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[Transcript] CAUT protests govt. cap on native funding
FROM COVER STORY
E-12 Circular, were authorized by the Treasury Board in 1977. Prior to that, funding was provided on an ad hoc basis and those who applied for financial assistance received it. At that time, however very few native students went on to post-secondary studies.
The purpose of the E-12 Circular was to state the policy of DIAND regarding post-secondary educational assistance for status Indians and Inuit. The program was designed to encourage Registered Canadian Indians and Inuit to acquire university and professional qualifications, so that they become economically self-sufficient and may realize their individual potentials for contributions to the Indian community and Canadian Society."
Since the institution of the PSEAP, however, a critical difference has emerged between the First Nations' and the federal government's interpretations of the responsibility of the federal government for the post-secondary education of status Indians.
According to the Assembly of First Nations, post-secondary education is a matter of right, whether it be a treaty and aboriginal right, or a fiduciary trust responsibility of the federal government. The position of the First Nations originates from the promises in treaties for "education" for aboriginal peoples, promises which did not specify whether education meant elementary, secondary, as well as post-secondary education.
The federal government bases its position towards post-secondary education on the Indian Act, which makes only on-reserve education of six to 17-year-olds a federal government responsibility. The Nielsen Report of 1985, which examined through study teams government programs in operation at the time the present government came into power, says that full assistance to status Indians is not a stated constitutional responsibility. The implication is that financial assistance for post-secondary education is only generosity on the part of the government.
It appears that the difference between the First Nations' and federal government's positions has only recently been recognized within the government.
The Neilsen [sic] report stated that academic upgrading and basic skills development were of more importance than post-secondary programs for the Indian population. The study team recommended that direct federal support to Indian students should be made available on the same basis as for all Canadians via both federal and provincial student aid plans, with the provinces being reimbursed for their support of Indian students.
The Post-Secondary Education Assistance Program
Until 1986/87, registered Indians or Inuit who had been accepted by an accredited university, college, CEGEP, or institute of technology, were eligible for funding from PSEAP. Students accepted into university and college entrance preparation programs were also eligible for assistance.
The program was designed to cover all expenses that might prevent a student from completing a course of study, with nine categories including training, special shelter, tuition, and travel allowances.
Assistance is available at undergraduate and graduate levels. Funding for attendance at foreign universities is also available, provided the program of study is not available at a Canadian university.
The E-12 Circular states no strict monetary limit to the assistance available to an individual student, but there is a limit in terms of the number of months of study for which a student may receive funding at each academic level, and for all post-secondary study in total.
Until the 1986/87 fiscal year, all eligible students applying to the program received funding. If the program ran out of money, DIAND went to the Treasury Board for more.
Enrolment in the program has grown from approximately 3,500 in 1977 to approximately 12,000 in 1987. According to DIAND, there are approximately 725 graduates each year, and the average annual cost per student is approximately $7,800. The program's budget has grown from approximately $8 million to approximately $94 million in the last ten years.
The DIAND figures for increases in students and expenditures in the 80's appear in the accompanying table.
[Table] 1. Cost a) Dollars (000,000); b) Cumulative Percentage Increase; 2. Students* a) Full-time Equivalent**; b) Cumulative Percentage Increase
81/82 (actual): 25.1; —; 4,445; —
82/83 (actual): 33.1; 31.9; 5,419; 21.9
83/84 (actual): 42.0; 67.3; 6,616; 48.8
84/85 (actual): 52.9; 110.7; 7,783; 75.1
85/86 (actual): 69.9; 178.5; 9,483; 113.3
86/87 (budget): 81.6; 225.1; 11,029; 148.1
87/88 (budget): 93.7; 273.3; —; —
*This does not include Bill C-31 students.
** A "Full-time Equivalent" is defined as a student enrolled in three courses for an eight-month period.
The estimated actual amount spent in 1986/87 was $87 million.
Source: Department of Indian Affairs and Northern Development Communique, May 14, 1987.
Information on Indian Post-Secondary Education Program [End of table]
Changes in PSEAP Policy
In April 1986, DIAND informed its regional offices that there would be an application deadline of November 1, 1986, for assistance for the 1986/87 fiscal year. According to DIAND, the intention was to announce well ahead of time that applications for 1986/87 would be taken up to November 1 and late applications would be referred to the following year. The reason given for the change was to assist the department in managing within its budgetary estimates.
DIAND's regional offices were directed to notify band offices, Department counsellors and post-secondary institutions of the deadline. The Assembly of First Nations says "the Regional officials did not inform the Indian Governments of such a directive until on or about the 1st day of November." One college received notification on November 13, and some did not receive notification at all. As a result, many students did not receive funding because they did not apply before a deadline of which they were not informed. At least one college program had to be cancelled because the students enrolled did not receive funding.
Changes to eligibility for the PSEAP have also been instituted. In May the Minister of DIAND, Bill McKnight, announced four further changes to the PSEAP, to be brought into effect in the 1987/88 fiscal year.
☐ Students must have been resident in Canada for 12 consecutive months before applying for assistance. There is no such requirement in the E-12 Circular.
☐ Graduate students will now receive the same allowance as other post-secondary students. Students who now receive special benefits will receive them for one more year only, and new students will not receive them at all. The E-12 Circular provides for special benefits in recognition of the increased incidental costs for post graduate students.
☐ Students will not be allowed to appeal if they have been refused assistance on the grounds that there are no funds available regionally. The E-12 Circular outlines an appeals process open to students who feel the guidelines have not been applied fairly.
☐ The major change to the program has come in the form of a limit to the funds available. The PSEAP budget is fixed for the fiscal year, and it will no longer be possible to apply to the Treasury Board for more funds if the actual
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