discrimination, go to HYPERLINK “http://www.unesco.
org/shs/citiesagainstracism” www.unesco.org/shs/citiesagainstracism.
Signatory municipalities to the Declaration agree to adopt the Canadian
Coalition of Municipalities Against Racism and Discrimination’s 10 common
commitments. These commitments are:
Local Context
1. I ncrease vigilance against systemic and individual racism and
discrimination.
Thunder Bay City Council
3. I nform and support individuals who experience racism and
discrimination.
4. S
upport policing services in their efforts to be exemplary institutions in
combating racism and discrimination.
5. P
rovide equal opportunities as a municipal employer, service provider
and contractor.
6. Support measures to promote equity in the labour market.
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
18
7. S
upport measures to challenge racism and discrimination and promote
diversity and equal opportunity in housing.
8. Involve citizens by giving them a voice in anti-racism initiatives and
decision-making.
9. S
upport measures to challenge racism and discrimination and promote
diversity and equal opportunity in the education sector and in other forms
of learning.
10. Promote respect, understanding and appreciation of cultural diversity and
the inclusion of Aboriginal and racialized communities into the cultural
fabric of the municipality.
Thus, CCMARD requires municipalities to commit to the following three
aspects by signing the declaration:
• Adopting the 10 commitments
• Forming broad partnerships which include individuals and groups most
affected by racism and discrimination
• Developing a Plan of Action that includes resources to implement and
success measures to evaluate its impacts and effectiveness
For more information on what’s happening within the Canadian context go to
www.cmard.ca
In May 2006, City Councilor Rebecca Johnson moved that the City Council
declare its intent to join the Canadian Coalition of Municipalities Against
Racism. After hearing from community groups and individuals, Councilors
approved the motion.
Diversity Thunder Bay
Diversity Thunder Bay formed in the early 1990s because Thunder Bay
needed an organization to coordinate public education and actions in
diversity and equality. Diversity Thunder Bay formed itself as a Committee of
representatives from various First Nations and multicultural organizations,
community leaders, city authorities and interested representatives and
individuals. Diversity Thunder Bay aims to be a comprehensive organization
focused on racial cohesion within Thunder Bay. The organization’s first
research study, A Community of Acceptance: Respect for Thunder Bay’s
Diversity, was funded by Heritage Canada. To view the research report, go to
http://www.thunderbay.org/upload/documents/ACOAFulldoc.pdf
The next project, Diversity in Policing, addressed systemic racism within the
Thunder Bay Police Services (TBPS). A Project Management Team (PMT) of
leaders from Diversity Thunder Bay, Thunder Bay Multicultural Association
(TBMA), Thunder Bay Indian Friendship Centre (IFC), and the Thunder Bay
Police Services led the project. TBMA held the Contribution Agreement with
Heritage Canada. To view the project activities and summary, go to http://
www.diversitythunderbay.ca/” www.diversitythunderbay.ca/
The City of Thunder Bay asked Diversity Thunder Bay (DTB) to research
its Plan of Action. In response, DTB members and other allies formed the
Steering Committee of the Thunder Bay Committee Against Racism and
Discrimination (TBCARD).
19
A PLAN FOR ACTION
2. M
onitor racism and discrimination in the community more broadly as
well as municipal actions taken to address racism and discrimination.
A Note on Terminology
Language, its terminology, and power relationships that exist create terms
and shape meanings for two reasons:
1. Our understandings of terms and how we use them may be hidden by
loaded, or emotionally-charged words, and different usages by different
sources. Loaded terms mean that the terms have many meanings and
political consequences and their use shows power relationships.
2. Sources may use the same terms, but the use of these terms may differ
depending on the source, for example UNESCO versus Statistics Canada.
These differences can confuse meanings because this project uses loaded
terms and uses different data sources for information. Our challenge is
to bring these sources together, while clearly expressing their original,
intended meanings.
Where possible TBCARD uses the terms used by research participants
themselves. We use participants’ terms to respect their self-identifications,
rather than further impose colonial and/or external representations.
Respecting how individuals and groups name themselves contributes to
eliminating racism and discrimination.
TBCARD uses the term ‘Aboriginal peoples’ because it is more inclusive,
except when study participants or other sources use a different term.
TBCARD uses ‘racialized peoples’, except where study participants or other
sources use a different term. ‘Non-racialized peoples’ refers to the majority
population in recognition that power relations are structured to negate
‘white’ as a colour. Other sources may use non-Aboriginal, White, or general
population.
Finally, UNESCO (2005) states
“It is a prerequisite for effective action not be afraid to call
racism and racial discrimination by their name and to put the
issues on the city administration’s priority list.”
TBCARD adopts this straightforward approach.
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A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
20
This study attempts to balance the terms used by the original sources with
the TBCARD’s understandings and uses of terms. For example, Statistics
Canada uses ‘visible minority’ and ‘North American Indian’ in their
terminology. The TBCARD uses these terms when citing Statistics Canada
census survey data. Alternatively, the TBCARD uses the terms ‘Aboriginal’
and ‘other racialized peoples’ when referring to these groups.
CHAPTER 2:
METHODOLOGY
1. Beliefs applied to the research
2. Methods used to collect information
3. People who participated
4. The way that the information is analyzed
5. To whom, where, and how the study is distributed
Each of these elements is explained for this study in the sections below
starting with the central beliefs applied to the TBCARD research project.
This research project had five central beliefs:
1. Involving communities most affected by the research in the research
2. P
lacing central importance on the lives of marginalized and/or traditionally
under-represented peoples
3. A
ddressing and analyzing the factors that have created and perpetuate
unequal power relationships
4. Linking the research findings to recommendations for action
5. C
onnecting the findings and recommendations to wider issues of social
justice and social cohesion for everyone in Thunder Bay
23
A PLAN FOR ACTION
Methodology means how the study is developed. It includes the following
five elements:
KEY INFORMANT INTERVIEWS
• Engaging community-based stakeholders through the research
TBCARD conducted key informant interviews with representatives of the City
of Thunder Bay and other signatory cities to the Declaration of Municipalities
Against Racism and Discrimination.
• Using a variety of methods to gather data
• Using data-driven assessment (demographic data; past research and
projects; other cities’ plans; and input from Aboriginal and other racialized
peoples) to create the recommendations
• Making the report accessible and available through multiple channels to
share the research (i.e. CCMARD cities, other communities of interest, local
stakeholders).
This research took an action approach:
1. Develop benchmarks and identify gaps within the community
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
24
2. Recommend initiatives to address the benchmarks and gaps for Aboriginal,
racialized, and other marginalized peoples.
This approach provides information for City Council to develop benchmarks,
consider additional initiatives and actions, and, measure and report out its
progress on the Plan of Action annually to the community.
Research Questions
TBCARD developed three research questions:
1. What programs, services, policies, and practices exist in the
community and other communities to address racism and
discrimination?
2. What gaps in programs, services, policies, and practices exist in
Thunder Bay to address racism and discrimination?
3. What measures do community members believe are needed within
the city to overcome racism and discrimination?
The researcher developed an interview protocol. The researcher used a
standardized, open-ended interview guide–the same questions were asked of
all interviewees—to ensure that key questions were asked to all respondents.
TBCARD members provided input into the questions and approved the
interview guide. This approach facilitated faster interviews that can be more
easily analyzed and compared. The researcher asked questions to determine
the approaches that other signatory cities used.
The researcher developed a list of questions and potential interviewees.
She sent an invitation to participate in the interviews to all CCMARD
representatives. Four representatives from CCMARD cities agreed to
participate. The interview guide and the cities contacted are listed in
Appendices. The researcher conducted five telephone and in-person
interviews. Telephone interviews were used when distance and cost deterred
face-to-face contact.
TBCARD selected five research methods:
1. Key informant interviews
2. Document analyses
3. Census survey data from Statistics Canada
4. Focus groups
5. Consultations.
2006 census
data puts 10,055
Aboriginal
peoples in
the Census
Metropolitan
Area of Thunder
Bay. Many
organizations and
people believe
that this number
is as an under-
Documents
representation
Documents are useful to collect background or supporting data. They may
substantiate information gathered through interviews or focus groups. The
researcher collected documents to illuminate key informant interview data
and collected local research documents to inform the literature review. These
documents are cited in the References. Documents are secondary source
data. Secondary source data are materials not collected by the researcher
him/herself.
of the urban
Census Data
Census data, taken from a reputable source, provide a snapshot of a bounded
area during a specified time period. As well, census data provide a common
measure for comparison across time (e.g. Thunder Bay year over year).
Census data has the disadvantage of being a sample of the population, and
have varied success with the sampling method.
The TBCARD socio-demographic statistical data derive from secondary
sources. TBCARD included data from the following three sources:
Data Gathering
Statistics Canada
• Canadian Council on Social Development (2007)
• Statistics Canada 2006 Census
• Quality of Life Project 2008
For more information, go to www.statcan.gc.ca
Aboriginal
community of
Thunder Bay. The
Census survey
provides the only
data available.
TBCARD
acknowledges the
limitations of this
data source.
25
A PLAN FOR ACTION
The TBCARD engaged these beliefs through the following methods:
Focus Groups
TBCARD focus group participants responded to five questions:
Focus groups investigate a topic with specific questions. One disadvantage to
using focus groups is data analysis, which can be time-consuming and may
be difficult to discern patterns or common themes. The researcher always
brings his/her interpretations to the data analysis. Typically focus groups
1. W
hat priorities should the City’s Plan of Action address to eliminate racism
and all forms of discrimination?
• have fewer than 10 participants
• bring together respondents who are part of a homogenous group
• use a facilitator who asks a common set of broad questions
2. H
ow should we respond to these priorities? What actions should various
sectors and other orders of government take?
3. How can the City help build community capacity and support participation in
the social, cultural, recreational, economic and political life of Thunder Bay?
4. H
ow can the City work with the community to evaluate progress towards
eliminating racism and all forms of discrimination?
• last for one to two hours
5. W
hat would a city that has eliminated racism and discrimination look like?
TBCARD conducted eight focus groups from January to April 2009. The
sample of focus group respondents is shown in the table below.
Broader Consultations
Table 1: Focus group participants
Focus of GroupGender Distribution
Racial Distribution
F
MAP* RP*
Advocacy (11)
8
3
3
1
Racialized peoples (8)
5
3
0
5
Youth (12)
5
7
7
2
Adult Education (12) 4
8
5
0
Parents (5)
5
0
5
0
Housing (9)
7
2
3
0
Aboriginal peoples (15)
12
3
10
0
Women (6)
6
0
5
0
Total (78)
52
26
38
8
*AP denotes Aboriginal participants
*RP denotes Racialized participants (other than Aboriginal participants)
38 participants (49%) were Aboriginal respondents
8 participants (10%) were other racialized respondents
51 participants (65%) were women
12 participants (15%) were youth
• N= 78 respondents in 8 focus groups.
The TBCARD presented information to and sought feedback from groups
inside and outside of Thunder Bay. These consultations provided feedback on
the process and direction of the study, and created a greater awareness of
the TBCARD study. TBCARD facilitated consultations from July 2008 to April
2009. TBCARD participated in 13 community consultations, with hundreds of
stakeholders. Table 2 depicts the groups consulted and the number of sessions.
Table 2: Community consultations by group/sectors
Group or Sector
Number of sessions
Aboriginal Peoples
2
Housing and Homelessness
1
Education (elementary, secondary, and, post-secondary
3
Other cities
3
Justice
2
Persons with Disabilities
1
Community at large
1
The methods listed above are quantitative and qualitative. The two methods
provide different kinds of data. Quantitative data is measurable, and is typically
expressed in numbers. Qualitative data is experiential, perceptual, and
interpretive and it is typically expressed by people in words. The researcher
sourced quantitative data from existing sources. Qualitative data comes
from interviews, document analysis, and focus groups. Using data from both
quantitative and qualitative data sources is called mixed methods. One of the
advantages of using mixed methods is triangulation. Triangulation examines
data from multiple sources to strengthen interpretations and improve policies
and programs based on the available evidence \Global Health Sciences, 2008-accessed 17-07-08 @ http://www.igh.org/triangulation/
27
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
26
Triangulation is an iterative process: the results from any step help to
formulate or improve upon the results from the previous steps, and inform
the next steps. TBCARD used mixed methods to gather data and improve
triangulation. Methods were employed sequentially, one after another, to
layer in additional data and processes as the study evolved. Data was also
analyzed sequentially, i.e. the researcher analyzed interview data before
collecting focus group data.
Researchers use multiple methods for exploratory research, when there is
not a lot of literature or established research methods. TBCARD used mixed
methods for this research study.
Data Analysis
Dissemination of Research Results
The research will be disseminated widely and through multiple media
(electronic and print) and oral presentations to the following groups:
• Stakeholder communities
• City Council
• Steering Committee partners
• The City of Thunder Bay
• Diversity Thunder Bay
• TBCARD funders
• Federal and provincial ministries with mandates to serve Aboriginal
and racialized peoples
• Public and academic libraries
• Academic communities
• CCMARD communities across Canada
• UNESCO
Diversity Thunder Bay may disseminate the study to other groups post-study.
The full report, Overcoming racism and discrimination: A Plan for Action, is
available in print and electronic versions. Print copies are available through
the Thunder Bay Public Libraries. Electronic copies are available through the
Diversity Thunder Bay website www.diversitythunderbay.ca/
29
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
28
Data was analyzed using the constant comparative method. This method
compares data from one source to the others as well as data within sources.
The researcher applied the 10 common commitments as a framework to
organize the findings, analyze the data, and then present the data in this report.
CHAPTER 3:
KEY FINDINGS
31
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
30
In this chapter TBCARD presents its key findings in two sections. In the
first section the researcher sets out socio-economic and demographic
contexts for racialized groups within Thunder Bay. In the second section
the researcher presents the data from the study under each of the 10
commitments.
1. Socio-economic
demographic contexts
Thunder Bay is made up of different races and ethnicities of peoples. TBCARD
presents population data from the 2006 Census on Aboriginal peoples,
immigrants, and visible minority groups. These peoples make up Thunder
Bay’s racialized populations. Following the population data, the researcher
summarizes the key findings and the implications of this information for
Thunder Bay.
Aboriginal Population
The Aboriginal population of Thunder Bay is large, young, and growing.
Table 3: Aboriginal identity population, 2001/2006
* The categories of the
Identity Populations*
2001
2006
Total Aboriginal identity population
8,205
10,055
North American Indian single response
6,095
7,420
by Statistics Canada (as
Métis single response
1,800
2,375
defined through the Indian
Inuit single response 25
45
Multiple Aboriginal responses
65
25
225
190
Aboriginal responses not included elsewhere
1. Table 4 data derives from the Statistics Canada 2006 Aboriginal Population Profile for Thunder Bay
Identity Populations reflect
legislative identities used
Act) to identify Aboriginal
Peoples.
• The net population growth for Thunder Bay is reflected through the growth
of the Aboriginal population
• In 2006, Aboriginal peoples comprised 8.3% of the total population of the
Thunder Bay CMA. By comparison, Aboriginal peoples comprised 2.0% of
the provincial population and 3.8% of the Canadian population.
Visible Minority groups in Thunder Bay
In 2001, the visible minority population of the CMA of Thunder Bay (excluding
Aboriginal peoples) comprised 2.2% of the population. In 2006, the total
visible minority population comprised 2.7% of the population. The visible
minority population of Thunder Bay as a percentage is significantly less than
(i.e. 1/10th of) the Ontario’s 22.8%. 3
Immigrants to Thunder Bay
Age Characteristics of Aboriginal and nonAboriginal Populations
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
32
The Aboriginal population of Thunder Bay is significantly younger that their
non-Aboriginal counterparts. In 2006, the median age of the Aboriginal
population was 26.3 years, compared to 42.8 years for the non-Aboriginal
population. For Thunder Bay’s non-Aboriginal population, 23.2% of the
population is 19 years of age or younger. This is considerably smaller
than the Aboriginal population, 39% of whom are 19 or younger. See this
information displayed in Figure 1 below.
Figure 1: Population pyramid for the Aboriginal and non-Aboriginal
populations, Thunder Bay, 2006 2
In 2006, immigrants (i.e., those people who are or who have ever been landed
immigrants) comprised 10.4% of the population. Thunder Bay’s immigrant
population represents less than half of the provincial average of 28.3%. 4
A total of 680 people immigrated to Thunder Bay between 2001 and 2006.
This number represents 0.6% of the population of Thunder Bay. During the
same period, 580,740 people immigrated to Ontario from another country,
representing 4.8% of the total population. 5
Statistics Canada data reflects that Thunder Bay has a smaller visible
minority population and fewer immigrants when compared to the provincial
average for Ontario. As well, Thunder Bay’s low rate of immigrant population
growth is reflective of a five decade trend.6
Census data information resonated with research participants. Many
participants spoke to the need to welcome racialized newcomers to Thunder
Bay for social, economic, and growth of the city. One respondent wrote:
“Thunder Bay needs to create a welcoming community
philosophy and put dollars behind it”.
Summary of Socio-Economic and Demographic
Contexts
Dimension IndicatorAreas for Improvements
Demographics Growth, Thunder Bay attracts fewer immigrants Social Inclusion and has fewer racialized residents than the provincial average
The Aboriginal population of Thunder
Bay is young, large, and growing. The
non-Aboriginal population is older and
decreasing
Attracting and retaining Aboriginal and
other racialized people to Thunder Bay is
needed for population growth
2. Figure 1 data derives from the Statistics Canada 2006 Aboriginal Population Profile for
Thunder Bay
3, 4, 5, 6. This Statistics Canada trend data comes from Ontario Trillium Foundation (OTF),
Community Profile, Northwestern Ontario. The OTF Community Profile report used Statistics
Canada 2007 census data. Go to www.trilliumfoundation.org/your_community_in_profile/
english/reports_pdf
Thunder
Bay’s
future
population
growth is
dependent
upon
Aboriginal
peoples
living here
and coming
to the city
as well as
attracting
new
immigrants
to Thunder
Bay.
33
A PLAN FOR ACTION
• From 2001 to 2006 (5 years), the Aboriginal population in Thunder Bay grew from
8,205 to 10,055 people (22.6%): the non-Aboriginal population shrank by 1%
The city of Thunder Bay needs newcomers for its growth. How can Thunder
Bay meet this need? Thunder Bay needs to become a welcoming city if it
hopes to attract and retain Aboriginal peoples and other racialized peoples.
Richard Florida writes about the composition of vibrant cities. He states
that “cities need to invest in and build up their real capital—the kind that
comes from the energy and talent of their people”. To do this, cities must
acknowledge “that all human beings have a fundamental right to use their
full talents and create abilities…” 7 for social cohesion.
TBCARD lists the four aspects of social cohesion:
• Material conditions (employment, income, housing, education)
• Public order
• Social and economic inclusion in the community
• Equality of social and economic opportunities
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
34
These four aspects of social cohesion create welcoming and vibrant cities.
In 2005, the Canadian-based Centre for Research on Immigration, Ethnicity,
and Citizenship (CRIEC) created five dimensions (each with impact indicators)
for cities to create benchmarks and to assess anti-racism/anti-discrimination
changes annually. 8
CRIEC Socio-economic and demographic dimensions and results indicators
for social inclusion are shown in the following table.
Thus, the four aspects of social inclusion listed above align with the CRIEC’s
socio-economic dimensions and impact indicators. Social cohesion can be
measured through several dimensions and indicators. The Canadian Coalition
Against Racism and Discrimination’s (CCMARD) 10 common commitments
for municipalities also address these aspects of social inclusion (i.e.
education, public order, labour market, housing, and inclusion). TBCARD
presents research findings for each of the ten commitments in the following
section.
2. Research findings Organized
through THE CCMARD 10 common
commitments
35
In this section, TBCARD presents data from the Canadian Council for Social
Development poverty data (2007), Statistics Canada 2006 census, the Thunder
Bay Quality of Life Survey (2008), focus groups, community consultations,
interviews, and documents. The data is organized under each of the 10
common commitments. For each commitment, TBCARD presents the
information through four headings:
• Existing responses (programs and services) in Thunder Bay
Table 4: CRIEC Socio-economic/demographic dimensions and results
indicators
DimensionsImpact Indicators
Poverty
1. Poverty rates
2. Unemployment rates
3. Income levels
Residential Segregation
By neighbourhood:
1. Concentration of members
2. Modes of tenure (ownership, tenancy)
Public Order 1. Number and nature of hate crimes
2. Racist incidents reported
3. N
umber of discrimination complaints
made and registered
4. Offence rates by neighbourhood
Education
secondary
1. Attainment levels for secondary & post-
City Administration
Of racialized groups:
1. Representation rate overall
2. Representation rate in management
3. Representation rate in cultural bodies
4. Participation rate in city council and its
committees
7. Florida, R. (2009). Ontario in the creative age. Available @ www.martinprosperity.org/newsand-events
8. from the CRIEC case study research commissioned by UNESCO (available @ www.unites.
uqam.ca/criec/pdf/CRIEC%20Cahier%2028%20(en).pdf
• Needs identified through the research
• Opportunities for addressing the gaps
• Promising practices as models for addressing gaps.
Commitment 1: Increase vigilance against systemic
and individual racism and discrimination
Existing responses
At present Thunder Bay has no coordinated, systemic measure in place
to increase vigilance against systemic and individual forms of racism and
discrimination.
A PLAN FOR ACTION
Implications
Needs Identified
Promising Practices
Focus group participants voiced their unanimous support for increased
vigilance against systemic and interpersonal forms of racism and
discrimination in the city of Thunder Bay. Participants identified that within
Thunder Bay racism occurs daily for them. Participants’ examples included
all areas of the city including their neighbourhoods, public spaces, and
public transit as well as all sectors including grocery stores and other retail
establishments, policing, education, health care, and the workplace. In
all instances participants identified that it is normal to be treated without
respect, through racial slurs and violence against them.
Two signatory cities undertook city-wide campaigns. The City of Windsor in
Ontario and the City of Montreal in Quebec undertook social cohesion and
anti-racism campaigns respectively.
Research participants did not have a single, common idea for how to address
this commitment. Participants in focus groups and broader consultations
provided opportunities to address this commitment:
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
36
• Public education including research to measure the contributions
that Aboriginal peoples make to the economy of Thunder Bay
1. T
he Corporation of the City of Thunder Bay and other funding
partners commission a research study of the economic
contributions of Aboriginal peoples to the community
2. T
he Corporation of the City of Thunder Bay and other willing
partners lead by committing to making racism and discrimination
unacceptable within the community, through a city-wide antiracism/anti-discrimination campaign.
• A city-wide anti-racism/anti-discrimination campaign.
Each is described below.
Participants identified the need for increased vigilance in the retail sector.
Within this sector, participants suggested a research project to demonstrate
the economic contributions of Aboriginal organizations, groups, individuals
who come here for medical and other services, and who do business in
the city. Measuring the economic contributions may reduce the myths and
misconceptions about Aboriginal peoples’ contribution to the economy of
Thunder Bay, and also provide an entry point for talking with retailers and
businesses about racism and discrimination within the sector.
Focus group participants, respondents in broader consultations, and other
city representatives emphasized the need to cross sectors and provide
multiple opportunities to make racism and discrimination unacceptable
within the city and for its peoples. Some focus group participants saw this
work as similar to non-smoking or seat belt wearing campaigns. At one time
these activities (smoking and not wearing seat belts) were accepted. These
examples demonstrates that coalitions can—through intensive campaigns
and long term initiatives—raise awareness, provide education, and reeducate people about negative activities. Participants believe that similar
outcomes for making racism and discrimination unacceptable could be
achieved through concerted and sustained efforts in Thunder Bay.
2. M
onitor racism and discrimination in the
community more broadly as well as municipal
actions taken to address racism and discrimination
Existing Responses
There are no existing responses at the local level. Some focus group
participants believed that the Ontario Human Rights Commission is no longer
monitoring racism and discrimination within communities in Ontario. This
has created a gap because local organizations do not formally document or
respond to racialized situations.
The newly formed Human Rights Legal Support Centre offers legal advice and
assistance to individuals and communities across Ontario. The centre can help
people to resolve disputes involving rights under the Human Rights Code.
Needs Identified
Focus group and broader consultation participants illuminated situations within
hospitals, the city, jails, schools, and policing where they had encountered or
witnessed unequal treatment. They expressed frustration that there was no
existing body to address and take action against racism and discrimination.
To increase monitor racism and discrimination holistically requires dedicated
resources within an accessible location. Participants spoke to the need
for an Ombud’s office for increasing vigilance and for monitoring racism
and discrimination within Thunder Bay. The Urban Aboriginal Task Force:
Thunder Bay Final Report (2007) previously identified the need for an
Ombud’s Ofiice. The authors recommended an “Aboriginal Ombudsman…
to investigate complaints of racism and discrimination so as to bring about
necessary changes to racism practices” (p. 121). 9
9 McCaskill, Fitzmaurice & Desmoulins (2007). Urban Aboriginal Task Force: Thunder Bay Final
Report.
37
A PLAN FOR ACTION
Opportunities to Address Gaps
The focus group recommendations from above are summarized:
Existing Responses
One group provided potential recommendations to monitoring racism and
discrimination in the community through the existing 211 services within the
Lakehead Social Planning Council. The 211 phone-line service has the capacity
to take calls through its staff. The staff would require extensive training to take
complaints, because anti-racism work falls outside of their mandate.
At present Thunder Bay has no systemic measure in place to inform and
support individuals who experience racism and discrimination.
Other participants addressed a gap related to this suggestion. They
noted that the current 211 service does not provide real-time or on-site
multi-lingual services for callers. Participants spoke to the Thunder Bay
Multicultural Association as the only organization that provides translation
services within the city. A source to monitor racism and discrimination within
the community would require the capacity to take calls, and to do the work in
multiple languages.
Focus group and broader consultation participants addressed the need to
take actions against racism and discrimination as well as to support those
individuals who experience racism and discrimination as a holistic approach
to the problem. For example, participants noted they had not spoken out
against racism in institutions because of fear of reprisal. Participants who
were receiving services as a patient in a hospital, for example, believed that
if they complained about the racialized treatment of others that they had
witnessed, their services or those who they were with at the hospital could be
compromised.
The 211 service uses TeleInterpreters’ Language Services to work
with interpreters for callers to the service who do not speak English.
TeleInterpreters offers interpreters to support 170 languages. This
contradiction in focus group members’ perceptions of services available
and the available services suggests that a marketing opportunity exists to
improve 211 services to racialized communities.
Promising Practices
The model of an Ombud’s Office exists in Thunder Bay at Confederation
College. Representatives from other cities did not provide promising
practices related to this common commitment. They addressed the need
for multi-lingual services in diverse communities. They also addressed the
proactive work of addressing racism and discrimination, and monitoring
progress through annual, public reporting by the Corporation and other
publicly-funded boards and agencies that report to City Council.
Needs Identified
Opportunities to Address Gaps
Focus group participants unanimously supported establishing a system
for complaint mechanisms and supports for those who make complaints.
Respondents spoke to an independent body to address complaints of racism
and discrimination that happen within a range of institutions, organizations,
and public spaces in the city.
Promising Practices
Other city representatives did not address this common commitment
through their interview data. This gap does not mean that other cities are
not addressing this common commitment. More information is needed to
adequately address this commitment.
The focus group recommendation is summarized from above:
The focus group recommendation is summarized from above:
1. The Corporation of the City of Thunder Bay and partners address
the gap of monitoring racism and discrimination within the
community
2. Develop an Ombud’s office within the community.
3. Inf
orm and support individuals who experience
racism and discrimination
“There needs to be a contact point where persons who are
experiencing racism and discrimination can go to have their
cases documented and addressed.” (Breakfast Participant)
1. P
ersons who address incidents of racism and discrimination need
to be supported for all incidents that occur within the community
through an independent body.
4. S
upport policing services in their efforts to be
exemplary institutions in combating racism and
discrimination
39
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
38
Opportunities to Address Gaps
Opportunities to Address Gaps
From 2004-2008, the Thunder Bay Project Management Team (PMT) of the
Diversity in Policing project undertook to support policing services. Through
this project the Thunder Bay Police Services (TBPS) took steps to reduce
systemic racism within its institution.
The TBPS does not track racial complaints; rather complaints are logged
by officer badge number. Although this complaint system identifies biased
police officers, it fails to identify any systemic level of complaints, or overall
bias in the TBPS’ interactions with racialized peoples that may indicate
racial profiling. As well, the TBPS should consider tracking complaints by
areas or neighbourhoods to identify under-policing (not being available when
residents need police services) or over-policing (having a persistent police
presence not justified by the number of crimes). Collecting data differently
could assist the TBPS to better identify gaps in its services to the community.
To address systemic racism the TBPS:
• reviewed its employment systems policies and procedures
• developed and provided anti-bias training to its officers
• created a Standing Committee—the Community Diversity Committee, and
• sought to increase representation of women and racialized peoples
throughout its service.
While this long-term initiative is lauded; it has not eliminated perceptions
and persistence of racism in policing.
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
40
Needs Identified
In April 2009 youth who gathered for an Aboriginal Youth Forum in Thunder
Bay noted that racism and discrimination persist in their relations with local
police (Rising Voices Youth Forum, April 4, 2009).
According to Statistics Canada census data, relations between all youth and
police in Thunder Bay are challenging. In 2006, the rate per 100,000 of youth
aged 12-17 who committed criminal offences in Thunder Bay was 12,200,
down slightly from the 2005 rate of 12,740. This rate is more than twice the
provincial average of 5,490 youth criminal offenders per 100,000 youth. 10
In late spring 2008, the Diversity In Policing project conducted a final project
evaluation of the TBPS’ implementation of recommendations from the
employment systems and policy reviews. The evaluation showed that the
TBPS had implemented approximately half of the recommendations made
by the expert consultants. The evaluation findings identified the need for the
TBPS to continue to implement the remaining recommendations.
Focus group participants noted that the TBPS needs to continue to
work towards a representative service. Based on the continued need to
recruit racialized staff, the TBPS also needs to integrate diversity into its
organization. The Community Diversity Committee, a standing committee
established by the Chief, has not met since spring 2008.
Focus group participants spoke to the need to go back to those who
experience racism and discrimination to gain feedback on the success of
policing initiatives.
Focus group participants saw opportunities to address gaps in policing as
well as other institutions. Whether for policing, City services, education
services or other sectors, Aboriginal and other racialized peoples are best
positioned to assess the gaps and assess the success of initiatives. Focus
group participants recommended that Thunder Bay ask Aboriginal and other
racialized peoples their perceptions of racism and use socio-economic,
demographic to develop baseline data. The changes in Aboriginal and
other racialized peoples’ perceptions and material conditions can act as a
barometer of change in the city.
Promising Practices
The work of the PMT demonstrated leadership and innovation in the area of
diversity in policing. The community-police partnerships and the initiatives
they jointly undertook led police services across the country. Their work on
addressing systemic racism through employment and policy review systems,
recruitment initiatives, and training are applicable to other public institutions.
The project description is available on the Diversity Thunder Bay website at
www.diversitythunderbay.ca. The policing project can be accessed under the
heading of Diversity in Policing project.
The focus group recommendations are summarized from above:
1. The Thunder Bay Police Services (TBPS) are positioned to take a
leadership role and share its anti-racism and anti-discrimination work
2. T
he TBPS has an opportunity to report out its ongoing progress
with anti-bias policing through an annual public reporting
3. T
he TBPS needs to develop and implement measures to track
complaints so that allegations of racism and discrimination
by uniform and civilian staff can be flagged and addressed by
management for resolution.
5. P
rovide equal opportunities as a municipal
employer, service provider and contractor
10. This data derives from the 2008 Quality of Life survey. To view the full survey, go to www.
thunderbaysurvey.com/
41
A PLAN FOR ACTION
Existing Responses
This common commitment focuses on the Corporation of the City of
Thunder Bay. Focus group respondents understood and talked about the
Corporation as ‘the City’ and its departments with programs and services.
The Corporation’s Voluntary Workforce Profile survey tool did not collect data
to reflect participation rates in management. Data on participation rates in
cultural bodies and/or City Council was unavailable.
Existing Responses
3. I n 2008, the Corporation of the City of Thunder Bay hired an Aboriginal
Liaison worker to connect the Corporation to urban and reserve-based
Aboriginal communities.
1. City Council led in signing the Declaration
2. The Corporation’s Voluntary Self-Identification Workforce survey
3. The Corporation developed and hired for the Aboriginal Liaison position
4. The Corporation developed policies and procedures related to diversity,
equity, and human rights workplace issues
5. The Corporation offers diversity training courses through Human Resources
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
42
4. T
he Corporation of the City of Thunder Bay has Human Rights policies and
procedures to mandate equitable recruitment, hiring, and employment
practices. These policies encompass racial, sexual, and workplace
harassment and a commitment to employment equity within its hiring
procedures and practices.
5. T
he Corporation delivers a range of diversity and human rights training
courses to its staff. These include: Diversity Training, Aboriginal Cultural
Awareness Programs, Harassment and Bullying, and Accessibility Awareness
Training. As well, the Corporation provides Respect and Acceptance training
for its staff who work closely with the Fort William First Nation.
Each of these practices is described in further detail below:
The Transit Division conducts diversity training and an Ambassadors
Customer Service Course (6 week program – 24 hours) for Transit Operators.
1. Focus group participants reported that City Council demonstrated leadership
by signing the Declaration Against Racism and Discrimination. They believed
that this leadership should continue by implementing the Plan of Action.
Needs Identified
2. In 2005 the Corporation introduced a Voluntary Workforce Profile survey tool.
The work force survey provides each employee the opportunity to “selfidentify”, or declare voluntarily, that she/he is a member of one or more of
the designated groups –women, aboriginal peoples, persons with disabilities
and members of visible minorities. The 2005 baseline survey provided
a snapshot to the Corporation of how its current work force reflects the
general population of the Census Metropolitan Area (CMA) of Thunder Bay.
In 2008 The Corporation repeated the Voluntary Workforce Profile Survey.
The Corporation updated the baseline data from the 2006 Statistics Canada
Census survey data. The Corporation found the following:
a. From a gender perspective, the Thunder Bay CMA has a 49% male
population and a 51% female population. The Corporation has 47% male
employees and 53% female employees.
b. According to the Thunder Bay CMA census data, 8.31% of the population
is Aboriginal. 6.5% of the Corporation’s employees self-identified as
Aboriginal. At 8.31%, Aboriginal Peoples represent the fastest growing
segment of the designated groups.
c. Thunder Bay CMA has a 2.71% visible minority population and within the
City of Thunder Bay has 3.8% of its employees self-identified as members
of a visible minority group.
d. Thunder Bay statistics are not available for persons with disabilities. Ontario
statistics put 15.5% of Ontarians as persons with disabilities. The Corporation
has 12.1% of its employees who self-identified as persons with disabilities.
Focus group participants identified the following needs within the
Corporation:
1. P
rovide equal opportunities through a representative workforce, training,
and policy/program review for systemic biases
2. Provide mandatory anti-racism training for bus drivers
3. Develop an equity vision that crosses departments and functions
4. Establish accountabilities to multiple stakeholders
5. P
artner with racialized groups and individuals to guide anti-racism/antidiscrimination work.
43
A PLAN FOR ACTION
The five (5) responses to this common commitment were that:
1. The 2008 Voluntary Workforce survey findings demonstrated the need for
greater representation of Aboriginal peoples in the Corporation. As well,
the Corporation could improve the survey information by collecting data
that reflects where racialized peoples are working within the Corporation.
Participants suggested that the Corporation consider a job mentoring
program for racialized peoples, similar to the program implemented by the
City of Toronto. This recommendation relates to economic participation for
groups traditionally discriminated against for employment. It may also serve
to bolster the Corporation’s recruitment efforts of racialized groups.
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
44
Focus group participants stressed neighbourhood recreation facilities and
programs for racialized children and youth, especially those living in poverty.
Pools, skating rinks, and City-run programs such as playgrounds are free,
accessible, and necessary for youth who cannot access fee-based sports and
recreation programming. Participants in several focus groups suggested that
City administration examine its Pro Kids program to ensure that there are no
systemic barriers to Aboriginal and racialized families accessing this program.
On another level, focus group participants identified the opportunity for the
City to review the grants distributed to organizations for the previous several
years. This review would target Aboriginal and other racialized groups and
the percentage of funding received by them to check for systemic bias and to
ensure that racialized groups can/are accessing available funding.
2. Participants agreed that City bus drivers need more training than
they currently receive. Most groups spoke to incidents involving public
transportation and City employees as a source of racialization and racism
against them.
Many participants acknowledged the Corporation’s recent hiring of the
Aboriginal Liaison. They noted her work within Aboriginal communities to
build alliances with the Corporation. They believe that the Aboriginal Liaison
position is a good first step and that more needs to be done to build on
this work. Participants recommended more workers to address a broader
range of equity areas (persons with disabilities, newcomers from other
countries and from First Nations and other Aboriginal communities, etc.).
Participants from one focus group recommended moving this position into
the City Manager’s office to better address the range of activities across the
Corporation and with communities, and to grow this position into an office
with other equity workers. The City of Edmonton uses a similar model for its
equity work.
3. The participants saw the Corporation having a vision statement for equity
to embed equity into its wider vision, mandate, and all departments and
activities. They saw this vision as a needed first step to be implemented
through the Strategic Plan.
the city. This acknowledgement would demonstrate commitment and
leadership in the city.
The Corporation’s accountability needs to be publicly communicated through
multiple channels (e.g. the City of Thunder Bay website, annual public forum,
etc.). Participants saw an annual reporting as well as a City [councilors,
officials, and senior administrators] presence for events throughout the year
(e.g. Human Rights Day, Black History Month, Day for the Elimination of
Racism and Discrimination, International Women’s Day, etc).
5. R
espondents noted the need for partnerships. Participants suggested
multiple potential partnerships for the Corporation to engage:
•O
rganizations (e.g. Diversity Thunder Bay, Thunder Bay Mulitcultural
Association, Indian Friendship Centre)
• Neighbourhoods (e.g. racialized or poorer neighbourhoods)
• Institutions (e.g. police, schools, hospitals)
•C
ommunity groups and other peoples who experience discrimination
(i.e. persons with disabilities, GLTBQ [gay, lesbian, transgendered,
bisexual, questioning], youth, and women).
Participants were insistent and clear that the Corporation work with existing
and established groups and initiatives within the city to build on the established
capacity and the work towards eliminating racism and discrimination.
Participants from focus groups also suggested that City Councilors become
more invested in the work of their groups. They believed that having these
community leaders supporting their work would signal its value to the larger
community.
Promising Practices
The City of Toronto developed an equity lens which it applies to all of the
policies, procedures, and practices within the Corporation. It describes an
equity lens as
“… a tool to be used by Council and the Toronto Public Service
to identify and remove barriers and reinforce best practices
in the planning, development and evaluation of policies,
services and programs. The tool has four functions: Diagnosis,
Measurement, Evaluation, and Identifying and Celebrating
Accomplishments”.11
4. All focus group participants spoke to commitment and accountability. One
group stressed the importance of the Corporation and/or City Council
acknowledging the presence of systemic racism and discrimination within
11 Available @ www.toronto.ca/diversity/equity-lens.html
45
A PLAN FOR ACTION
Opportunities to Address the Gaps
None of the interviewees noted that their cities have a stand alone policy for
diversity. Diversity is embedded within the institution. To implement diversity
across the organization in all cities, except Winnipeg, diversity staff is housed
within the City Manager’s office, rather than within a department (such as
Human Resources).
Signatory city respondents provided a range of activities under
commitment 5:
46
1. Translation services and alternative formats for web sites and print
materials (Calgary [not consistently], Edmonton, Toronto, Winnipeg)
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
2. Diverse workforce census (Calgary, Edmonton, Toronto, Winnipeg)
3. Respectful workplace strategy (Calgary, Edmonton)
4. Urban Aboriginal strategy/office (Calgary, Edmonton, Toronto)
5. Reference group(s) (Calgary, Edmonton, Toronto, Winnipeg)
The focus group recommendations from above are summarized:
1. C
ity Council acknowledge the presence of systemic racism and
discrimination within the city
2. T
he Corporation and City Council convene an advisory committee
of representatives from racialized and other groups facing
discrimination
3. T
he Corporation develops a vision statement and integrates
measurable outcomes within the Strategic Plan
4. T
he Corporation lead in developing partnerships to address racism
and discrimination in all aspects noted in the Plan of Action
5. C
ity Councilors acknowledge and attend events put on by
Aboriginal and other racialized peoples and youth to demonstrate
support for their work
6. T
he Corporation through City Council publicly and annually report
out to community on the Plan of Action work through multiple
channels to reach all stakeholders
7. T
he Corporation and City Council maintain neighbourhood
recreation facilities and programs for youth
8. The Corporation provide anti-racism training to its transit workers.
6. Equity vision statement (Calgary, Toronto, Winnipeg)
7. Diversity training courses (Calgary, Edmonton, Toronto, Winnipeg)
8. Racial complaints and/or human rights process (Toronto, Winnipeg)
9. Expanded mandate (beyond racial) (Calgary, Edmonton, Toronto, Winnipeg)
The Corporation of the City of Thunder Bay has already undertaken some
of these activities, as indicated in the Existing Responses above. Working
with signatory cities and organizations within Thunder Bay will enhance the
Corporation of the City of Thunder Bay’s equity responses.
6. S
upport measures to promote equity in the labour
market
Equity in the labour market may involve a range of partners—Chambers of
Commerce, public, private, and not for profit sector employers, employment
organizations, and professional bodies. For all employers and those who work
with potential employees the key consideration is removing systemic barriers
that impede fair and equitable access for full participation of Aboriginal and
other racialized peoples in the economic life of the community.
Existing Responses
No existing responses were identified for equity in the labour market.
47
A PLAN FOR ACTION
Interviewees from signatory cities noted that their cities have expanded their
mandate to diversity, to incorporate the range of racism and discrimination.
The City of Calgary defined diversity as: “…acceptance and respect. It means
understanding that each individual is unique, and recognizing individual
differences. These can be along the dimensions of race, ethnicity, gender,
sexual orientation, socio-economic status, age, physical abilities, religious
beliefs, political beliefs, or other ideologies.” (interview, October 2008)
Needs Identified
Income
TBCARD examined census data for racialized peoples through three areas:
unemployment rates, income, and earnings. These areas were examined
to determine systemic barriers or structural inequities within employment.
These data may be used for future indicators of progress towards equity in
the labour market.
In this section we present income and the earnings that represent income as
two aspects of income levels. Statistics Canada defines income as “the total
money income received from various sources during calendar year 2005 by
persons 15 years of age and over”. 16
The term Employment Insurance (EI) refers to funds workers may be eligible
to collect while not employed. Statistics Canada data on unemployment
reflect census information using the term ‘unemployment rate’ to convey the
percentage rate of the population or any sub-groups within the population
that is/are unemployed at the time of the census-taking.
General Population
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
48
In 2006, the unemployment rate in Thunder Bay was 7.4%, down from 8.8%
in 2001. Despite the improvement over time, the 2007 rate remained higher
than the provincial average of 6.4%.12
Aboriginal Peoples
Thus, unemployment
rates for the general
population of
Thunder Bay were
higher than the
provincial average
in 2006. More
significantly, the
unemployment rate
for Aboriginal peoples
in Thunder Bay is
nearly double that of
their non-Aboriginal
counterparts in the
CMA and also higher
than their Aboriginal
counterparts
provincially. Aboriginal
youth had the highest
unemployment rates.
The 2006 Census reports the unemployment rate for Aboriginal peoples in
Thunder Bay at 14.5%. This is double the rate for the general population of
Thunder Bay of 7.4% during the same period. The unemployment rate for
Aboriginal peoples of Thunder Bay is also higher than the provincial rate for
Aboriginal peoples at 12.3%. 13
Aboriginal youth had the highest unemployment rates in Thunder Bay. In
2006, 20.9% of First Nations youth aged 15 to 24 years were unemployed, as
were 18.9% of Métis youth, and 14.3% of non-Aboriginal youth. 14
Immigrants
In 2006, the unemployment rate for recent immigrants in Thunder Bay (i.e.,
those who entered Canada between 2001 and 2006) was 8.6%. The rate for
recent immigrants to Thunder Bay is significantly lower than the provincial
average of 12.3%, and the national average of 11.9%. 15
To explore potential income disparities for groups within the population
TBCARD examined available income data for the following populations:
• Individuals, families, and households within the general population
• Aboriginal peoples
• Lone parent families
General Population
Statistics Canada defines median income of a specified group of income
recipients as” that amount which divides their income size distribution in
half, i.e., the incomes of the first half of individuals are below the median,
while those of the second half are above the median”. 18
In 2005 for Thunder Bay, individual’s median income was $27,546,
comparable to the provincial median of $27,258. Women in Thunder Bay
continue to be paid less than their male counterparts reporting a median
income of $21,459 as compared to men who earned $35,903. This disparity
was slightly larger than the provincial average of $21,669 for women and
$34,454 for men. 19
Finally, a total of 71.5% of Thunder Bay census survey respondents’ income
derived from employment (versus income derived from government
supplements), compared to the provincial median of 77.4% from employment
income. This percentage is down slightly from 2000. In that census 73.7%
of Thunder Bay’s income came from employment as compared to 78.7%
throughout the province. 20
Statistics Canada also collects information on family incomes. In the 2006
census, Thunder Bay families reported a median income of $68,397. This
family income amount is slightly lower than the provincially-reported family
average of $69,415. 21
As well, census data are available for household incomes. Unlike individual
and family incomes of Thunder Bay, the median household income reported
for Thunder Bay did not match the provincially-reported average. In 2005,
the median household income within the CMA of Thunder Bay was $53,686,
which is only 88% of the provincial average of $60,455. 22
12, 15. Statistics Canada 2006 Census data
13, 14. This data derives from the Statistics Canada 2006 Aboriginal Population Profile for
Thunder Bay, Census of population, 2006
16, 17. This data derives from the Statistics Canada 2006 Aboriginal Population Profile for
Thunder Bay, Census of population, 2006.
18, 19, 20, 21, 22. Statistics Canada 2006 Census data.
49
A PLAN FOR ACTION
Unemployment Rates
It is important to note that in the Aboriginal Community Profile for
Thunder Bay (2006) Statistics Canada researchers state that “In
understanding these [income] data, it is important to note that, in Thunder Bay,
8% of the Aboriginal population 15 and over and 4% of the their non-Aboriginal
counterparts reported having no income in 2005”. 17 Thus, twice as many
Aboriginal peoples as non-Aboriginal peoples reported having no income in 2005.
Aboriginal Peoples
Earnings
The median annual income for Aboriginal peoples age 15 and up has
increased over the census periods although it remains below the overall
Thunder Bay average and the average across Ontario for Aboriginal people.23
While income represents the amount of money that an individual or a family
has, earnings represent income that comes from employment. The earnings
indicator provides a closer look at who claimed employment income in the
census survey for the previous year as well as the income disparities that
exist between groups of income earners in Thunder Bay.
In 2005, the median income for Aboriginal people in Thunder Bay was
$16,734. Aboriginal peoples’ median income amount was 58% of the median
for the non-Aboriginal population ($28,631) of Thunder Bay.23
Statistics Canada breaks out the census data on median income for
Aboriginal and non-Aboriginal peoples and by age groupings and gender
categories as well.
Table 5: Median income and distribution of total income of Aboriginal and
non-Aboriginal people 15 years of age or older with income, Thunder
Bay, 2005 24
Median income
Aboriginal population
and distribution
Non-Aboriginal population
Both sexes Men
Both sexes Men
Women
In the 2006 census for Thunder Bay as a CMA, 65% of Aboriginal respondents
aged 15-64 years reported earnings in the previous year. The median income
for earnings for Aboriginal peoples ($18,011) is higher than the median
income from all sources ($16, 724) reported in table 6 previously. 26
When considering Aboriginal respondents who worked full-time, full year
(42% of those with earnings) the size of the group decreases while these
respondents reported higher median earnings. For this group the median
earnings rise to $38,886. 27
51
Women
percent
Population 15 years
and over with an income 100.0
100.0
100.0
100.0
100.0
100.0
Under $20,000
56.8
55.3
58.0
37.3
27.8
46.3
$20,000 to $39,999
24.1
18.9
28.7
29.0
26.1
31.7
$40,000 and over
19.0
26.0
13.2
33.7
46.2
22.0
Median income ($)
$16,724
$17,196 $16,301 $28,631
$36,955 $21,906
• 57% of Aboriginal peoples’ (both sexes) income distribution is below
$20,000
• 37% of non-Aboriginal peoples’ (both sexes) income distribution is below
$20,000
• Aboriginal peoples’ median income is 58% (or $11,900) of non-Aboriginal
peoples’ median income in Thunder Bay.
Lone-parent Families
In Thunder Bay the median income for the group of lone parent families with
females at the head is $32,291. This groups’ median income is 22% lower
than the provincial average of $36,496 for lone parent families with females
at the head. 25
“Poverty and social exclusion are key contributing factors in
racism: We need to turn our thinking to addressing social and
economic inclusion.” (Breakfast participant)
Statistic Canada researchers compared median earnings for Aboriginal and
non-Aboriginal populations across two census surveys, taken in 2001 and
2006. Survey respondents provided data for the years prior to the survey, i.e.
2000 and 2005 respectively. The table below also compares median earnings
across race and gender.
Table 6: Median earnings, in 2005 constant dollars, of full-time full-year
earners by population group, Thunder Bay, 2000 and 2005 28
2000
Sex
Aboriginal
population
Both sexes
2005
Non-Aboriginal population
Aboriginal population
Non-Aboriginal
population
39,238
44,912
38,886
44,592
Men
47,156
51,092
47,328
51,740
Women
33,708
36,707
33,285
37,224
dollars
Notes: Full-time full-year earners worked 49 to 52 weeks during the year preceding
the census, mainly full-time (i.e., 30 hours or more per week). Individuals with selfemployment income are included. Those living in institutions are excluded.
Sources: Statistics Canada, censuses of population, 2001 and 2006.
23, 24. This data derives from the Statistics Canada 2006 Aboriginal Population Profile for
Thunder Bay, Census of population, 2006.
25. This data derives from the 2008 Quality of Life survey. To view the full survey, go to www.
thunderbaysurvey.com/
26, 27, 28.This data derives from the Statistics Canada 2006 Aboriginal Population Profile for
Thunder Bay, Census of population, 2006.
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
50
Aboriginal Peoples
For income
• Aboriginal and non-Aboriginal respondents’ earnings shrank from 2000 to 2005
Opportunities to Address the Gaps
earnings
• Aboriginal respondents’ earning remained consistently lower than their
non-Aboriginal counterparts (87% of)
Many of the opportunities that focus group participants addressed for
commitment 5 above are applicable to equity for all employers, particularly
public sector employers. Specifically, focus group participants re-iterated the
following opportunities for employers in Thunder Bay:
surveys and
given the same
range of hours/
week and
• Aboriginal men earned $47,328 (22% greater than the median for
Aboriginal population, both sexes)
• Aboriginal women earned $33,285 (86% of the median for Aboriginal
population, both sexes)
• Across the census periods and as a group, non-Aboriginal women saw their
median income decrease from the non-Aboriginal median for both sexes.
weeks worked,
Aboriginal
peoples had
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
52
lower median
Average earnings showed similar gendered disparities. Aboriginal
respondents reported average earnings of $44,250. By gender, men reported
average earnings of $52,826 (19% higher) while women reported average
earnings of $36, 340 (18% lower). 29
87% of) than
their nonAboriginal
counterparts
•R
ecruiting more Aboriginal and racialized staff to reflect the working-age
population
•J
ob mentoring for immigrants who may have skills but are unfamiliar and/
or inexperienced with Canadian workplaces
•D
eveloping an advisory body of Aboriginal and racialized peoples to guide
equity work in the workplace
Each of these opportunities has been discussed previously under
Commitment 5 above.
earnings
(approximately
• Anti-racism training for staff in workplaces
Focus group participants identified individual and systemic discrimination
in looking for, finding, and keeping employment in Thunder Bay. The
respondents noted that when unemployment rates go up so do higher levels
of racism against Aboriginal and other racialized peoples in the community.
Focus group participants also identified a need for mentoring Aboriginal and
racialized peoples in workplaces.
Promising Practices
The City of Toronto has two job mentoring programs: the mentoring
immigrant program and Career Bridge. Each is described below.
Mentoring Immigrant Program:
Profession to Profession
in Thunder
Bay. Also,
In response to employment barriers faced by internationally trained
professionals, the City, in partnership with various community agencies,
conducts a program that matches experienced professionals of the
Toronto Public Service (mentors) with internationally educated immigrant
professionals (mentees). Mentors provide advice and guidance to assist
the mentees in finding employment in their fields of expertise. The goal of
the program is to provide the skilled immigrant with practical advice and
an opportunity to build the networks critical to a successful job search.
City mentors benefit from an opportunity to develop their leadership and
communication skills and gain an understanding of the experiences of skilled
immigrants living in their community. The result for the City of Toronto is a
workforce that is more experienced in cross-cultural understanding, and
ultimately, creates a more inclusive work environment.
Aboriginal and
non-Aboriginal
women
consistently
had lower
median
earnings than
their male
Career Bridge is a paid internship program designed to overcome workplace
barriers faced by professionally educated immigrants seeking to build
careers in Canada. Internships usually last from four to six months
counterparts,
being below the
For more information visit the Career Bridge website at www.careerbridge.ca
median for both
sexes.
29. This data derives from the Statistics Canada 2006 Aboriginal Population Profile for Thunder
Bay, Census of population, 2006.
53
A PLAN FOR ACTION
across census
• Institutions and organizations collaboratively research, develop,
and provide anti-racism/anti-oppression training for its staffs.
Begin with school staff, hospital staff, landlords, business owners,
and transit workers.
• Local employers receive training to recognize and address racism
and discrimination in hiring and retention of Aboriginal and other
racialized peoples.
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
54
7. Support measures to challenge racism and
discrimination and promote diversity and equal
opportunity in housing.
Existing Responses
In Thunder Bay, two local coalitions receive federal funding under the
Homelessness Partnering Strategy. One group has received one year
funding to transition its hardest to serve clients into more permanent
housing through a wrap-around services model. This initiative will serve
approximately 60 individuals. The other group, comprised of Aboriginal
organizations and individuals, has proposed to create a welcoming centre for
Aboriginal newcomers to the city. Both of these initiatives address racism
and discrimination that Aboriginal, other racialized, and other marginalized
populations face in housing.
Needs Identified
The commitment to equity in housing includes two sources of identified needs:
1. Census data on residential segregation (concentration of members of
groups in neighbourhoods and renting versus owning)
2. Focus group data on needs identified.
even throughout a single city. Poverty can be more highly concentrated
in select neighbourhoods within a city. This organization of poverty,
however, can have a negative impact on the residents and communities
where concentrated levels of poverty are very high, which may translate
into fewer opportunities and community resources being available to
residents.” 30
Immigrants
CCSD researchers found that immigrants in Thunder Bay do not live in high
percentages within the lowest or the highest poverty neighbourhoods. 31
For the neighbourhoods designated as very high poverty neighbourhoods in
Thunder Bay, CCSD researchers found that 2.5% of all poor residents, 2.3%
of Aboriginal peoples, and 3.4% of immigrants live in these Census Tracts. 32
Owning versus Renting
For the Aboriginal population 2,315 respondents of 4,785 (48%) reported
owning the dwelling that they lived in. This compares to the non-Aboriginal
population of which 37,480 respondents of 51,470 (73 %) reported owning the
dwelling that they lived in. 33
For the Aboriginal population, approximately half of the overall owned
dwellings are single detached homes (52%). This percentage is considerably
lower than the non-Aboriginal population in single detached homes (68.3%). 34
Renting versus Owning
For the Aboriginal population 2,470 respondents of 4,785 (52 %) reported
renting the dwelling that they lived in. This is considerably more renters
than the non-Aboriginal population of which 13,920 of 51,470 (27%) reported
renting the dwelling that they lived in. 35
For Aboriginal peoples the percentage of rented dwellings is higher than the
percentage of owned dwellings. The inverse is true for the non-Aboriginal
population of Thunder Bay—i.e. the percentage of owned dwellings is
significantly higher than rented dwellings. 36
Both of these are described below:
1. Residential segregation relates to where people live within the smaller
areas or Census Sub-Divisions (CSDs) in Thunder Bay. CSDs do not always
align with neighbourhoods as we understand them; rather they are created
by boundaries set by the federal government. Residential segregation also
relates to the types of dwellings that people live in. For example, TBCARD
uses this data to determine differences between groups of people as to
whether they rent or own their dwellings.
Residential segregation often relates to areas of poverty within a city.
The Canadian Council on Social Development’s (2007) study found
that “poverty is not always spread evenly throughout an urban area or
30. No page reference in CCSD electronic document.
30, 31, 32. This data derives from CCSD. For more information on the 2007 Canadian Council on
Social Development report see the Literature Review in the Appendices. To access the study go
to www.ccsd.ca/pubs/2007/upp/
33, 34. This data derives from the Statistics Canada 2006 Aboriginal Population Profile for
Thunder Bay, Census of population, 2006.
35, 36. This data derives from the Statistics Canada 2006 Aboriginal Population Profile for
Thunder Bay, Census of population, 2006.
55
A PLAN FOR ACTION
The focus group recommendations from above are summarized:
Number of Rooms/Household
The average number of rooms per household is slightly lower for Aboriginal
peoples’ households in Thunder Bay (6.0) than the non-Aboriginal
population’s average number of rooms per household (6.5). The percentage
for Aboriginal peoples’ number of rooms/household in Thunder Bay is also
lower than the provincial average for Aboriginal peoples (6.3). The average
number of people per household for Aboriginal peoples in Thunder Bay is
higher (0.5) than the provincial average for Aboriginal peoples (0.4). 37
One breakfast participant stated his/her top priority to eliminate racism and
discrimination saying
“Address racism and discrimination that exists in housing for
Aboriginal people.”
participants believed that the City could lead initiatives to foster a dialogue
within neighbourhoods and with neighbours to reduce fear and dispel myths
that people may hold.
Participants also spoke to the Social Housing Reform Act, how it needs to be
actioned, and the need to focus on specialized populations. Some groups noted
the need for additional housing classifications of over- and under-housing.
These classifications relates back to the data in the previous section. In the
census data above, TBCARD noted that the number of rooms per household
was lower than average for Aboriginal peoples, while the number of persons/
household was higher. Focus group participants noted that the combination of
fewer rooms/more residents illustrates under-housing (i.e. too many people
for the space available) for Aboriginal peoples in the city.
Opportunities to Address the Gaps
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
56
• Challenges transitioning to the city
• The need for a welcoming centre for Aboriginal newcomers
• Inadequate affordable housing available in the city
• The racism that Aboriginal and other racialized peoples face by landlords
and neighbours
• The need for action on the Social Housing Reform Act.
Focus group participants spoke to the challenges that they faced
transitioning to the city and the many services they needed to access. Some
participants believed that programs and services are unnecessarily difficult
to access. They spoke to the stress this added to their experiences coming to
the city. As well, shelter is a basic need. If newcomers cannot find shelter in
Thunder Bay they will remain homeless, they will live in unsafe or unhealthy
conditions, or they will leave the city. None of these outcomes portray
Thunder Bay as a welcoming city.
The Urban Aboriginal Task Force: Thunder Bay final report (2007) previously
identified the need for a newcomer centre for Aboriginal peoples in Thunder
Bay. In 2008, the Aboriginal Housing and Homelessness coalition identified
the same need for a centre through its needs assessment. Focus group
participants spoke to a ‘one-stop shop’ that would ease the transition for
those who arrive in the city unprepared for life here.
The previous section on dwellings showed that slightly more Aboriginal
peoples rent than own their living quarters. Focus group participants
addressed access to housing as an issue that is compounded with racism and
with meeting peoples’ basic needs and human rights. When parents cannot
access housing, it impacts their children in multiple ways. For example,
focus group participants noted that parents cannot register their children for
school without an address.
Respondents also mentioned group homes and student housing as areas
where racism and housing intersect. The participants noted that students
live in sub-standard homes, and have no one to advocate for them. The
37. This data derives from the Statistics Canada 2006 Aboriginal Population Profile for Thunder
Bay, Census of population, 2006.
Focus group participants believed that an independent body is needed to address
and resolve racism complaints from accommodation seekers and residents
in rental units. Focus group participants made similar suggestions for other
sectors. This suggestion is addressed earlier (see commitment 2 above) through
the participants’ call for an Ombud’s Office for the city of Thunder Bay.
Focus group participants saw an advocacy role for the Corporation. They
noted areas that the Thunder Bay District Social Services Administration
Board (DSSAB) needs to take action. Participants believe that both the
Corporation of the City of Thunder Bay and the DSSAB could play a role in
advocating to other levels of government through their participation on the
Intergovernmental Committee.
Promising Practices
The issue of equity and housing is being addressed by some organizations in the
city. The Centre for Equality Rights in Accommodation, Women’s Housing Equality
Network, and the Ontario Native Women’s Association hosted a workshop on
housing rights in May 2009. Their findings on racism and discrimination should
inform any racism and discrimination initiatives related to housing.
The focus group recommendations from above are summarized:
1. T
he Corporation of the City of Thunder Bay and the Thunder
Bay District Social Services Board (DSSAB) advocate for special
populations through the Social Housing Reform Act
2. T
he Corporation of the City of Thunder Bay and DSSAB plan
and foster a dialogue in neighbourhoods between residents and
neighbours of group homes
3. A
dvocate for more affordable housing in Thunder Bay through the
Intergovernmental Committee.
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A PLAN FOR ACTION
2. Focus group participants identified multiple housing needs:
8. Involve citizens by giving them a voice in antiracism initiatives and decision-making
Promising Practices
Existing responses
•S
pecialized grants that community groups can access for anti-racism/antioppression work
Needs Identified
Focus group participants addressed this commitment in a variety of ways.
Most significantly and across many focus groups, participants wanted to see
representative advisory bodies for all publicly-funded institutions. Participants
provided four reasons for having advisory bodies within organizations:
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
58
1. To help institutions that are seeking a representative workforce to attract
and recruit equity group members
2. To inform institutions of the implications of their policies, procedures, and
practices for Aboriginal and other racialized peoples
3. To integrate equity initiatives and outcomes into institutions’ strategic
planning processes
•C
ity-led initiatives with youth or other targeted groups on topics and issues
related to anti-racism work
•W
orking with and supporting groups that apply for funding to do antiracism/anti-oppression work.
The focus group recommendations are summarized from above:
1. T
he Corporation of the City of Thunder Bay encourages publiclyfunded institutions to establish and maintain representative
advisory bodies
2. T
he Corporation of the City of Thunder Bay publicly supports
existing anti-racism/anti-oppression initiatives by community
groups in a variety of ways.
4. To address unintentional, systemic racism and discrimination that exists
within all institutions.
Opportunities to Address Gaps
Focus group participants saw these advisory bodies in three ways:
• Being coordinated and co-existing with equity workers and offices within
organizations and institutions
• Existing until there are representative workforces within organizations
• Existing until institutional racism ceases to exist.
As well, some focus group participants noted that they already carry out antiracism initiatives and advocacy that the Corporation could support through
its acknowledgement, involvement, and/or financial support. These groups
believe that the more people who are engaged with anti-racism and antidiscrimination work in varied ways, the more successful the Corporation’s
work will be.
Focus group participants voiced their support for the Corporation engaging
with anti-racism work in all of these ways.
9. S
upport measures to challenge racism and
discrimination and promote diversity and equal
opportunity in the education sector and in other
forms of learning
Existing responses
In Thunder Bay Negahneewin College of Academic & Community
Development is a model of a college within and throughout a college. The
Negahneewin Council is a group of representatives from various Aboriginal
organizations and education and training providers in the region. They
direct and guide the work of the College. This model of distinct, relevant
programming for Aboriginal peoples within a larger institution that also
informs the institution is unique in Thunder Bay.
The public and separate elementary and secondary schools are currently
undertaking initiatives that may counter racism and discrimination. None of
these initiatives responds directly to racism and discrimination.
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A PLAN FOR ACTION
There were no existing responses to involving citizens in anti-racism
initiatives identified through the research.
Interviewees from other signatory cities provided examples of initiatives that
build on the capacity within the community. These include:
Historically census data have identified a disparity in educational attendance
and outcomes between Aboriginal and non-Aboriginal peoples. The Statistics
Canada data on school attendance and completion rates is not broken out by
institutions to assess different models of schooling. Below TBCARD present
the attendance and attainment rates for Aboriginal peoples for Thunder Bay
through the 2006 Statistics Canada data and the focus group data.
School Attendance Rates—Aboriginal Population
Overall, in 2006, Aboriginal youth aged 15 to 24 living in Thunder Bay had
lower school attendance rates than their non-Aboriginal counterparts (65%
versus 73%). However, Aboriginal people have a greater tendency to return
to school later in life than do non-Aboriginal people. One in four (25%)
Aboriginal people 35 years of age or older were attending school in 2006,
compared to 13% of non-Aboriginal people in the same age group. 38
60
Focus group participants also identified the need for an Ombud’s Office
to hear and investigate racism complaints that they have about schools.
Aboriginal focus group participants provided examples of how their children
continue to face racism and discrimination at school. Parents expressed
their frustration with dealing with these issues through the schools. They
expressed a need for an impartial resolution. This focus group participant
need crosses several sectors. It has been identified as a need previously in
this document.
Focus group participants spoke to the need for welcoming initiatives
throughout the community for Aboriginal and other racialized newcomers.
They noted that all Aboriginal and racialized youth attend schools, and
welcoming is especially important in these institutions.
Opportunities to Address Gaps
Attainment Levels—Aboriginal Population
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
Focus group participants noted that teachers, staff, and administrators could
benefit from anti-racism/anti-oppression training to enhance the school
experience for Aboriginal and other racialized students and their families.
In 2006 in Thunder Bay, 27% of Aboriginal men and 21% of Aboriginal women
25-34 years old had less than high school education. 39
An examination of the educational attainment of Thunder Bay’s Aboriginal
population indicates a gap between those who have high school education or
less, and those who have college or university completion. When compared
with the entire Thunder Bay population, the Aboriginal population falls
below for university, trades, and high school completion levels. However, the
rates of college completion are almost identical. Of particular note is that
Aboriginal people in Thunder Bay have a higher rate of college and university
completion than the provincial average for Aboriginal people. 40
In Thunder Bay in 2006 nearly one in two (48%) Aboriginal peoples aged 2534 had completed post-secondary education. In 1981, approximately one in
five (18%) Aboriginal women aged 25 to 34 had completed post-secondary
education. By 2006, this had increased to more than one in two (55%). There
has been an increase in the percentages of young Aboriginal men in Thunder
Bay completing post-secondary schooling, from one in four (25%) in 1981 to
just over one in three (37%) in 2006. 41
The census data demonstrates the disparity for high school attendance and
completion rates between Aboriginal and non-Aboriginal peoples. This data
indicates that systemic racism exists in education as a sector and in schools.
Many focus group participants noted and provided examples of interpersonal
racism (by staff and students) within secondary and post-secondary
institutions in the city. As well, some focus group participants spoke to the
persistence of systemic racism within schools as institutions.
Focus group participants recommended anti-racism/anti-oppression training
for teachers and staff in schools as well as workers in many institutions
(such as hospitals, the Corporation of the City of Thunder Bay, corrections
workers in jails, etc).
Focus group participants’ recommendation echoes the 2002
recommendations of the A Community Of Acceptance (ACOA) report and
the 2007 Urban Aboriginal Task Force: Thunder Bay Final Report. Many
workers have never received anti-racism training, and so they unintentionally
perpetuate the existing racism within the institution. This cycle is only broken
through explicit training that gives workers anti-racism tools to use in their
day-to-day work.
Focus group participants identified that the curriculum in schools needs to better
reflect Aboriginal and racialized students’ lives and experiences outside of school.
Focus group participants asserted that the school board, schools, and community
need to advocate for curriculum reform, if school boards are sincere about
Aboriginal and racialized students’ attendance and completion rates improving.
Promising Practices
Through research funding, Lakehead Public Schools and the Thunder Bay
Catholic District Schools are working together to create Welcoming Schools
pilots in several elementary and secondary schools in Thunder Bay. In
Thunder Bay collaboration between the Lakehead Public Schools (LPS) and
the Thunder Bay Catholic District School Board (TBCDSB) seeks to increase
welcoming and inclusion. This initiative addresses one dimension of racism
and discrimination.
Pilot sites in five schools will be chosen for the project. The projects will
consider four welcoming dimensions within schools—environment (both
physical and attitudinal), practices and attitudes of teachers, administrators,
and staff, resources, and instruction. The focal areas will be school
entry points (e.g. both the look of the physical space and events such as
38, 39, 40 This data derives from the Statistics Canada 2006 Aboriginal Population Profile for
Thunder Bay, Census of population, 2006.
41 This data derives from the 2008 Quality of Life survey. To view the full survey, go to www.
thunderbaysurvey.com/
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A PLAN FOR ACTION
Needs Identified
Under the funding, LPS will also provide resources to teachers in classrooms.
These resources will provide teachers with alternative curricular materials
to encourage welcoming practices in the classroom. Resources such as
books, level books, films, culture kits, Ministry-level strategy documents,
locally-produced documents such as Aboriginal Presence in our Schools,
local Aboriginal artists, and local Elders and other guests, will be available
through classrooms as well as through school libraries.
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
62
Lakehead Public School’s Diversity Committee has two events upcoming
this year. The LPS intends to create an anti-racism response handbook.
This handbook would be similar in format to the LPS’s recent publication,
An Aboriginal Presence in our Schools. The handbook will address the
issues of what racism is, how racism and discrimination can be stopped, and
addressing how parents can become anti-racist parents. As well, LPS will
provide mandatory staff training on attitudinal barriers towards Ontarians with
Disabilities. Both the public and separate boards provide training for teachers
and staff on topics (such as human rights) to comply with legislation and on
awareness and bias and prejudice reduction.
Confederation College has an Ombud’s Office. This office may provide a
model for an Ombud’s office for Thunder Bay.
Confederation College, through its student union, has a respect initiative
within the college. Some focus group participants were aware of this initiative
and they believed that it could be extended to other institutions within
the city. Other city representatives noted respect initiatives within their
workplaces and other workplaces within their cities.
The focus group recommendations are summarized from above:
1. The boards of education consider anti-racism/anti-oppression
training for their staff.
2. The welcoming schools initiatives should be replicated in other
institutions and by the Corporation in co-operation with multistakeholder initiatives to create a welcoming city.
3. The Boards of Education should work to create locally-developed
representative curriculum units across the curriculum for all
grade levels.
4. The Corporation of the City of Thunder Bay should investigate
partnerships with schools and funding for an Ombud’s Office for the city.
10. Promote respect, understanding and appreciation
of cultural diversity and the inclusion of Aboriginal
and racialized communities into the cultural fabric
of the municipality.
Needs Identified
Focus group participants identified a need to re-instate the Welcome Wagon
program to welcome newcomers to Thunder Bay. A welcoming initiative
would also provide newcomers awareness of organizations and their
programs and services.
Focus group participants identified the need to build on existing cultural
diversity events within the city.
Focus group participants from all groups identified the need for a large
scale-city wide anti-racism campaign that includes messages of respect
and appreciation of Aboriginal and other racialized peoples. This need
was previously identified under the first common commitment to increase
vigilance. Focus group participants saw an anti-racism campaign to increase
vigilance and to celebrate what Aboriginal and other racialized peoples bring
to Thunder Bay.
Opportunities to Address Gaps
Focus group participants believed that having a service such as the previous
Welcome Wagon would be another venue to ease newcomers’ transitions to
the city, provide awareness of organizations and their programs and services,
and offer a smile. Focus group participants addressed the importance of a
smiling face when newcomers arrive. Many noted the ease of a smile, and the
power it provides to someone.
Focus group participants from the racialized group saw the opportunities for
anti-racism work within existing celebrations, such as National Aboriginal Day
and the Folklore festival. Focus group participants believed that using existing
events could highlight the cultural and the racial aspects of social cohesion.
Participants in all of the focus groups unanimously suggested that the City
lead an education project by initiating a city-wide anti-racism campaign.
Broader consultations with groups echoed this recommendation from focus
group participants. Almost all participants viewed an anti-racism campaign
as a fundamental first step to undertaking anti-racism/anti-oppression
work within the community. This campaign will need to be sustained over a
long period of time, engage sectors, institutions, organization, groups, and
individuals in the city, and have a common message that is delivered through
multiple media. The campaign would need to have many different activities
to be effective. As well, having key people, from all races, endorsing the work
would strengthen the impact. Focus group participants saw this campaign as
the kick-off to Thunder Bay’s Plan of Action.
Participants suggested that the Corporation of the City of Thunder Bay and
City Council could play a leadership role in spearheading the campaign, the
launch of the campaign, and through their ongoing support for the activities
and initiatives undertaken.
63
A PLAN FOR ACTION
registration, Fair Start/Good Start child assessments, and outreach to the
community).
Promising Practices
Commitment Windsor and Montreal (as noted above) undertook anti-racism campaigns.
Confederation College developed and implemented a respect campaign.
These initiatives as well as other public initiatives provide guidance for
Thunder Bay. Yet each campaign will be contextualized, and what works in
one place is not what works in another.
City Administration
Representation Rates No breakout of data for management or by union categories
The focus group recommendations from above are summarized:
1. The Corporation of the City of Thunder Bay with the support of City
Council initiates an anti-racism campaign that engages everyone
within the city of Thunder Bay.
2. The Corporation of the City of Thunder Bay and City Councilors
support anti-racism initiatives as part of existing celebrations
within the city.
Indicators Key Findings
Aboriginal peoples’ employment rates fall below CMA percentage (which is acknowledged to under-
represent actual population).
Summary of Focus Group Data Findings
Focus group participants identified gaps in addressing the 10 common
commitments within the community. Participants identified opportunities to
address each commitment.
65
In this chapter TBCARD presented quantitative and qualitative data for each
of the 10 common commitments. The quantitative data is summarized below
in Table 7. The qualitative data is summarized through the opportunities
identified by focus group participants.
Table 7: Summary of quantitative data findings
Commitment Indicators Key Findings
Equity in labour market Unemployment Rates
The unemployment rate for Aboriginal peoples of ThunderBay is nearly 2x the non-Aboriginal population rate and higher than Aboriginal peoples in Ontario
Equity in labour market Income
The Thunder Bay median household income is lower than the provincial average for individuals, families, and households.
Aboriginal peoples & lone parents report income and earnings below counterparts in Thunder Bay and Ontario
Housing
Modes of Tenure
For Aboriginal peoples the own to rent ratio is about 1:1
For the general population this ratio is 2.5:1
Policing No data on race indicators available for TB
Education Attendance
and Attainment Aboriginal students do not attend school or graduate high school at levels comparable to the non-
Aboriginal population
Commitment 1: Increase vigilance against systemic and individual racism
and discrimination.
Focus group participants said:
•A
coordinated mechanism to address racism and discrimination locally is
non-existent and needed
•C
ommission a research study of the economic contributions of Aboriginal
peoples to the community
• Mount a city-wide anti-racism/anti-discrimination campaign.
Commitment 2: Monitor racism and discrimination in the community
more broadly as well as municipal actions taken to address racism and
discrimination.
Focus group participants said:
•A
ddress the gap of monitoring racism and discrimination within the
community
• Develop an Ombud’s office within the community.
Commitment 3: Inform and support individuals who experience racism and
discrimination.
Focus group participants said:
•S
upport persons who experience/speak out against racism and
discrimination through an independent, local body such as an Ombud’s
Office for the city
• Let people know when and where newly-developed supports become available.
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
64
Commitment 4: Support policing services in their efforts to be exemplary
institutions in combating racism and discrimination.
Commitment 7: Support measures to challenge racism and discrimination
in housing
Focus group participants said:
Focus group participants said:
• The Thunder Bay Police Services (TBPS) are positioned to take a leadership
role and share its anti-racism and anti-discrimination work.
•M
unicipal levels of government needs to advocate for more affordable
housing and housing reforms for Aboriginal peoples (especially women)
and other racialized peoples’ living conditions.
• The TBPS needs to develop and implement measures to track complaints
so that allegations of racism and discrimination by uniform and civilian staff
can be flagged and addressed by management for resolution.
Commitment 5: Provide equal opportunities as municipal employer, service
provider and contractor.
Focus group participants proposed that:
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
66
• City Council acknowledge the presence of systemic racism and
discrimination within the city
• The Corporation and City Council convene an advisory committee of
representatives from racialized and other groups facing discrimination
• The Corporation develops a vision statement and integrates measurable
outcomes within the Strategic Plan
• The Corporation lead in developing partnerships to address racism and
discrimination in all aspects noted in the Plan of Action
• City Councilors acknowledge and attend events put on by Aboriginal and
other racialized peoples and youth to demonstrate support for their work
• The Corporation through City Council publicly and annually report out to
community on the Plan of Action work through multiple channels to reach
all stakeholders
• The Corporation and City Council maintain neighbourhood recreation
facilities and programs for youth.
•M
unicipal levels of government are well-positioned to plan and foster
housing dialogues in neighbourhoods and between residents and
neighbours of group homes
Commitment 8: Involve residents by giving them a voice in anti-racism
initiatives and decision-making
Focus group participants said:
•E
ncourage publicly-funded institutions to establish and maintain
representative advisory bodies to guide their equity work
•A
cknowledge and support existing anti-racism/anti-oppression initiatives
by community groups in a variety of ways (presence of leaders, funding, inkind contributions, community engagement)
Commitment 9: Support measures to challenge racism and discrimination
in education
Focus group participants said:
•F
ind and provide anti-racism training for all staff in schools, boards of
education, colleges, and universities to address the pervasive, systemic
racism that exists in education
•C
reate locally-developed and representative curriculum with Aboriginal and
other racialized peoples that spans the curriculum.
Commitment 10: Promote respect, understanding and appreciation of cultural
diversity and the inclusion of Aboriginal and Racialized Communities
Commitment 6: Support measures to promote equity in the labour market
Focus group participants said:
Focus group participants said:
• Use the existing celebrations (e.g. Folklore Festival), days (e.g. National
Aboriginal Day) and events (e.g. International Day for the Elimination of Racism
and Discrimination) as part of a campaign to overcome racism and discrimination
• Institutions and organizations collaboratively research, develop, and provide
anti-racism/anti-oppression training for its staffs. Begin with school staff,
hospital staff, landlords, business owners, and transit workers
• Local employers receive training to recognize and address racism and
discrimination in hiring and retention of Aboriginal and other racialized
peoples.
Thus, the socio-economic/demographic data provides information for
setting benchmarks. These benchmarks may be used to determine success
with reducing systemic racism, demonstrated through the disparities
between Aboriginal and other racialized peoples and non-racialized
peoples in the areas critical to social cohesion. Year to year changes, and
potentially success of initiatives, can be tracked and reported out. Focus
group participants identified needs and opportunities to address the 10
common commitments. These opportunities spanned a range of sectors
and stakeholders, for example, City Council, the Corporation of the City of
Thunder Bay, school boards, police, employers, and other partners.
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A PLAN FOR ACTION
• The TBPS has an opportunity to report out its ongoing progress with antibias policing through an annual public reporting.
CHAPTER 4:
CONCLUSIONS
AND RECOMMENDATIONS
Conclusions
City Council asked Diversity Thunder Bay to complete a report on its
commitments under the Canadian Coalition of Municipalities Against Racism
and Discrimination (CCMARD). To do this, TBCARD considered the obligations
of City Council upon signing the Declaration to join CCMARD.
Signatory municipalities that sign the CCMARD Declaration undertake three
responsibilities. These responsibilities are:
1. A
dopt the CCMARD 10 common commitments and respond to them in a
way that is unique to their municipalities.
2. C
ooperate with other organizations and jurisdictions, including other levels
of government, Aboriginal peoples, other racialized peoples, other peoples
and groups who experience discrimination, public and private sector
institutions, and organizations responsible for human rights.
3. S
et priorities, actions, and timelines, and allocate resources within its
means and jurisdiction. Further, municipalities agree to share expertise,
promising practices and lessons learned with other municipalities involved
in the Coalition Against Racism and Discrimination. Finally, signatory
municipalities agree to report publicly, on an annual basis, its actions
undertaken towards realizing the 10 common commitments within the
community. (See the Declaration in the Appendices to this report)
Given the municipality’s responsibilities to adopt the 10 common
commitments, partner with stakeholders, and develop a Plan of Action,
the Thunder Bay Coalition Against Racism and Discrimination (TBCARD)
gathered and analyzed information to respond to each of the 10 common
commitments. This information informed this research study.
Adopting the 10 common commitments has been done. The TBCARD data
provides information on ways to respond to commitments. TBCARD grounded
these responses in quantitative and qualitative data particular to Thunder Bay.
The information provided has limitations, based on the project resources
available and the fluid nature of gaps and opportunities. TBCARD found many
innovative initiatives happening in the community from the Local Immigration
Partnerships to the Thunder Bay Public Libraries. Youth with the Regional
Multicultural Youth Centre and youth supported through Lakehead Public
69
A PLAN FOR ACTION
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
68
Schools had many initiatives directed at racism and discrimination and plan
more. They showed an understanding of the issues and a straightforward
approach to solutions for themselves and for institutions. As well, TBCARD
learned of grassroots work on housing and women. There were simply too
many initiatives to name each one. Ongoing partnerships with stakeholders
will provide updated data. This report gives an overview of many current
initiatives in Thunder Bay that are relevant to the Plan of Action.
TBCARD intend the quantitative and qualitative data on needs and
opportunities in this report to serve as tools for Council and other
stakeholders to begin to set priorities, actions, and timelines for their work.
REFERENCES
Brochie (2006). Poverty in Thunder Bay: A statistical reference (Phase II),
commissioned by Economic Justice Committee of Thunder Bay.
Canadian Council on Social Development. (2007). Social cohesion in Canada
The Social Cohesion Indicators Project. Available @ www.ccsd.ca/pubs/2007/
upp/
Florida, R. (2009). Ontario in the creative age. Available @ www.
martinprosperity.org/news-and-events
Global Health Sciences. (2008). Accessed 17-07-08. Available @ http://www.
igh.org/triangulation
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
70
From the research data collected and analyzed, the TBCARD considered
broad recommendations to City Council to move forward the commitment
and responsibilities under the CCMARD Declaration.
TBCARD formed the following five recommendations
to City Council:
1. Acknowledge the harmful effects of racism and discrimination within
Thunder Bay
2. Demonstrate leadership by working with community partners to create a
welcoming and inclusive community
3. Establish a Standing Committee of Council to work with community
partners to develop a plan of action with measurable success indicators
4. Develop and communicate an equity vision to overcome racism and
discrimination
5. Communicate annually with CCMARD and the community
City Council now has information to begin its unique Plan of Action to
overcome racism and discrimination in Thunder Bay. Following the five
recommendations above will ensure that City Council addresses its
obligations to the Declaration to join the Canadian Coalition of Municipalities
Against Racism and Discrimination. As well, Thunder Bay will enjoy greater
social cohesion, which will make the community a better place to live and
work for all residents.
Haluza Delay, R. (2002) A community of Acceptance: Respect for Thunder
Bay’s Diversity. Commissioned by Diversity Thunder Bay.
Icart, J.C., Labelle, M., & Antonius, R. (2005). (CRIEC) Indicators for the
evaluation of municipal politics fighting discrimination. Coalition of Cities
against Racism - Discussion Papers Series n°3, February. Commissioned by
UNESCO.
McCaskill, D., Fitzmaurice, K., and Desmoulins, L. (2007). Urban Aboriginal
Task Force: Thunder Bay Final Report commissioned by The Ontario
Federation of Indian Friendship Centres. Available @ www.ofifc.org
Ontario Trillium Foundation (OTF), Your Community in Profile: Community
Profile Northwestern. Available @ http://www.trilliumfoundation.org/cms/en/
comm_prof08.aspx
Statistics Canada 2006 Aboriginal Population Profile for Thunder Bay.
Available @ www.statcan.gc.ca
Tranter, D.(2008). Our Quality of Life Report. Available @ www.
thunderbaysurvey.com/
(2001) Fast Forward Thunder Bay: Indicators Report Volume 1, (April).
(2002) Fast Forward Thunder Bay: Annual Indicator Report 2002 Volume 2,
April 2002.
(2003) Fast Forward Thunder Bay: Annual Indicator Report 2003 Volume
3, April 2003. (2005) Fast Forward Thunder Bay: Community Development
Framework: Annual Indicator Report 2005.
(2004). New Foundation – A Living Strategic Plan to Build a New Foundation
For a Better Future (2007-2010). Available @ http://www.thunderbay.ca/
Page809.aspx
(2000) The Ontario Federation of Indian Friendship Centres, Urban Aboriginal
child poverty.
(2004) Thunder Bay Urban Aboriginal Strategy. A Strategic Community Action
Plan: A Circle of Certainty;
UNESCO. (2005). The International Coalition of Cities Against Racism and
Discrimination. Available @ www.unesco.org/shs/citiesagainstracism.
71
A PLAN FOR ACTION
Recommendations
APPENDICES
The following appendices are included in this section and ordered as:
1. The Declaration to Join the Canadian Coalition of
Municipalities Against Racism and Discrimination
DECLARATION TO JOIN THE CANADIAN
COALITION OF MUNICIPALITIES
AGAINST RACISM AND
DISCRIMINATION
2. Interview Guide for Signatory Cities
4. Focus Group Questions
5. Literature Review
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
72
Given that:
1. T
he Canadian Commission for UNESCO (United Nations Educational,
Scientific and Cultural Organization) is calling on municipalities to join a
Canadian Coalition of Municipalities Against Racism and Discrimination
and to be part of UNESCO’s international coalition launched in 2004
2. T
he Federation of Canadian Municipalities (FCM) endorses the Call for a
Canadian Coalition of Municipalities Against Racism and Discrimination
and encourages its members to join.
Whereas:
3. M
unicipal governments in Canada, along with other levels of government,
have responsibilities under Canada’s Charter of Rights and Freedoms
as well as federal, provincial, and territorial human rights codes, and
therefore have an important role to play in combating racism and
discrimination and fostering equality and respect for all citizens.
Be it resolved that:
4. U
ndersigning Municipalities agree to join the Coalition of Canadian
Municipalities Against Racism and Discrimination and, in joining the
Coalition, endorse the Common Commitments and agree to develop or
adapt their own unique Plan of Action accordingly.
5. T
hese Common Commitments and the unique Plan of Action of each
Municipality will be an integral part of the vision, strategies and policies of
the Municipality.
6. I n developing or adapting and implementing their own unique Plan of
Action toward progressive realization of the Common Commitments, the
Municipalities will cooperate with other organizations and jurisdictions,
including other levels of government, Aboriginal peoples, public and
private sector institutions, and civil society organizations, all of whom have
responsibilities in the area of human rights.
The Municipality will set its priorities, actions and timelines and allocate
resources according to its unique circumstances, and within its means and
jurisdiction. The Municipality will exchange its expertise and share best
practices with other municipalities involved in the Coalition and will report
publicly on an annual basis on actions undertaken toward the realization of
these Common Commitments.
Saskatoon, May 8, 2008
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A PLAN FOR ACTION
3. Information for Focus Groups and Community
Consultations
Interview guide
Date______________________
Name of respondent _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _
Title _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _
Phone # _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ Email address _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _
City _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _Province __________________________
1. What is your role within the City?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
____________________________________________
2. What programs and/or services does your office provide to the City?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
3. What department does your office report to within the City?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
4. What employment equity programs exist? (Please list all)
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_____________________________
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A PLAN FOR ACTION
A. The City as an organization
5. What staff training in anti-racism does your office provide?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_________________________________________
12. Does the City use a Voluntary Self-Identification tool to determine
membership on City Council?
Yes _________ No ___________
13. Does the City use a Voluntary Self-Identification tool to determine
membership on decision-making and executive bodies of the City?
Yes _________ No ___________
6. Does the City provide translation services?
B. The City as a community
7. Describe the services provided (who, what, where, when)
14. Please name any liaison mechanisms (such as advisory committees) with
racialized members with the City.
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
8. What departments/units provide these services within the Corporation?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
9. Does the city have a process (e.g. committee) for addressing racial
complaints by citizens?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
15. What community and voluntary anti-racism organizations and/or
initiatives does the City fund?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
Yes _________ No ___________ (If no, skip to question 12)
16. What support does the City provide for the promotion of public events for
the elimination of racism?
10. If yes, please describe the racial complaints process followed.
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
11. Are there any materials available re: this process?
Yes _________ (please send)
No ___________
17. What prizes and distinctions are available through the City to recognize
contributions of citizens from racialized groups?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
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A PLAN FOR ACTION
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76
Yes _________ No ___________ (If no, skip to question 9)
Yes _________ No ___________ (If no, skip to question 21)
19. What partnerships does the City have with public and private groups,
including the voluntary sector?
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
20. For each of these partnerships, please describe the role of the City
O V E R C O M I N G R A C I S M & D I S C R I M I N AT I O N
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_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
24. Please describe these initiatives and programs.
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
25. Are there any materials available re: racial profiling protection for
individuals?
Yes _________ (please send)
No ___________
26. Does the City (or its agencies, boards and committees) offer any police
education for racial profiling?
Yes _________ No ___________ (If no, skip to question 29)
27. Please describe the racial profiling education program.
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
28. Are there any materials available re: racial profiling education?
C. The City and public order
Yes _________ (please send)
21. Does the City (or its agencies, boards and committees) have any initiatives
for the protection of victims of hate crimes based on their origin or physical
appearance?
29. Does the City (or its agencies, boards and committees) offer any policies and
procedures to counter discriminatory behaviour within its local policing force?
Yes _________ No ___________ (If no, skip to question 23)
No ___________
Yes _________ No ___________ (If no, skip to question 32)
22. What initiatives are in place?
30. Please describe the policies and procedures to counter discriminatory
behaviour in policing.
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
23. Does the City offer initiatives to protect individuals against racial
profiling?
31. Are there any materials available re: countering discriminatory behaviour
in policing?
Yes _________ No ___________ (If no, skip to question 26)
Yes _________ (please send)
No ___________
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A PLAN FOR ACTION
18. Does the City have partnerships with public and private groups, including
the voluntary sector?
Yes _________ No ___________ (If no, skip to question 35)
33. Please describe the programs and policies to enhance police efficiency
with hate and racially motivated crimes. _____________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
34. Are there any materials available re: countering discriminatory behaviour
in policing?
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Yes _________ (please send)
No ___________
Information for
focus groups
Thunder Bay Coalition Against
Racism and Discrimination
(TBCARD)
In May 2008 the TBCARD formed to develop a plan of action for the City of
Thunder Bay to address racism and discrimination.
Yes _________ No ___________ (if no, skip to question 38)
The TBCARD has a Steering Committee of representatives from Aboriginal
and other racialized organizations, the city, school boards, social services,
business and labour organizations. The Steering Committee directs a staff
person, the TBCARD coordinator, to research within the community, gathering
information from groups and individuals to inform the plan of action.
36. Please describe the devoted resources towards hate crimes and racism.
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
_______________________________________________________________
TBCARD recognizes the work that has been done to document racism and
discrimination in the city: Haluza-Delay’s (2002) study, A Community of
Acceptance; the Ontario Federation of Indian Friendship Centre’s (2007)
study, Urban Aboriginal Task Force: Thunder Bay report, and, most recently,
the Regional Multicultural Youth Council’s (2008) study in schools. These
reports have acknowledged racism and created greater awareness in
Thunder Bay of where racism and discrimination occur and how it works in
institutions and within the city.
35. Does the City (or its agencies, boards and committees) devote resources
(human and/or fiscal) towards hate crimes and racism?
37. Are there any materials available re: resources for hate crimes and racism?
Yes _________ (please send)
No ___________
38. Does your City have a Plan of Action towards the elimination of
discrimination and racism?
Yes _________ (please send)
No ___________
The TBCARD has reviewed the findings from these studies and seeks to
extend this local research. Our foci are internal and external: the City
of Thunder Bay as a Corporation as well as the community at large. For
example, areas within the City might include busses, recreation facilities
and programs, hiring and retaining a diverse workforce, and services free
of racism and discrimination. Examples in the community might include
schools, policing, housing, business and employment. Another focus is the
relationship between racism and poverty for people living in Thunder Bay.
The TBCARD looked at how best to collect information. Other cities such as
Winnipeg, Calgary, Edmonton, and Toronto have consulted racialized peoples
who live in their city and asked them what priorities they’d set to address
racism and discrimination in the city. Similarly, the TBCARD is talking to a
variety of groups and individuals to gather information to create the plan of
action. The TBCARD Steering Committee will consult with youth, a range
of Aboriginal and other racialized peoples and groups, businessmen and
women, school boards, police services, housing groups, and people living in
poverty to gain a diversity of perspectives and ideas. These ideas will form a
plan to rectify racism in Thunder Bay. In May 2009 the TBCARD will present
this community-based plan of action to City Council for implementation.
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A PLAN FOR ACTION
32. Has the City (or its agencies, boards and committees) adopted programs
and policies to enhance police efficiency to overcome hate and/or raciallymotivated crimes?
Literature Review
1. What priorities should the City’s Plan of Action address to eliminate racism
and all forms of discrimination?
This literature review has five sections: an introduction; theoretical
constructs that build on the terms and usages from Chapter 1; a review of
research literature and studies relevant to systemic racism, action planning,
and indicators that measure progress; gaps found in the literature pertaining
to this study; and, conclusions. Together these sections inform this study.
2. How should we respond to these priorities? What actions should various
sectors and other orders of government take?
3. How can the City help build community capacity and support participation
in the social, cultural, recreational, economic and political life of
Thunder Bay?
4. How can the City work with the community to evaluate progress towards
eliminating racism and all forms of discrimination?
5. What would a city that has eliminated racism and discrimination look like?
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To manage the potential scope of the research, this study draws its
design from a recent study by the Canadian-based Centre for Research on
Immigration, Ethnicity, and Citizenship (CRIEC, 2005) at the Universite de
Québec a Montréal. UNESCO commissioned CRIEC researchers to develop a
common approach to study racism and discrimination for signatory cities to
the UN Declaration Against Racism and Discrimination and its 10 common
commitments. A review of the CRIEC’s research report can be found below
in the Literature Review. A link to the full CRIEC study is also provided.
Following the recommended international approach for local research
provides a framework as well as an opportunity for Thunder Bay to contribute
to the UNESCO and CMARD initiatives. City Council agreed to share best
practices when it signed on to the Canadian Declaration.
This study also extends the CRIEC best practices. In Thunder Bay, this
research project has been designed and funded to consider municipal
responsibilities, also called city functions, and dimensions of racism (the
two components of the framework for the CRIEC common approach) as
well as identifying initiatives of the non-profit and voluntary sectors and
existing local collaboratives (re: housing, employment, education, poverty,
public order, and, welcome and settlement). This Thunder Bay research
approach holistically considers the city and its initiatives against racism and
discrimination.
Theoretical constructs
Racialization and racism
Because race as a biological concept has been discredited, scholars use
racism and racialization “to show the cultural or political processes or
situations where race is involved as an explanation” (Murji & Solomos, 2005,
p. 3). TBCARD uses racialization to talk about processes that use race as an
explanation, whether through culture as naturalized differences or through
racism. Racialization is a concept used to refer to “those instances where
social relations between people have been structured by the signification
of human biological characteristics in such away as to define and construct
differentiated social collectivities” (Miles, 1989, p. 75). The contexts of
racialization and how it works in this study are the city and its organizations,
and the social relations occur between urban Aboriginal and other racialized
peoples and others (typically White).
Racialization is a concept which precedes racism, while maintaining a focus
on difference as a superior/inferior binary. Racialization moves away from the
concept of race, as it was previously defined through biological difference, to
inequalities based in thinking (i.e. ideologies) and the differential treatment
of groups. Canadian examples of this historical process of racialization
include Indian Residential Schooling, and Japanese internment: in each case
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A PLAN FOR ACTION
Focus group questions
Racialized groups are comprised of diverse peoples who have been grouped
together under a racial category. The most salient characteristic of racialized
groups continues to be skin colour. Although race is no longer considered
from a biological perspective, skin colour continues to be a dominant
indicator of membership in racialized groups.
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Historical and ongoing inequality and racism are mutually reinforcing.
Many researchers use a typology of three interacting forms of racism:
interpersonal, institutional, and cultural. The first type, interpersonal, is a
direct observable form of racism. The second and third forms, institutional and
cultural, are considered systemic because they are less overt or observable.
Systemic racism is an ideological dimension of racism. It refers to social
policies and practices in the labour market, housing, education, the judicial
system, and the media. These practices have often been integrated into the
bureaucratic practices and the operational structure of institutions. Systemic
racism may be unintentional because it is often not visible as a factor in social
relations.
Social Relationships
Systemic racism is significant in its impacts on racialized groups and
individuals. Haluza Delay (2002) wrote that systemic racism relates to three
social constructs that impact cities and wellbeing: social capital, social
cohesion, and social exclusion. Each is discussed below.
Social capital involves the networks of relationships in a community, along with
trust and community norms (Portes, 1998; Wilms, 2001). It seems reasonable
to assume that systemic racism hinders social capital networks and thus
prohibits full cohesion: Racialized environments detract from positive social
relationships, reduces trust and undermines fairness and equity as group
norms. Glaeser (2001) describes community level social capital as “the set of
social resources of a community that increases the welfare of that community”
(p. 35). The importance of non profit organizations and the voluntary sector and
organizations that form coalitions are all forms of social capital investments
at the community level. These organizations and linkages are vital to a
community. Conceptually and in practice, social capital is different than other
forms of capital in two fundamental ways (Dayton-Johnson, 2001). First, if not
used, social capital declines. Relationships weaken if no one has time for each
other, or if groups are excluded from relationships between and among people
and organizations altogether. Second, when used, social capital is not depleted,
it is actually increased.
The Social Cohesion Indicators Project defines social cohesion as “the ongoing
process of developing a community of shared values, shared challenges
and equal opportunity within Canada, based on a sense of trust, hope and
reciprocity among all Canadians” (CCSD, 2001, p. 4). Social cohesion, then, is
the application of social capital. To apply social capital within communities,
it needs to be initially measured, planned for to facilitate increases, and
evaluated to determine the impacts of the planned initiatives. Social capital,
when invested, increases social cohesion, which has greater socio-economic,
political, and demographic benefits for all.
The European Union links social cohesion to exclusion of some citizens in a
salient way for this research project. Social exclusion is “not only the material
deprivation of the poor [and other marginalized], but also their inability to fully
exercise their social, cultural and political rights as citizens” (PRI, 2001, p. 18).
Dayton-Johnson’s (2001) and Putnam’s (2000) research suggest indicators
of social cohesion, based in education, public safety, health, and economic
prosperity. When groups are racialized and exclusion occurs, non-cohesive
communities and groups form, causing stagnation for cities.
Systemic racism and its impacts on social relationships are difficult to
measure directly. It is also challenging to measure the implementation of
organizational change models of anti-racism. Researchers evaluating progress
over time typically choose and use quantitative indicators to measure social
change or social cohesion. CIERC researchers used indicators, which they
defined as “observable measurements that make it possible to assess an
aspect of a complex situation by dividing it up into its constituent parts, which
are easier to grasp” (p. 42). Table 1 illustrates the analytical framework for
analyzing city initiatives, under the three city functions, with implementation
indicators for each function. Table 2 illustrates the analytical framework for
analyzing racialization through socio-economic and demographic dimensions
with impact indicators for each dimension. To measure the dimension of
poverty, poverty rate is used.
Poverty
Brochie (2006) wrote that “[i]n May 2006, the United Nations Economic and
Social Council observed with concern Canada’s lack of an official poverty line.
The Committee recommended that Canada establish an official poverty line,
and that economic, social and cultural rights be integrated into its poverty
reduction strategies” (p. 7). The federal government has not yet adopted this
recommendation. Rather, Canada continues to use the low income cut-off
measure, or LICO as it is commonly called, as a relative measure of poverty.
Canada does not define poverty thus Statistics Canada does not refer to the
LICOs as a poverty line; instead, LICOs are “meant to convey the income level
or threshold at which a family may be in straitened circumstances because it
has to spend a greater portion of its income on the basics (food, clothing and
shelter) than does the average family of similar size.” (http://www.statcan.ca/
bsolc/english/bsolc?catno=13-551-X)
Statistics Canada collects data on family spending patterns for food, shelter
and clothing from the Survey of Household Spending (formerly the Family
Expenditure Survey). To reflect differences in the costs of necessities, LICOs
are calculated for five categories of community size and seven family sizes.
The LICO has many benefits. It is a fair and valid measure, consistently defined
over time. It is adjusted for inflation, changes in Canadian spending patterns,
household size, and community size. In that way, LICO measures the amount
of income that it takes to live and participate as a citizen in Canada.
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A PLAN FOR ACTION
groups of diverse peoples were: considered inferior because of attributes
(biological, cultural, religious, etc.); grouped together under a racial
category; and, treated differently and unequally in various areas of social life
by the dominant group. Racism has been inherited through this historically
racialized treatment of groups. Thus in this paper I refer to Aboriginal and
other racialized peoples to acknowledge historical racialization and its
ongoing currency through systemic dimensions of racism.
This section reviews selected recent research studies. The studies are
limited by relevance to topics defined under the CRIEC frameworks—racism,
poverty, residential segregation, urban Aboriginal peoples, other racialized
peoples, education, indicators, and addresses employment, income, health,
and service delivery. Each study identifies key issues relevant to this research
study and the multiple themes of the research. The studies reviewed are
annotated below. I begin with the CRIEC study on indicators, as it frames
UNESCO’s initiative, the Declaration Against Racism and Discrimination and
its 10 common commitments.
These frameworks for analysis are presented in Tables 1 and 2 below. Table
1 integrates the three city functions and indicators with the 10 common
commitments. The common commitments, in the middle column, are
numbered to reflect the ordering of the commitments by CMARD (see page 3
of this document). The CRIEC uses city functions to organize the data.
Table 1: City functions and implementation indicators (from CRIEC)
FunctionCommonIndicators
Commitment
The city as an 5. Provide equal opportunities as a municipal employer, service provider and
Indicators
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Indicators, as mentioned previously in Chapter 1, are “observable
measurements that make it possible to assess an aspect of a complex situation
by dividing it up into its constituent parts, which are easier to grasp” (CIERC, 2005,
p. 42). The section on indicators reviews three studies, one international, one
national, and one local, to review measures used in previous studies. The research
also considers the seven domains of wellbeing developed by the Canadian Index for
Wellbeing for provinces and regions. To begin, the indicators research commissioned
by UNESCO for use by signatory cities to the UNESCO Declaration is presented.
Icart, J.C., Labelle, M., & Antonius, R. (2005). Indicators for the evaluation of
municipal politics fighting discrimination. Coalition of Cities against Racism Discussion Papers Series n°3, February. Commissioned by UNESCO.
CRIEC researchers studied six cities internationally (Toronto, Montreal, Vancouver,
Saskatoon, Stockholm, and Boston) using a case study design. They studied
cities’ policies on ethnocultural diversity management and on fighting racism and
discrimination, the tools for evaluating these policies, and their indicators. (the full
report is available @ www.unites.uqam.ca/criec/pdf/CRIEC%20Cahier%2028%20
(en).pdf).
The CRIEC’s goal was to assist cities “…to adopt public policies of diversity
management and to fight racism and discrimination, and to evaluate the impact of
such policies. The goal is to equip cities with tools that make it possible to evaluate,
in quantitative and/or qualitative terms, whether their actions produce results
that correspond to the major goals of adopted policies” (p. 3). The CRIEC outlined
a common approach for cities to collect and analyze data, and develop a plan and
a benchmark for evaluation and subsequent comparison of anti-racism change
actions and impacts.
CRIEC researchers developed two frameworks of analysis: 1) city functions and 2)
socio/economic and demographic factors. The first analyzes the cities’ initiatives
under three broad headings: the city as an organization, the city as a community,
the city as a guardian of public trust. These functions each have implementation
indicators.
The second, socio/economic and demographic factors, measures racialized peoples’
engagement with the city under six dimensions: economic, housing, public safety,
education, health, and civic participation. These dimensions each have impact
indicators.
Employment equity programmes
• in the municipal
contractor organization
organization
• in contract compliance
6. Support measures to promote Staff training in diversity and
employment equity in the
antiracism
workplace
7. Support measures to Municipal services
challenge racism and • translation services
discrimination and promote • hiring of multilingual
diversity and equal opportunity personnel
in housing
• Institutional services provided to counter manifestations of racism
• existence of a harassment
complaints committee
Participation of members of
racialized groups in decision-making and executive bodies (such as the city council)
• in their personal capacity,
or
• as representatives of
associations of groups
.
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A PLAN FOR ACTION
Studies reviewed
The city as a guardian Common CommitmentsIndicators
FunctionCommon CommitmentsIndicators
The city as a
8. Involve citizens by giving Establishment of
community
them a voice in anti-racism liaison mechanisms
initiatives and decision-
such as advisory committees
making
9. Support measures to challenge racism and discrimination and promote
diversity and equal opportunity
in the education sector and in
other forms of learning
Funding for community
initiatives
10. Promote respect, understanding and appreciation of cultural diversity and the inclusion
of Aboriginal and racialized
communities into the cultural
fabric of the municipality
Support for or promotion
of public events (e.g. antiracism week)
Adoption of programmes and policies
aiming at enhanced police
efficiency in the struggle against hate-inspired behaviour
Resource allocation
• f or the
prevention of
hate-inspired
behaviour
for its
punishment
89
Prizes and awards to highlight outstanding contributions
Partnerships with private or public groups with the voluntary sector
The city as a guardian Common CommitmentsIndicators
1.Increase vigilance against systemic and individual racism and discrimination
Protection of
hate crime
victims (physical or symbolic assault)
2. Monitor racism and Protection of
discrimination in the individuals
community more broadly against racial
as well as municipal actions
profiling
taken to address racism and
discrimination
3. Inform and support individuals who experience racism and discrimination.
Education of the
police in these
issues
4. Support policing services in their efforts to be exemplary institutions in combating racism and discrimination
Inclusion of
principles in the
ethical codes of
law enforcement
agencies
Table 2 below corresponds to socio-economic/demographic dimensions
measuring systemic racism. Although the municipality does not retain
jurisdiction over all dimensions below, the City and its organizations, boards,
and commissions have local jurisdiction over many of these areas. These
dimensions also relate to social cohesion at the neighbourhood level in urban
settings. For example, poverty is an urban phenomenon (UPP, Poverty by
Geography: Urban Poverty in Canada, 2000, p. 24). Cities are where those
groups and individuals vulnerable to poverty, study, and/or seek employment,
live and use city services. It is anticipated that cities may work collaboratively
locally (e.g. with local school boards for the education dimension) and with
regional, provincial, and federal levels of government to affect change for
racialized peoples on these six dimensions.
Typically, racialized groups are compared to non-racialized groups on these
dimensions, using the impact indicators.
A PLAN FOR ACTION
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88
DimensionsImpact Indicators
Poverty
Poverty rates
Unemployment rates
Income levels (by age and sex)
Long-term retention by employers
Residential segregation
By neighbourhood:
Concentration of members (cross-
tabulated with poverty rates)
Modes of tenure (ownership, tenancy)
Modes of transport and commute times
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Public order Number and nature of hate crimes
Racist incidents reported
Number of discrimination complaints made and registered
Offence rates by neighbourhood
%age of persons indicted/tried for
offences
Education
Attainment levels
Competence in official language
Success rate of young people from racialized groups
City administration
Of racialized groups:
Representation rate overall
Representation rate in
management
Representation rate in cultural
bodies
Participation rate in city council
and its committees
social cohesion in Canadian cities. Researchers examined available sources
of data (primarily Statistics Canada) to determine potential quantitative
indicators of social cohesion in Canada. The CSSD Network included the
CRIEC dimensions of poverty (see Table 2 above) and its impact indicators,
as well as these additional indicators: homelessness; perceptions of health
and population health; poverty gaps and duration of poverty; security issues
of crime rates, violent crimes, perceptions of safety of neighbourhood;
confidence/trust in institutions and perceptions of governmental efficacy;
participation in social networks, associations, religious groups, and
voluntarism; and, identification with cities. Researchers found that all of these
indicators relate to social cohesion, racialization, and civic engagement.
(2001) Fast Forward Thunder Bay: Indicators Report Volume 1, (April).
(2002) Fast Forward Thunder Bay: Annual Indicator Report 2002 Volume 2, April 2002. (2003) Fast
Forward Thunder Bay: Annual Indicator Report 2003 Volume 3, April 2003. (2005) Fast Forward
Thunder Bay: Community Development Framework: Annual Indicator Report 2005.
Fast Forward grew out of an extensive community planning exercise,
involving various local groups. From this planning exercise, the community
development plan for Thunder Bay was developed in collaboration with
over 70 community partners. The Fast Forward group developed a series
of indicators intended to measure progress as a community on an annual
basis. These indicators provided an overall picture of the status of Thunder
Bay’s sustainability in terms of its quality of life and diversified economy.
The indicators included economic, environmental, social conditions, health
and demographic dimensions, to measure progress towards developing the
community.
The Indicators Committee selected indicators based
on four principles. Indicators must:
1. be recognized as accurate, objective and reliable.
2. be regularly available from secondary sources.
3. measure some aspect of the Fast Forward plan.
4. measure something around which community action can be taken.
Tables 1 and 2 above provide a framework for the collection of data for
benchmarking the City’s state with respect to systemic racism, pre-Plan of
Action. Later, the City will collect, analyze, and report out data compared
to the benchmark and based on its Plan of Action. These measures are not
meant to be exhaustive, nor will each indicator necessarily be included within
every City’s Plan of Action. It is a guideline to begin the work of overcoming
systemic racism in municipalities.
(2000). Canadian Council on Social Development. Social cohesion in Canada
The Social Cohesion Indicators Project
Researchers from the Canadian Council on Social Development (CCSD)
collaborated with the Departments of Justice and Canadian Heritage to
form the social cohesion network and work on determining indicators of
In 2002 and 2003 Indicators Reports, the category ‘persons with Aboriginal
identity in Thunder Bay’ was above the provincial average for poverty rate
(as measured by the LICO). Also, Persons with Aboriginal identity was the
only group (children, economic families, and seniors) that surpassed the
provincial average for poverty rate (based on 1996 Statistics Canada Census
data). In 2005 the Indicators Report did not produce findings on the poverty
figures within the income indicator.
Fast Forward published Indicators Reports annually from 2001-2005, except
2004. Fast Forward author’s did not directly link indicators to community
planning or produce findings within the reports.
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Table 2: Socio-economic/demographic dimensions and results indicators
• Living standards
• Time allocation
• Healthy populations
• Ecosystem health
• Educated populace
• Community vitality
• Civic engagement
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Each of the seven domains has indicators. The indicator data will come
from a range of data sources, including Statistics Canada. CIW reporting
will use a common statistical methodology. The first year (or base year or
benchmark) of the indicator is set at 100. The indicators for subsequent
years are calculated to numerically reflect their relationship to the base year.
Once all of the indicators are calculated, they are converted to a common
denominator, averaged, and plotted. This reporting visually reflects year over
year changes in an accessible way.
Poverty
Poverty is difficult to compare internationally because Canada does not have
an official definition of poverty. Thus, international studies are not considered
in this review of studies of poverty. Four studies inform this section of the
literature, one provincial, one national, and two local studies. The final local
study is particular to urban Aboriginal peoples and poverty.
(2000) The Ontario Federation of Indian Friendship Centres, Urban Aboriginal child poverty
Researchers studied urban Aboriginal child poverty, using focus groups
and interviews in seven Ontario cities. These sites did not include Thunder
Bay. Researchers found that, in the Ontario cities studied, urban Aboriginal
peoples’ basic needs are not being met. Other findings indicated that poverty
directly impacts food security and has psychological effects.
(2002) Canadian Council on Social Development (CSSD) Urban Poverty project (UPP). (2007)
Canadian Council on Social Development (CSSD) Urban Poverty project (UPP).
The Urban Poverty Projects (UPP) (2002, 2007) provide a series of
comprehensive analytical reports, resource tools, and data profiles which
take a broad look at different aspects of urban poverty in Canada, using
detailed data from Statistics Canada Censuses and other sources, using
existing Census divisions. The Urban Poverty Project defined poverty using
Statistics Canada’s pre-tax Low Income Cut-off (LICO). UPP reporting broke
out data for certain population groups vulnerable to poverty (e.g. Aboriginal
and other racialized peoples) while other data demonstrated the concentration
of poverty in urban neighbourhoods. For example, the UPP researchers
compared Census Metropolitan Areas (CMAs), including Thunder Bay.
UPP researchers (2002) found that the percentage of Aboriginal peoples
living in poverty in Thunder Bay (41%) was significantly higher than nationally
(34%), provincially (27%) and locally (city as CSD, 15.1%). The percentage
of Aboriginal peoples living in poverty in Thunder Bay was the highest of all
provincial Census Metropolitan Areas (CMAs), with the exception of Hamilton
(also 41%). Nationally only three cities, viz. Winnipeg (49%), Regina (53%),
and Saskatoon (52%), ranked higher for the percentage of Aboriginal peoples
living in poverty in their CMAs.
Brochie (2006). Poverty in Thunder Bay: A statistical reference (Phase II),
commissioned by Economic Justice Committee of Thunder Bay.
Brochie (2006) studied Statistics Canada census data (2001) and the Urban
Poverty Project (2002) on income levels. She used median income levels, the
point at which half of the people are earning more and half are earning less.
She found that “the median total income (middle point) of Aboriginal people
15 and over is $14,187. Therefore, the median total income for Aboriginal
individuals is $3,708 below the low income cut off for Thunder Bay” (p. 22).
(2004) Thunder Bay Urban Aboriginal Strategy. A Strategic Community Action
Plan: A Circle of Certainty;
The Thunder Bay UAS used a community-based research approach
to investigate child poverty. To gather data, researchers conducted 10
community forums and focus groups, interviewed 162 respondents for
a parent survey, and conducted an environmental scan of services and
programs for Aboriginal children and youth up to 17 years old. They analyzed
the data and the analysis informed the plan of action. They found that:
•A
boriginal families do not have adequate income to support basic needs of
shelter, food, and clothing (p. 56)
• Food insecurity is an overwhelming issue for Aboriginal families (p. 57)
•F
inding affordable housing in the city is an obstacle to children’s’ well-being
(p. 59).
• Youth in the community encounter barriers to education (p. 64)
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Finally, the Canadian Index of Wellbeing (CIW) is a tool developed to measure
social, health, environmental, and economic factors. These factors have been
developed to measure wellbeing at the regional and provincial levels. The
CIW measures wellbeing through seven dimensions:
Racism and discrimination
Haluza Delay, R. (2002) A community of Acceptance: Respect for Thunder Bay’s
Diversity. Commissioned by Diversity Thunder Bay.
Haluza Delay’s participants represented a broad cross-section of racialized
and non-racialized respondents to examine six related questions: is racism
a problem; what sectors of the population are most affected by racialization;
level of awareness of racism; witnessing and experiencing racism; if
racialization affects social cohesion; and, areas that Diversity Thunder Bay
should focus its education efforts. Haluza Delay used a community survey
and key informant interviews with 392 and 45 participants respectively.
Haluza-Delay had several significant findings, two of which are pertinent to
this work:
1) Retail establishments, police services, employment sector, schools and
post-secondary institutions were the most prominent sites of racializing; and,
these neighbourhoods and by groups, and categorized them into five
levels of poverty: low, moderate, moderately high, high, and very high.
The neighbourhood poverty report provides data for only low and very high
poverty neighbourhoods.
UPP researchers found that Aboriginal peoples in Thunder Bay do not live in
high percentages within the lowest or the highest poverty neighbourhoods.
They found that “…in Thunder Bay, 16.5% of all poor residents live in low
poverty neighbourhoods, compared with only 8.3% of poor Aboriginal people”
(p. 11). For very high poverty neighbourhoods in Thunder Bay, they found
that 2.5% of all poor residents, 2.3% of Aboriginal peoples, and 3.4% of
immigrants live in these CTs.
The UPP’s findings contradict the NCBP (2005) findings that Aboriginal
peoples of Thunder Bay live in high poverty neighbourhoods. This disparity
warrants further investigation into the neighbourhood boundaries used by
each study.
2) racialization linked to weakened social cohesion.
Based on his finding, he concluded that “…the strongest recommendation
possible is to work on improving race relations in Thunder Bay at the levels
of institutional culture and social practices. A Community of Acceptance has
shown the complex and multifaceted nature of racialization in Thunder Bay.
Many beliefs, social practices, institutions and social locations are involved.
Racialized people experience this racializing in different ways. Addressing
the situation will also be multifaceted. Three broad areas in particular are
important. First, addressing systemic factors is necessary. Such factors
are bigger than Thunder Bay. But it dramatically affects Thunder Bay and
both individual lives and community development. In his recommendations,
Haluza Delay (2002) forwarded a three-fold approach: 1) address systemic
factors; 2) recognize taken-for-granted social practices; and, 3) engage
leaders as models of inclusiveness” (p. xx, original emphasis).
Residential segregation
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2.5Multiple topics
McCaskill, D., Fitzmaurice, K., and Desmoulins, L. (2007). Urban Aboriginal
Task Force: Thunder Bay Final Report commissioned by The Ontario
Federation of Indian Friendship Centres. Available @ www.ofifc.org
The Urban Aboriginal Task Force: Thunder Bay Final Report (UATF, 2007)
used community-based research involving a local Community Advisory
Committee (CAC) comprised of leaders of urban Aboriginal organizations.
The CAC developed research priorities to investigate racism, homelessness,
poverty, youth, women, health, organizational service delivery to Aboriginal
peoples, culture and identity, income levels and rates of poverty and
the emerging middle class amongst Aboriginal peoples in Thunder Bay.
Researchers used mixed methods approach and six data collection methods:
a community survey, key informant interviews, life history, focus groups, and
plenary sessions. 425 respondents participated in the data collection during
2006. McCaskill et al. (2007) found that:
The available research on residential segregation is limited. Residential
segregation refers to what is known as the racialization of poverty. It
examines areas of cities or communities by cross-tabulating income levels
with race and ethnicity. Icart et al. (2005) also considered public safety as a
dimension of residential segregation. One study is reviewed.
• Aboriginal youth are attending school at the same rate as their non-Aboriginal
counterparts yet not completing high school and graduating (p. 29).
The UPP did a series of reports based in Statistics Canada census survey
data and other available national-level data. In a report on neighbourhood
poverty, they explain that “[t]he proportion of residents living in “very
high” poverty neighbourhoods has been referred to as the neighbourhood
poverty rate. The rate is determined by calculating the proportion of a
census metropolitan area’s total population residing in very high poverty
neighbourhoods (as defined above), whether they are living below the
Low Income Cut-off or not. The neighbourhood poverty rate is more a
measure of the citizens’ economic surroundings than of the citizens’ own
particular economic circumstances” (UPP, Poverty by Geography: Urban
Poverty in Canada, 2000, p.21).Researchers used Census Tracts (CTs) to
determine neighbourhood boundaries, broke out levels of poverty within
•7
2.9% of community survey participants reported that they rented (p.
35), and respondents consistently raised the issue of insufficient safe,
affordable housing in Thunder Bay through all data collection methods, i.e.
interviews, focus groups, and plenary sessions (p. 36)
•B
ased on 2001 Census data Aboriginal peoples in Thunder Bay had higher
rates of tenancy than their non-Aboriginal counterparts
•W
ithin the qualitative research, Aboriginal respondents consistently
made links between poor living conditions (housing), low income levels,
addictions, and mental health issues (p. 41).
•A
boriginal respondents identified gaps in services, particularly meeting
basic needs such as food and shelter (p. 53)
•5
6% of community survey respondents earned under $20,000/year
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• Based on 2001 census data, more than half (>50%) of North American
Indian children in Thunder Bay were living under the LICO, compared to
14% of non-Aboriginal children. Far more Aboriginal seniors were also
living in a low income situation than their non Aboriginal counterparts –
43% versus 2% respectively
These studies show the available research reviewed in the areas of
indicators, poverty, racism and discrimination, and residential segregation.
McCaskill et al. provided additional, limited data on the areas of health and
education indicators for urban Aboriginal peoples in Thunder Bay.
2.6Gaps in the literature
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The information available to determine local benchmarks for the CRIEC
impact indicators is limited for some areas. Each of the five (5) CRIEC socioeconomic/demographic dimensions has one or more indicator(s) for which
information is unavailable. This information will be noted in the TBCARD final
report.
THUNDER BAY COMMITTEE AGAINST RACISM AND DISCRIMINATION:
A REPORT ON THE
THUNDER BAY PLAN FOR ACTION
MAY 2009