Existing Guidelines and Certificates for Culturally Sensitive Tourism in Canada

1 Existing Guidelines and Certificates for Culturally Sensitive Tourism in Canada CHRIS E. HURST LATEISHA UGWUEGBULA BRYAN S. R. GRIMWOOD R. HARVEY LEMELIN 2 3 ARCTISEN Culturally sensitive tourism in the Arctic Multidimensional Tourism Institute (MTI) Rovaniemi www.luc.fi/matkailu Design: Lappi Design / Tytti Mäenpää ISBN 978-952-337-211-5 3 Publications of the Multidimensional Tourism Institute Matkailualan tutkimusja koulutusinstituutin julkaisuja Existing Guidelines and Certificates for Culturally Sensitive Tourism in Canada Rovaniemi 2020 CHRIS E. HURST LATEISHA UGWUEGBULA BRYAN S. R. GRIMWOOD R. HARVEY LEMELIN 4 5 ARCTISEN Culturally sensitive tourism in the Arctic ARCTISEN Promoting culturally sensitive tourism across the Arctic Funder: Budget: Partners: Main result: Improved entrepreneurial business environment for culturally sensitive tourism that will be achieved by improving and increasing transnational contacts, networks and cooperation among different businesses and organizations. Improvement of business environment will also result in concrete products and services, locally and transnationally designed, that support the capacities of start-ups and SMEs to develop sustainable, competitive and attractive tourism businesses drawing on place-based opportunities. Northern Periphery and Arctic Programme University of Lapland (Lead Partner), Finland UiT The Arctic University of Norway Northern Norway Tourist Board Umeå University, Sweden Ájtte - Mountain and Sámi museum, Sweden Aalborg University, Denmark University of Waterloo, Canada WINTA - World Indigenous Tourism Alliance 1.455.547,88€ 5 6 7 ARCTISEN Culturally sensitive tourism in the Arctic Contents Introduction .............................................................................................. 8 Background .............................................................................................. 12 Treaties and Land Claim Agreements ......................................................... 12 Indigenous Tourism in Canada .................................................................... 15 Indigenous Tourism Association of Canada (ITAC) ................................... 16 Existing Guides and Certificates ............................................................... 20 Parks Canada Agency (PCA) Promising Pathways Resource Guide ........ 20 ITAC's National Guidelines ........................................................................... 21 Application of the Guidelines .................................................................... 26 ITAC Membership ................................................................................ 26 Territorial Government ................................................................................. 27 City-Level: Yellowknife ................................................................................. 29 Local First Nations: Tłı chǫ First Nations ............................................... 29 Conclusion ............................................................................................... 32 Notes and references ............................................................................... 36 7 Introduction 8 9 ARCTISEN Culturally sensitive tourism in the Arctic 1. What key factors influence culturally sensitive tourism business development in the Canada Arctic? What are the challenges/opportunities, and who are the key players? 2. What guidelines or certificates currently exist for culturally sensitive tourism and to what extent are they used? The report discusses four modern land claim agreements in the arctic region of Canada to contextualize various provisions contained within agreements and highlight potential implications for tourism. The report further explores existing national level guidelines for culturally sensitive (authentic) tourism and their application within one territory, the Northwest Territories, in the Canadian arctic. The Northwest Territories (NWT) was as a focus because it has: Introduction The purpose of this report is to examine existing guidelines or certificates for culturally sensitive tourism, and the extent to which the guidelines or certificates are used in the Canadian context. Additionally, this report identifies potential challenges and opportunities for tourism development within legal treaties and Comprehensive Land Claim Agreements between several Indigenous nations and different levels of government in Canada (federal, provincial, and territorial). The objective is to assess how existing guidelines are used (or not) by tourism businesses offering Indigenous cultural experiences (specifically in the Canadian Arctic), recognizing that reconciliation efforts, Treaties, and modern land claim agreements serve as the context and frame for much contemporary tourism business development. The questions guiding this report are: ythe largest population among the three territories in the Canadian arctic, with over 50% of residents identifying as Indigenous1; ythe largest amount annual tourism spending by visitors among the territories2; ythe greatest number of Indigenous tourism businesses among the territories, the majority of which operate out of the capital city, Yellowknife3; and, ythe authors have established networks and ongoing research relationships in the territory, which will be useful for implementing benchmarking trips later in the ARCTISEN project. 9 Key findings of the report indicate that provisions within modern land claim agreements offer opportunities as well as possible risks or challenges for culturally sensitive Indigenous tourism development in the Arctic region. The report further highlights the challenges associated with determining the extent to which existing guidelines are used in the Canadian context. The Indigenous Tourism Association of Canada’s (ITAC) National Guidelines (the main guidelines identified in this report) are a practical “how-to guide” for business development, rather than a form of accreditation, and are not explicitly endorsed by territorial or municipal governments, or Indigenous governments and communities, in the Northwest Territories. "...provisions within modern land claim agreements offer opportunities as well as possible risks or challenges for culturally sensitive Indigenous tourism development in the Arctic region." 16 17 ARCTISEN Culturally sensitive tourism in the Arctic lution and legislative amendments) and under negotiation (i.e., treaties and land claim agreements). This leaves a bit of a gap which, to date, has been filled (directly or indirectly) by federal departments such as the Parks Canada Agency (responsible for heritage places – i.e., national historic sites, national marine conservation areas and national parks / national park reserves); Environment and Climate Change Canada (responsible for national wildlife areas and migratory bird sanctuaries); and the Department of Fisheries and Oceans (responsible for marine protected areas); as well as provincial and territorial organizations/ ministries with similar authorities. More substantially, this gap has been filled in by regional and national Indigenous tourism associations. Regional Indigenous tourism associations tend to be exclusive to particular nations or geographical regions. For example, the Cree Outfitting and Tourism Association (COTA)*** located in Eeyou Istchee Baie-James, or Nunavik Tourism in northern Quebec28. Nationally, the Indigenous Tourism Association of Canada (ITAC), a business association dedicated to the de- ***COTA is a non-profit corporation devoted to developing the tourism industry in the Eeyou Istchee Baie-James region. Members include, “Any Cree individual, partnership, organization or communitiy controlled by a majority of Cree beneficiaries engaged in outfitting or tourism activities within the traditional territory of Eeyou Istchee” in Quebec. velopment, promotion and marketing of Indigenous tourism experiences, serves as a central resource for Indigenous tourism development for all nations across the country****. Indigenous Tourism Association of Canada (ITAC) ITAC is a non-profit business association whose mission is to “provide leadership in the development and marketing of authentic Indigenous tourism experiences through innovative partnerships”29. In 2015, ITAC published the 'National Aboriginal Tourism Research Project', which was intended to benchmark key statistics, indicators, and examples of Indigenous tourism in the Canadian market. Findings of the report indicated over 1,500 Indigenous owned businesses across Canada; over 33,000 people employed; gross domestic product contributions of over $1.4 B by Indigenous tourism businesses; and a growing market for Indigenous tourism experiences30. Today, ITAC has approximately 200 ***At the time of reporting, an assessment of existing guidelines for culturally-sensitive/authentic tourism in the Northwest Territories (NWT) was limited to an examination of national and territorial resources, as well as a tourism strategy by a local first nation. Given the focus of this paper on the Northwest Territories, resources from regional Indigenous tourism associations dedicated to specific geographical locations or communities outside of NWT were not included. member organizations (including majority and nonmajority owned Indigenous tourism businesses; third-party operators, governments and other organizations interested in advancing the Indigenous tourism industry) across Canada31. Members have access to training workshops; business support and development tools; marketing opportunities/networks; and advertising through ITAC32. Additionally, majority owned Indigenous tourism businesses may elect to be featured in ITAC’s annual “Guide to Indigenous Tourism in Canada” publication, and on ITAC’s tourism website increasing market visibility and taking advantage of ITAC’s centralized web platform for Indigenous tourism experiences*****. *****At the time of writing, a Google search of “Indigenous + Tourism + Canada” yielded the ITAC “Guide to Indigenous Tourism in Canada” publication and tourism website as all of the top five results. 17 18 19 ARCTISEN Culturally sensitive tourism in the Arctic 19 Existing Guides and Certificates 20 21 ARCTISEN Culturally sensitive tourism in the Arctic Parks Canada Agency (PCA) Promising Pathways Resource Guide The federal department responsible for heritage places, including historic sites, national parks, national marine conservation areas and several locations designated as world heritage sites by the United Nations Educational, Scientific and Cultural Organization (UNESCO), the Parks Canada Agency (PCA), has published a resource guide entitled, Promising Pathways: Strengthening engagement and relationships with Aboriginal peoples in Parks Canada heritage places, a document aimed at supporting a consistent approach to relationships with Indigenous peoples and partners across its many heritage places33. The guide is intended to also be used as an informational toolkit for operational employees that are engaging with Indigenous partners with a view of strengthening relationships and building capacity34. The report is centred around three stages of relationship building: initiating, growing, and stewarding; and calls upon central concepts related to cultural sensitivity such as long-term commitment, trust, and mutual respect as guiding these instructions35. Further the report recognizes that strengthening relationships with Indigenous partners includes fostering connections with traditional lands and takes the form of facilitating access, encouraging traditional activities, and encouraging the use and transfer of traditional knowledge in Parks Canada Places36. As the report is intended for frontline staff usage, it is referred to on the Agency’s public website; however, a copy of the full-text version is only available upon request*. *The version cited in this report was made available by the George Wright Society on its public website. A request for the guide from the Parks Canada Agency on June 1st, 2019 remains unanswered as of the writing of this report. In the Canadian context, two main guides were identified as having been developed with implications for culturally sensitive tourism across the country. The first is an internal resource guide for the Parks Canada Agency, which is primarily focused on youtlining the Agency’s position/policy on reconciliation and relationships with Indigenous stakeholders on lands and waters under its administration; and yproviding frontline staff with a tangible checklist for activities to fulfill said policy requirements. The second, is the ITAC National Guidelines which is a publicly available business guide intended to help Indigenous tourism operators in the development and marketing of “authentic” Indigenous experiences. Existing Guides and Certificates 21 In the period following the publication of the 2014 report, the Parks Canada Agency entered into a Memorandum of Understanding (MOU) and a four-year contribution agreement with the Indigenous Tourism Association of Canada (ITAC) to enhance and grow authentic Indigenous tourism experiences in its heritage places37. This agreement also serves to recognize ITAC’s position as a non-profit national centre of excellence for Indigenous tourism – 'creating partnerships between associations, organizations, government departments, and industry leaders'38, as well as supporting the development and advertisement of authentic Indigenous tourism experiences in the Canadian market. ITAC members have access to programs aimed at improving or developing their business, and businesses that are majority owned and operated by Indigenous peoples have the opportunity to be included in ITAC’s annual Indigenous Experiences Guide (a marketing tool for Indigenous tourism in Canada)39. ITAC has also developed a set of national guidelines, updated in 2018, to act as a 'path finder for all within the Indigenous tourism industry'40. ITAC’s National Guidelines ITAC’s National Guidelines: Developing Authentic Indigenous Experiences in Canada serve as a practical guide to help business owners build and develop their Indigenous tourism products, and set principles and expectations surrounding what constitutes Indigenous tourism experiences. The first few pages set out how to use the guide depending upon the goals of the particular business: planning/starting an Indigenous tourism business; improving and/ or expanding on an existing business; and expansion into bigger tourism markets and partnerships. It also distinguishes between “Indigenous Tourism” businesses that are majority owned, operated and/or controlled by Indigenous peoples demonstrating a connection and responsibility to the local community and traditional territory; and “Indigenous Cultural Tourism” business which, in addition to those features, also incorporates a significant cultural component that is appropriate and respectful. Following these differentiations, there are several pages that are designed to bring awareness of the principle of authenticity as a centrally defining concept of Indigenous tourism experiences. The themes associated with authenticity are largely the same as those discussed in literatures concerning cultural sensitivity in Canada, including: respecting (nature, traditions, culture and Elders as 'Keepers of the culture'41); preserving traditional knowledge; avoiding cultural appropriation/commoditization; using traditional languages where appropriate; communicating what is or is not appropriate behaviour by tourists (and/ or what cultural components will or will not be shared with outsiders and why); protecting cultural identity; and protecting sacred/ spiritual/ceremonial sites42. Unlike cultural sensitivity, which is largely described as something that Settlers, tourists, researchers, governments, etc. are responsible for in their interactions with Indigenous peoples, authenticity shifts the onus of responsibility onto the tourism business. To provide authentic tourism experiences, tourism operators/businesses must work closely with their respective communities in the development and delivery of their tourism products. Authentic tourism experiences are described in the guidelines as those that recognize that a culture belongs to the community and tourism products sharing this culture should be 'developed and delivered in a way that supports the community it represents'43. It also recognizes that a community is best placed to determine what is appropriate 22 23 ARCTISEN Culturally sensitive tourism in the Arctic to be shared with outsiders, what cultural elements cannot be shared and that these determinations need to take place and with the support of the 'Keepers of the Culture' (i.e. Elders and other community members)44. Authentic tourism experiences must also navigate the challenge of offering an experience with wide tourism appeal, while still being true to traditional and contemporary culture within host-communities. It requires that the experiences offered to be meaningful and beneficial to the community in which the business is based; community control of cultural program contents and community involvement in program delivery. The guidelines also specify that authentic Indigenous cultural tourism experiences are 'by Indigenous peoples, not about Indigenous peoples.'45. In recognition and support of each community having different cultural boundaries and protocols, while also acknowledging ITAC’s role in promoting authentic Indigenous experiences, the guidelines offer five recommended protocols which must be met in order to be considered an ‘authentic Indigenous experience’46. These include (see the box): The next section of the guidelines provide tips and best practices for protecting cultural authenticity while also supporting the community, and practical tips for introducing visitors to a community’s culture. Best practices related to protecting cultural authenticity while supporting the community centre around including the community to the greatest extent possible in the development, production and delivery of tourism products and experiences within that community, with particular attention paid to ensuring that cultural experiences that are deemed inappropriate for visitors are clear and any required barriers put in place to ensure that visitors do not enter sites that they are not permitted to enter. The guidelines offer eight practical tips for introducing visitors to a community’s focusing on both expectation management activities (i.e. access to information materials, verbal introductions that include information on what to expect as well as the expectations of the host, and any additional explanations required); and infrastructure/organizational considerations (i.e. traditional architecture/décor; traditional foods; traditional language; displays/signs/exhibits; and composition of frontline staff/hosts). Five recommended protocols in ITAC’s “National Guidelines: Developing Authentic Indigenous Experiences in Canada”47: 1) At least 51% owned by Indigenous individuals OR majority owned Indigenous companies OR Indigenous controlled organizations such as Bands and Tribal Councils. 2) Use cultural content approved by Keepers of the Culture and developed under the direction of the Indigenous peoples who are from the culture being interpreted. 3) Offer cultural activities for guests led by Indigenous people (an exception may be when foreign languages are required when the interpreter should still have access to an Indigenous host for questions related to the culture and community). 4) Provide opportunities for visitors to interact face-to-face with Indigenous people such as artisans, craftspeople, Elders, storytellers, hosts or entertainers who originate from the culture being shared. 5) Ensure that heritage interpreters and presenters have suitable experience, knowledge or formal training related to the Indigenous culture that they are sharing . 23 The rest of the guide is organized around the needs of tourism businesses at various stages of development. These sections do not have any Indigenous-specific contents, except in so far as including a checklist which refers to the defining features and protocols related to culturally authentic experiences. The checklist (pages 37 – 41 of the Guidelines), is intended to be used in tandem with the business-oriented checklists that conclude the guidelines. 24 25 ARCTISEN Culturally sensitive tourism in the Arctic 25 Application of the Guidelines 32 33 ARCTISEN Culturally sensitive tourism in the Arctic tourism experiences and enjoy the added benefits of networking and advertisement that ITAC has to offer, is contingent on being a member of ITAC. What is obvious is that the number of Indigenous owned tourism businesses far exceeds the number of ITAC members nationally; and while officials at the federal (Parks Canada), territorial (Government of NWT) and local level (Tłıchǫ Nation) have recognized ITAC’s role as a centre of excellence for developing Indigenous tourism (as seen in the signing of MOUs, newly formed partnerships, or in the seeking of services/supports) it is not clear what role the National Guidelines have in these activities (if any). Indigenous tourism is a growing part of the Canadian tourism landscape and is underpinned by modern Agreements containing provisions with implications for tourism business development. ITAC, recognizing the growing demand for authentic Indigenous tourism experiences in Canada, developed National Guidelines to help tourism businesses develop and market culturally authentic products that reflect the values, decisions, and the support of their respective communities. It is difficult to get an overall picture of the extent to which the ITAC national guidelines are being used in the Canadian context; specifically, in NWT. It could be because the guidelines are intended as a practical guide to individual businesses wishing to develop authentic Indigenous tourism experiences but are not intended for any form of certification or accreditation. Similarly, to be recognized as a business offering authentic Indigenous Conclusion 33 34 35 ARCTISEN Culturally sensitive tourism in the Arctic 35 Notes and references 36 37 ARCTISEN Culturally sensitive tourism in the Arctic Notes 1. Statistics Canada, 2019. 2. Statistics Canada, 2018. 3. Indigenous Tourism Association of Canada, 2015; 2018c. 4. Truth and Reconciliation Commission of Canada, 2015. 5. Crown-Indigenous Relations and Northern Affairs Canada (CIRNA), 2017; UN, 2016 6. As seen in the Mandate letters issued Ministers appointed in 2015; Government of Canada, 2017. 7. CIRNA, 2019. 8. CIRNA, 2019. 9. 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ITAC, 2018b, p. 4. 41. ITAC, 2018b, p. 7. 42. Hurst, Grimwood & Lemelin, 2019. 43. ITAC, 2018b, p. 7. 44. ITAC, 2018b, p.7. 45. ITAC, 2018b, p. 8. 46. ITAC, 2018b. 47. ITAC, 2018b, p. 12. 48. ITAC, 2015. 49. ITAC, 2015; 2018c. 50. ITAC, 2019b. 51. ITAC, 2018c. 52. ITAC, 2019a. 53. Northwest Territories Government, 2010a. 54. Northwest Territories Government, 2010b. 55. Northwest Territories Government, 2010b, p. 37. 56. Aboriginal Tourism Champions Advisory Council (ATCAC), 2013. 57. ATCAC, 2013. 58. ITAC, 2018b 59. Northwest Territories Government, 2016. 60. Industry, Tourism and Investment NWT, 2019. 61. D. Bagnall, Personal Communication, July 9, 2019. 62. Northwest Territories Government, 2016; 2018. 63. ITAC, 2019c, para 1. 64. ITAC, 2019c. 65. City of Yellowknife, 2015, p. 10. 66. Tłıchǫ Government, 2019. 67. Tłıchǫ Region Economic Development Working Group, 2018. 68. Tłıchǫ Region Economic Development Working Group, 2018. 69. 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Retrieved from https:// www.un.org/development/desa/indigenouspeoples/declaration-on-the-rights-of-indigenous-peoples.html 39 40 41 ARCTISEN Culturally sensitive tourism in the Arctic Existing Guidelines and Certificates for Culturally Sensitive Tourism in Canada This report examines existing guidelines or certificates for culturally sensitive tourism and attempts to assess guideline use by tourism businesses with cultural experience offerings in the Canadian Arctic. Additionally, the report highlights potential challenges and opportunities for tourism development within the constellation of legal treaties and Comprehensive Land Claim Agreements that formally define relationships between various levels of Canadian government and individual Indigenous nations. Based on a review of formal agreements, guidelines, and business websites, the report found potential opportunities for tourism development within formal agreements with Indigenous nations, and a lack of conclusive evidence for the application of existing guidelines by tourism businesses in the Canadian Arctic, and specifically within Yellowknife, Northwest Territories.