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Northern Saskatchewan: Building Capacity in Northern Saskatchewan through Global Partnerships and Relevant Graduate Programming 

Emmy Stavøstrand Neuls 

Introduction  

The Northern Saskatchewan region is often integrated into the general provincial statistics and its unique characteristics are often hidden and poorly presented. The vast space of the Northern Saskatchewan region, being larger than the United Kingdom, is the home to 3% of the province’s population, and is of predominantly Indigenous identity. As such, Northern Saskatchewan has stronger demographic similarities with northern and remote regions such as Nunavut than with the southern region of Saskatchewan. While rich in resources and culture, it is a region lacking adequate infrastructure and access to services and opportunities, including post-secondary education.  

This chapter builds on data related to the geographic boundary of Northern Saskatchewan provided by the Northern Saskatchewan Administrative District (NSAD) which directly corresponds to the Canadian Statistics Census Division No. 18.i The chapter provides an important glance into the region’s demographic and post-secondary educational profile. However, it does not provide the context of the region’s rich history since time immemorial, but rather a snapshot of the current realities of Northern Saskatchewan. After introducing Northern Saskatchewan, this chapter will offer lessons from delivering post-secondary education in the region focusing on the Master of Governance and Entrepreneurship in Northern and Indigenous Areas (GENI), as well as its predecessor, the Master of Northern Governance and Development (MNGD) that was terminated in 2017.  

With its unique development, delivery and focus, the GENI program offers lessons for post-secondary institutions, governments, and practitioners working to improve educational obtainment and access for northern, remote, and rural communities. The chapter will highlight three lessons from the GENI: 1) relevant programming for northern capacity building; 2) global partnerships strengthening learning opportunities for students and communities; and 3) the financial challenges for northern education. The lessons from the GENI program are provided from the author’s perspective as a practitioner working with both programs over 10 years, and within the field of northern education and partnerships over 18 years.

Figure 1  

Northern Saskatchewan Administration District 

Source: Government of Saskatchewan https://www.saskatchewan.ca/business/first-nations-metis-and-northern-community-businesses/economic-development/northern-administration-district   

Overview of Northern Saskatchewan  

The vastness and diversity of Northern Saskatchewan is unknown to most Canadians, and even to the southern population of Saskatchewan. Many declare that they have travelled north to the beautiful lake community of Waskesiu and the Prince Albert National Park. Few are aware that Waskesiu is situated outside the geographic boundaries of the NSAD and would not be considered the North within the context of the vast province. Established to provide municipal services and utilities to the unorganized areas within the region, NSAD provides a tangible identification of what constitutes the geographic area of Northern Saskatchewan (see Figure 1). The NSAD includes 34 northern settlements, resorts, and subdivisions.ii Within the geographic boundaries of the NSAD, there are 25 incorporated municipalities (two towns, 11 Northern Villages, 11 Northern Hamlets, and the NSAD), and 12 First Nation Reserves.iii The 71 communities are spread across the staggering size of 262,280km2, almost half of all of Saskatchewan’s area. At this size, Northern Saskatchewan is double the size of Nova Scotia, New Brunswick, and Prince Edward Island put together.  

The geographic vastness includes several different ecozones, including Taiga shield, boreal shield, and the boreal plains, and large water systems. You can spend hours crossing one of the largest and deepest lakes in Canada, the Athabasca Lake, to arrive at the biggest sand dunes in Canada, or spend days canoeing down the Missinipi (Churchill) River, the 5th largest river system in Canada. This diversity of the landscape is entrenched with natural riches that support thriving resource extractive industries and tourism, and outdoor adventure activities and economies.iv Though riches in resources are evident, Northern Saskatchewan lacks adequate infrastructure and service delivery. The transportation infrastructure and road network are poor throughout the region, with some northern communities only accessible via air. Though some communities, such as Fond-du-Lac, Black Lake and Uranium City, are accessible by ice roads in the winter, it still takes almost 20 hours of driving to reach these areas from the town of La Ronge, which is considered the closest service hub for many of the northern communities. The flying time from Saskatoon to Uranium City is about 4 hours, the same duration of time as it takes to fly from Saskatoon to Toronto. 

Northern Saskatchewan is the home to about 36,000 people that are widely spread across the region.v It has a population density of 0.1 people per square kilometer, making it more comparable to the territorial North than the southern provincial population densities (Table 1). When you remove Northern Saskatchewan, the province’s population density increases from 2.0 to 3.8 which aligns more with Canada as a whole (which has a population density of 4.2). Only surpassed by Manitoba, Saskatchewan has one of the largest Indigenous populations per capita among the Canadian provinces with 17% of the population identifying as holding at least one Indigenous ancestry in the 2021 census. Nonetheless, Indigenous populations in the South are still significantly lower than in Northern Saskatchewan, where 85 % of the population identifies as Indigenous (Table 2). Among the Indigenous population, there is a rich diversity, including significant representation of the Cree, Dene, Métis and Inuit Peoples.4 Half of the of the northern population lives within one of 12 First Nation Reserves.  

Table 1 

Population Density in Saskatchewan Per Square Kilometre  

 Population Square Kilometers Population Density 
Northern Saskatchewan 35,986 262,280 0.1 
All of Saskatchewan 1,132,505 577,060.40 2.0 
Southern Saskatchewan* 1,096,519 314,780.40 3.5 
Canada  36, 991,981 8,788,702 4.2 

Note: Southern Saskatchewan is a compilation of all Saskatchewan regions, removing the data from the Census Division No. 18.  

Data Source: Statistics Canada (2023). 

Table 2 

Indigenous Ancestry in Northern Saskatchewan (2021) 

 Population Indigenous Percentage of the population 
Northern Saskatchewan 35,986 30,724 85% 
All of Saskatchewan 1,132,505 191,050 17% 
Southern Saskatchewan* 1,096,519 160,326 15% 
Canada  36, 991,981 2,204,480 6% 

Data Source: Statistics Canada (2023).  

The population in Northern Saskatchewan is substantially younger than the rest of Saskatchewan. The Northern Saskatchewan average age is 31 years, while the province as a whole has an average age of 40 years. More than half of the Northern Saskatchewan population is under the age of 29 (Table 3). Over the last decade, the Saskatchewan population has stayed constant but with a noticeable change regarding a growing immigration population (Table 4). Between 2010 and 2021, the immigrant population more than doubled, with the highest representations being from Asia (305 individuals), Europe (90 individuals), and the Americas (60 individuals). Though the growing immigration population showcase a shift in the movement of people to Northern Saskatchewan, the immigration population here is still a small percentage at only 1.4%. Saskatchewan has an immigration population of 12% which is still substantial lower than the Canadian population representative of 23%.  

Table 3 

Population Age in Saskatchewan  

 Population Number of people aged 0-29 Percentage of people aged 0-29 Average age of Population 
Northern Saskatchewan 35,986 19,130 53% 31 
All of Saskatchewan 1,132,505 428,530 38% 40 
Canada  36,991,981 8,788,702 34% 42 

Data Source: Statistics Canada (2023).  

Table 4 

Northern Saskatchewan Immigration  

 Population Immigrant Percentage of the population 
Northern Saskatchewan 35,986 510 1% 
All of Saskatchewan 1,132,505 137,620 12% 
Southern Saskatchewan* 1,096,519 137,110 13% 
Canada  36, 991,981 8,361,505 23% 

Data Source: Statistics Canada (2023).  

Northern Saskatchewan Realities 

Northern Saskatchewan faces unique challenges, impacting both its communities and socio-economic development. The region grapples with limited infrastructure, making transportation and access to services difficult. Economic opportunities are often scarce, contributing to higher unemployment rates and economic instability.vi,vii,viii, Indigenous communities, which form a large part of the population, encounter persistent issues related to health care access, education, and housing.ix,x,xi Environmental concerns, including the effects of climate change and resource extraction, further complicate the area’s development.xii,xiii These realities underscore the need for targeted policies and investments to address the unique challenges of Northern Saskatchewan.” 

One specific area of concern is opportunities for postsecondary education in the north whereas the Northern Saskatchewan obtainment of a bachelor’s degree is more than five times lower than the Canadian average. This trend continues for graduate degrees; only 1% of the Northern Saskatchewan population (totalling 375 people) has obtained a graduate degree as of 2021, compared to almost 5% of the Canadian population, and almost 3% in Saskatchewan as a whole (Table 5). Among those that completed a bachelor’s degree, only 47% identified as having Indigenous ancestry, and for a master’s degree, this number was only 31%.xiv Recognizing the Indigenous population in Northern Saskatchewan is about 85%, there is a not only substantial educational gap between the southern and northern regions of Saskatchewan, but also between the Indigenous and non-Indigenous population in Northern Saskatchewan.  

Table 5 

Obtainment of Education in Northern Saskatchewan in Comparisons with Saskatchewan and Canada, 2021  

 Population People with secondary (high) School Percentage of the population 
Northern Saskatchewan 35,986 25040 69.6% 
All of Saskatchewan 1,132,505 882,760 77.9% 
Southern Saskatchewan* 1,096,519 160,326 78.2% 
Canada  36, 991,981 857,720 82.0% 
 Population Bachelor’s degree Percentage of the population 
Northern Saskatchewan 35,986 1530 4.3% 
All of Saskatchewan 1,132,505 130,060 11.5% 
Southern Saskatchewan* 1,096,519 128,530 11.7% 
Canada  36, 991,981 8086245 21.9% 
 Population Master’s degree Percentage of the population 
Northern Saskatchewan 35,986 375 1.0 % 
All of Saskatchewan 1,132,505 31,315 2.8% 
Southern Saskatchewan* 1,096,519 30,940 2.8% 
Canada  36, 991,981 1,740,606 4.7% 
 Population Doctor’s degree Percentage of the population 
Northern Saskatchewan 35,986 20 0.05% 
All of Saskatchewan 1,132,505 5790 0.5% 
Southern Saskatchewan* 1,096,519 5770 0.5% 
Canada  36, 991,981 279,660 0.7% 

Data Source: Statistics Canada (2023).

Access to post-secondary education is one of challenges in efforts to improve degree obtainment in Northern Saskatchewan. As the population is widely dispersed, educational opportunities are provided mainly through satellite campuses, and through flexible and online program delivery. There are currently three post-secondary institutions with campus location in the NSAD, including the Gabriel Dumont Institute (in La Loche, Ile-a-la-Crosse, and Beauval), Northlands College (in Air Ronge, Buffalo Narrows, Creighton, and La Ronge), and Saskatchewan Indian Institute of Technologies (in Creighton, and La Loche, and La Ronge). Though both the University of Saskatchewan (USask) and First Nation University of Canada claim to have northern campus locations, these campuses are in Prince Albert, which is located south of the geographic boundaries of the NSAD. There is currently no university with a campus location in the NSAD.  

The lack of university campus locations in the North is significant considering that northern residents are more likely to study closer to home. Among those that have obtained post-secondary education, 78.8% gained education from institutions in the province, compared to 66.3% of Saskatchewan as a whole. The top fields of study in the North have strong correlations to the leading industry sectors and employers within the region. Most post-secondary programs available in the North tend to focus on providing education and training for employment in the extractive resource, education, and health care sectors (Table 6).  

Table 6 

Top Fields of Study in Northern Saskatchewan, 2021  

Fields of Study Number of  People Percent of total fields 
Architecture, engineering, and related trades 1495 24% 
Business, management, and public administration 1160 19% 
Education 1135 18% 
Health and related health 995 16% 
Personal, protective, and transportation services 830 14% 
Social and behavioural science and law 530 9% 

Data Source: Statistics Canada (2023).  

Within these fields of study, there are some noteworthy post-secondary programs in Northern Saskatchewan that have a longstanding history and experience. At the bachelor level, teacher education and nursing have been long been available through collaborations between post-secondary institutions and communities. The Northern Teacher Program (NORTEP) operated for over 40 years before the Government of Saskatchewan removed funding in 2017.xv The closure of this program has made room for innovative community partnerships that offer teacher education programs in the communities of Lac La Ronge Indian Band and The Northern Village of Cumberland House.xvi With the use of remote presence technology and robotics, the USask College of Nursing is offering students the Learn Where You Live program.xvii By providing the opportunity for remote learning and accessibility in Northern Saskatchewan, the USask College of Nursing program more than doubled its self-identified Indigenous student body in 4 years (7.7% in 2012 to 17.3% in 2016).10 At the graduate level of study, there are a growing number of programs available across Canada via online and flexible delivery methods. The case study that follows speaks to a specific case where graduate programming and local partnerships grow capacity in the north. 

The GENI Case Study: Building Local Capacity through Global Partnerships and Relevant Graduate Programming  

With its unique development, delivery and focus, the GENI program offers lessons for post-secondary institutions, governments, and practitioners working to improve educational obtainment and access for northern, remote, and rural communities.  

Context of Graduate Programming in Northern Saskatchewan 

One of the first graduate programs launched with a focus on Northern Saskatchewan was the masters-level program on governance and development, the MNGD in 2010, and its derivate, the joint master’s program on governance and entrepreneurship, GENI launched in 2015. As of 2024, the MNGD and GENI programs have had over 75 graduates, with about 55 alumni remained Saskatchewan and the majority of these in Northern Saskatchewan. With just about 375 people with graduate degrees living in Northern Saskatchewan, the MNGD and GENI programs have made a significant impact by increasing the overall the human capacity in the region. 

Relevant programming to build local northern capacity  

The GENI program builds on lessons learned from the MNGD that first launched in 2010 after consultations with Northern Saskatchewan stakeholders, including Indigenous communities, industry leaders, and different government representatives.xviii These conversations identified the capacity needs from community and industry perspectives to build a northern workforce relative to the unique challenges and opportunities in Northern Saskatchewan. They had also identified an interest to share lessons between northern and Indigenous communities to build local knowledge for the distinctive northern issues. Flexible educational delivery solutions to maintain the workforce in the North was also highlighted, as too was the importance of fostering a workforce with a broad range of skills to work within different sectors, reflecting the reality of the northern labour market.xix 

The outcome of the stakeholder consultations was a program unique structure, programmatic focus, and delivery. The interdisciplinary online graduate degree with a hybrid combination of professional skills and applied research skills targeted mid-career working professional. While the MNGD program had a focus on Northern Saskatchewan, the GENI provided a larger programmatic scope and expanded the regional focus to include the Circumpolar North. Core MNGD program themes included governance, economic development, social and economic innovation, professional writing and communication, negotiations and consultations, and applied research projects building community capacity. The GENI provide additional emphasis on public policy, Indigenous research methods, and Indigenous rights and laws. The student research projects are required to benefit northern and Indigenous communities by providing appliable lessons or solutions to the regional unique opportunities and challenges. As the regional opportunities and challenges are diverse, so are the student research deliverables. They include a wide range of studies on topics such as child welfare, co-management of resources and land, economic development and tourism, distance education, food security, housing, Indigenous community engagement, Indigenous language revitalization, implementation of Indigenous people’s rights, mining remediation, regional governance, and water governance. With applicable research topics to the region, the program is not only building human capacity by individual obtainment of graduate education but providing applicable lessons for the northern region. By ensuring applicability to the northern region, the GENI and the MNGD programs have strengthen the northern workforce and local capacity to deal with the unique regional opportunities and challenges.  

Global partnerships that strengthen learning for students and communities  

The GENI program is delivered through an innovative partnership between USask and the Centre for Sami Studies (Sesam) at the Arctic University of Norway (UiT) that jointly administers the daily operations of the program. When the program first launched in 2015, it was the only joint program in Western Canada, and the only joint program between Canada and Norway. Delivering a program in partnership provides the opportunity to strengthen resources, learning, and opportunities for students. By joining resources, the two smaller academic units of the USask Johnson Shoyama Graduate School of Public Policy (JSGS) and Sesam can fuse two faculty compositions and offer greater depth and expertise. For example, while JSGS has strength in governance, public policy, and resource management, Sesam has more expertise in Indigenous history, research ethics, consultation, and law. This wide range of knowledge is crucial for the interdisciplinary nature of the program, and provides rich, comparative regional lessons for the students. The opportunity to pool resources also provides the opportunity for smaller academic units to deliver programs at a lower financial cost by sharing the teaching and student support responsibilities.  

Facilitated by the partnership, students gain global experiences by completing two required international community-based field schools. During the field schools, students learn from a wide range of voices, including communities, government, industry, and academia, that offer practical solutions to complex northern challenges. GENI alumni refer to the field schools as providing “life altering lessons” with regards to northern possibilities and demonstrate many examples in which they implement relevant lessons within their own practice and community.xx The delivery of the unique GENI program and its learning opportunities has only been possible through the institutional partnerships between UiT and USask.   

The challenges of delivering Northern education  

Financial viability has always been one of the greatest challenges for northern graduate education programs. Here, student cohorts remain small, and programs depend highly on partnerships for facilitation. To strengthen the financial security of northern programs, institutions often seek out additional granting partnerships and sponsorship. For the GENI program, the global partnerships with USask and Sesam have been tremendously successful with regards to project grants through European (Erasmus), Norwegian (SIU, DIKU and UArctic Norway) and Canadian (UArctic and North2North mobility) government funding agencies. Over a 12-year period, the partnership has led to almost $1 million in support for innovation in programs, international partnership facilitation and student mobility. Nonetheless, the financial grants have only provided short-term project support and have failed to provide long-term program financial security. The sensitive financial environment was evident with the MNGD program when it was terminated after the Government of Saskatchewan withdrew its special allocation to the program in 2017.xxi This showcased the challenges for northern programming in the Canadian context where government funding and institutional support fluctuate alongside the provincial financial environment. In addition, the shortage of government agencies’ support for post-secondary educational innovation and partnerships has become apparent compared to the numerous funding opportunities available through European partnerships. The partnership with UiT has provided USask with the opportunity to seek out opportunities for program innovation.  

Conclusion  

The GENI and MNGD showcase that providing relevant post-secondary education through collaborative and innovative delivery arrangements can build regional human capacity to strengthen the northern socio-economic wellbeing. The GENI and MNGD also showcase that northern programs can be unstable if the financial burden to the institution becomes too large. Conversely, embracing partnerships can improve the potential financial liability of delivering northern program by resource sharing. Strong institutional partnerships are also highly advantageous in grant and project applications that can benefit northern graduate education.  

In efforts to build human capacity in the North, post-secondary institutions must continue to be willing to approach communities to develop relevant education and training while also seeking out partnership for cost-sharing. As capacity grows within northern and Indigenous communities, community-led education and training programs will start to emerge due to the lack of opportunities provided by governments and post-secondary-institutions. This is the future the GENI program envisions, where northern communities have the capacity and know-how to build and lead the development of their own futures. Through these actions, it will become incumbent for post-secondary institutions to stay relevant for communities by being willing to innovate and serve the needs of communities. As northern communities gain more autonomy in shaping their educational landscape, they will be better positioned to address the unique challenges and opportunities of Northern Saskatchewan’s future. 

References

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  3. The identified First Nation Reserves within the NSAD are Birch Narrow, Black Lake, Buffalo River Dene Nation, Canoe Lake Cree First Nation, Clearwater River Dene, Cumberland House Cree Nation, English River First Nation, Fond-Du-Lac, Hatchet Lake, Lac La Ronge Indian Band, Montreal Lake, and Peter Ballantine Cree Nation. Retrieved from the Office of The Treaty Commissioner April 24, 2024, https://www.otc.ca/ckfinder/userfiles/files/fnl_1100100020617_eng.pdf
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  8. Cooper, J. (2021). Skills Development in the North: An Ecosystem Shaped by Distinct Challenges. Ottawa. https://fsc-ccf.ca/wp-content/uploads/2021/09/Primer_Skills-Development-in-the-North-1.pdf
  9. Assembly of First Nations (2022, November 8). Closing the First Nations Education Gap in Canada: Assessing Progress and Estimating the Economic Benefits – An Update. Ottawa. https://www.csls.ca/AFN-Closing-the-Gap_Report-2023_EN.pdf
  10. National Collaborating Centre for Aboriginal Health. (2017). Housing as a Social Determinant of First Nations, Inuit and Métis Health. Prince George, BC. https://www.ccnsa-nccah.ca/docs/determinants/FS-Housing-SDOH2017-EN.pdf
  11. National Collaborating Centre for Indigenous Health (2019). Access to health services as a social determinant of First Nations, Inuit and Métis health. Prince George, BC. https://www.nccih.ca/docs/determinants/FS-AccessHealthServicesSDOH-2019-EN.pdf
  12. Hurlbert, M. A., & Akpan, J. (2023). Dialectic narratives, hostile actors, and Earth’s resources in Saskatchewan, Canada. Sustainability science, 18(1), 285–301. https://doi.org/10.1007/s11625-022-01214-y
  13. Government of Saskatchewan. (2017). Saskatchewan’s Climate Change Strategy. https://www.saskatchewan.ca/business/environmental-protection-and-sustainability/a-made-in-saskatchewan-climate-change-strategy/saskatchewans-climate-change-strategy
  14. Statistics Canada. (2022). Table 98-10-0415-01 Highest level of education by major field of study (summary) and Indigenous identity: Canada, provinces and territories, census divisions and census subdivisions with a population 5,000 or more. https://doi.org/10.25318/9810041501-eng
  15. Bridges, A. (2017, April 30). “Sad for the North”: Mixed emotions as 40 years of NORTEP end with last student graduation. CBC News. https://www.cbc.ca/news/canada/saskatoon/last-graduation-nortep-closing-la-ronge-sask-1.4092730
  16. The notable programs are Northern Saskatchewan Indigenous Teacher Education Program (NSITEP) and the Bachelor of Education Cree Teacher Education Program (CTEP).
  17. Butler, L., Bullin, C., Bally, J., Tomtene, M., & Neuls, E. (2016). Learn Where You Live, Teach From a Distance: Choosing the Best Technology for Distributed Nursing Education. Northern Review, 43, Article 43. https://thenorthernreview.ca/index.php/nr/article/view/590
  18. Edge, J. (2016). Building Northern Capacity: The University of Saskatchewan’s Master of Northern Governance and Development. The Conference Board of Canada. https://www.conferenceboard.ca/product/building-northern-capacity-the-university-of-saskatchewans-master-of-northern-governance-and-development/
  19. U of S announces new investments in education and research for Saskatchewan’s northern communities. (2011, September 9). USask News. https://news.usask.ca/media-release-pages/2011/u-of-s-announces-new-investments-in-education-and-research-for-saskatchewans-northern-communities.php
  20. Stavostrand Neuls, E. (2024). The Value of Global Learning: The Lessons from Northern Saskatchewan (forthcoming dissertation).
  21. U of S says provincial cut means closure of International Centre for Northern Governance and Development. (2017, May 24). CBC News. https://www.cbc.ca/news/canada/saskatoon/university-saskatchewan-provincial-cut-closure-1.4130338