1. Aboriginal Public-Private Partnership 1
An Aboriginal public-Private Partnership: NNAPF
Vincent Ostberg
PPA 701 Aboriginal Public-Private Partnerships
Ryerson University
Instructor: Dr. Patrice A. Dutil
Date: 6 July 2010, revised October 22, 2015

2. Aboriginal Public-Private Partnership 2
An Aboriginal public-Private Partnership: NNAPF
The National Native Addictions Partnership Foundation (NNAPF) was incorporated on
January 31, 2000. The beginning of this organization started in 1996 when a National General
Review was done on the National Native Drug and Alcohol Awareness Program (NNDAP). The
review was completed in two years of which recommendations were collected from various
prevention and treatment workers and other shareholders. (National Native Addictions
Partnership Foundation, 2010)
“The NNAPF had created a regional committees and a national committee based on the
recommendations of the report titled ‘the National NNADAP Review findings and
recommendations’. In keeping with the National NNADAP Review findings and
recommendations, partnership committees between First Nations and Inuit and Health Canada
were developed at the national and regional levels.
In this partnership, First Nations and Inuit committee members brought their expertise
and knowledge of addictions treatment and prevention and Health Canada provided resources
and secretariat services. This type of partnership is classified as a collaborative partnership
although the NNAPF itself is to be considered the senior partner in this arrangement with
several communities and regions. (Kernaghan, 1993)
To examine further, “ ... partnerships that are "true" or substantive partnerships are the
collaborative relationships, the private-public partnerships where there is joint responsibility
for decision-making and the provision of resources and where risks and goals are shared. In this
type of partnership there is a real power-sharing (but not always, or necessarily, equal).”
(Boase, 2000, p. 79)

3. Aboriginal Public-Private Partnership 3
This partnership is defined as a jurisdiction-based management model due to its
high strategy and high activity. It is a great example of a collaborative partnership although it’s
a contributory one too. (Dutil, 2010)
The Interim National Partnership Committee consisted of key First Nation addictions
representatives who were given the mandate by MSB in Ottawa to take on the task of
developing a plan to implement the recommendations contained in the NNADAP Review on a
national basis.” (National Native Addictions Partnership Foundation website, 2010)
This organization is an example of co-management as listed in the Tipa, Welch (2006)
diagram known as collaborative management which has mutual respect for mainstream and
traditional knowledge. One more note to make is that this is also a contributory partnership of
which Health Canada funds the NNAPF which also distributes funding to satellite locations
within the regions across Canada. (Dutil, 2010)
This case study will show why the NNAPF is a successful organization and it is because
they work with the public sector and with Aboriginal and Inuit communities while retaining the
cultural aspects of the people they are in partnership with. Also, this case study will show that
NNAPF is in a collaborative partnership with the Inuit and Aboriginal communities which adds
to
further effectiveness. This case study reveals many effective strategies for other Indigenous
organizations to adopt in the development of their own strategic planning with the private and
public sectors.
Aboriginal people often feel more comfortable if Aboriginal people are involved in their
care due to the level of cultural understanding. A perception of prejudice, both tacit and overt,

4. and a lack of cultural competence in interactions mean that many Indigenous people want their
Aboriginal Public-Private Partnership 4
unique knowledge, values, and beliefs of their culture acknowledged.
Increasingly, there is recognition that mainstream health workers should be culturally
competent, that is, that they should exhibit respectful and knowledgeable
behaviours sustained by an enabling policy environment that supports cross-cultural
interaction.
Culturally appropriate health care interventions occur as a result of culturally
competent practitioners, and an enabling policy and institutional environment.”
(Patricia M. Davidson, Michelle DiGiacomo, Penny Abbott, Robert Zecchin, Patricia E. Heal,
Lynette Mieni, Noella Sheerin, Janice Smith, Andy Mark, Brenda Bradbery, & Joyce Davidson,
2008, p. 140)
In addition to include a cultural aspect, Kernaghan’s (1993) definitions of partnerships
show that this type of partnership is classified as an ‘intergovernmental partnership’ between
NNDAF and the Inuit and First Nations (Aboriginal) communities. He states that in order for an
organization to be effective and provide service quality, it must empower the employees and
the clients, but in this case it is between NDAPF and the First Nations and Inuit partners they
have.
In order to empower the organization, the barriers that create powerlessness must be
removed. In an internal environment, an organization may require that their employees show
commitment and job ownership to execute decisions. The employees are held accountable for
what they achieve rather than what they have done. On the other side, the external dimension
focuses on creating self-worth among individuals or groups outside itself. (Kernaghan, 1993)

5. Aboriginal Public-Private Partnership 5
“A linkage between internal and external empowerment lies in the fact that employees
who are empowered are more likely to have the inclination and the authority to empower
those whom they serve. Partnerships are one means by which an external sense of
empowerment can be achieved.
Since they involve inter-organizational rather than intra-organizational relations, there is
a large pool of potential partners with whom public organizations can interact. The MNR, for
example, welcomes partnerships with other ministries, citizens’ groups, aboriginal peoples,
business organizations, labour unions, and individuals.” (Kernaghan, 1993, p. 61)
Inclusion of Aboriginal cultures and perspectives within NNAPF
NNAPF’s vision, mission, and mandate is summarized as:
“Vision Statement
Cultivating and empowering relationships that connect us to our cultural strengths and identity
within holistic and healthy communities.
Mission Statement
NNAPF commits to working with Inuit and First Nations in furthering the capacity to address
addictions and related issues.
Mandate
NNAPF is the national voice advocating for Inuit and First Nations culturally-based addictions
services.” (National Native Addictions Partnership Foundation website, 2010)
There are some very good actions and processes happening in the vision statement
when it shows [that] the organization want to cultivate (develop) and empower (strengthen)
relationships that connect (bridge) culture and identity within the communities it services.

6. Aboriginal Public-Private Partnership 6
The mission statement states that NNAPF commits to ‘working with’ Inuit and First
Nations, and the mandate is that NNAPF advocates for culturally based services. It shows that
there is an external environment at work within the organization but it also shows that there is
a cultural aspect that had been implemented.
One of the themes that NNAPF uses is that is based on holistic health from the Inuit and
Aboriginal communities. There are four components at play in an individual’s health according
to the model used by the First Nations and the Inuit, they are the psychological, mental,
physical, and spiritual. When applying the medicine wheel to the social aspect, it translates to
physical, economic, social, and political environment.
NNAPF [builds] on the strengths of the people by including individuals, families and the
community in healing approaches. It also incorporates First Nation and Inuit values and beliefs
on healing, health, and wellness. (National Native Addictions Partnership Foundation website,
2010)
It includes First Nations and Inuit cultural approaches in Addictions programming
through the continuum of care, and it supports First Nation and Inuit healing initiatives tied to
their relationship to the world and land around them. (National Native Addictions Partnership
Foundation website, 2010)
DeGagne’s article states that “...adaptations of administrative practice introduced by
the foundation, with the objective of clarifying how respect for cultural context can be
implemented while maintaining high standards of administrative practice. Modified
approaches and their impacts are examined in terms of effectiveness, efficiency and
accountability.” (DeGagne, 2008, p. 559)

7. Aboriginal Public-Private Partnership 7
Similarly, the Aboriginal Health Foundation had developed a vision statement, a mission
statement, and values and a code of ethics followed afterwards. (DeGagne, 2008)
Values and guiding principles
NAAPF has a set of values and guidelines that resulted from the National Native Alcohol
and Drug Abuse Program (NNADAP) consultation and review process. The values are the
guidelines [that] inform the style of work, individual and organizational interactions, and the
overall direction taken by the national and regional groups and their members. (National
Native Addictions Partnership Foundation website, 2010)
The shared values by all stakeholders in NNAPF are:
 Respect
 Cultural diversity
 Honesty
 Compassion
 Trust
 Family strength
 Humility
 Holistic Approaches (National Native Addictions Partnership Foundation website, 2010)
“The Renewal of NNADAP will be guided by principles which are rooted in shared values...
...Accountability and Transparency - It is fundamental that both management organizations
overseeing the renewal of NNADAP and service providers themselves carry out their duties in a
way that reflects accountability and transparency.

8. Aboriginal Public-Private Partnership 8
Communication - The rationale, process and outcomes of the Renewal must be communicated
to all stakeholders. Active, continuous communication of relevant information and opinions
from service workers, researchers and clients are essential.
Working Through Partnerships - The Renewal strategy will draw its strength from vigorous
working partnerships with Aboriginal and Inuit stakeholders and institutions and with the
Federal Government.
Capacity-Building Is an Ongoing Need - Program methodologies and human resource
development must be continuously and objectively evaluated, adapted, and when necessary,
modified, changed or upgraded to reflect the needs of clients.
A System Sensitive to and Respectful of Both Traditional and Contemporary Approaches to
Healing - As determined by clients, families and communities, both traditional and
contemporary approaches to healing will be respected and valued.
Demonstrably Effective Prevention and Intervention Methodologies - Substance abuse and
addictions service methodologies should be demonstrably effective, as indicated by scientific,
evaluative research.
Services Delivered by Knowledgeable, Skilled Workers - Substance abuse and addictions
services should be delivered by accredited, highly skilled people dedicated to empowering
community members, by sharing prevention skills, as well as ideas about healing and sobriety
with substance abusers and addicts.
Service Quality Supported by Sophisticated Information Management - First Nations and Inuit
substance abuse and addictions program personnel should have access to relevant,
comprehensive and accurate information that can inform a range of decisions.

9. Aboriginal Public-Private Partnership 9
Relevant information should be available to support choices regarding healing methods
or secondary support needs of clients with distinctive cultural or linguistic needs or with mental
or physical challenges.” (National Native Addictions Partnership Foundation website, 2010)
In the article ‘A Community Partnership to Explore Mental Health Services in First
Nations Communities in Nova Scotia’, the authors wrote that “The findings identified barriers
and successes/solutions in mental health services in First Nations communities, where services
and resources are different from those in more urban communities. Core programs, covering
aspects of education, collaboration and culturally relevant community-based services, were
identified as solutions to problems identified by participants. Service providers specified core
funding for services as essential for continuity and sustainability.” (Vucik, Rudderham, &
Misenor, 2009, p. 1)
A method that was used by the Mi’k maq Health Research Group was to conduct
community based participatory research. This method assisted them in understanding the
gaps, barriers, successes, in the mental health services in the Mi’k maq communities. Thirteen
Health Directors from the First Nation communities invited university researchers to conduct
the study. The health director and researchers abided by a code of conduct which led to the
health directors collaborating together. The researchers were able to conduct the research and
analyze the data in consultation with the health directors. (Vucik et al., 2009)

10. Aboriginal Public-Private Partnership 10
“Some health care providers discussed methods that were successful, such as the
medicine wheel, smudging, making drums and including the Aboriginal context. Although not all
counselors are First Nations themselves, being of Aboriginal heritage was seen as
a helpful asset because “it bridges that gap a little bit.” If someone was not of First Nations
heritage, service providers said that having knowledge of Aboriginal culture, traditions and the
history of residential schools was important.” (Vucik et al., 2009, p. 434)
Successful Aboriginal Public-Private partnerships utilize cultural sensitivity
One of the strategic goals of the NNAPF is to promote culturally relevant governance of
the organization. How they will do this is by providing board governance training based on
culturally relevant values. (National Native Addictions Partnership Foundation website, 2010)
For reference, the Diavik mine shows that culturally sensitive training is important to all
of it’s employees. “... Diavik’s employee assistance program also includes culturally specific
elements that make it unique and regionally appropriate. The program is focused on the
employee and the family, with services provided primarily by local people.
In order to round out a culturally supportive work environment Diavik has instituted
cross-cultural awareness orientation training for all of its employees in order to address the
issue of cultural sensitivity and understanding.” (Missens, Dana, & Anderson, 2007, p. 61)
Cronin & Ostergren (2007) cited that ‘ The success of collaborative management groups relies
on representative stakeholder participation (Wondolleck and Yaffee 2000; Born and Genskow
2000)’.

11. Aboriginal Public-Private Partnership 11
When there is no cultural sensitivity or a component included, the organization will not
achieve the desired results it seeks. Based on the research of Lisa R. Thomas, Dennis M.
Donovan, Robin L. W. Sigo, Lisette Austin, G. Alan Marlatt, and the Squamish Tribe (2009) they
argued [that] research based on the drug and alcohol abuse of the Squamish Nation has been
unsuccessful because many researchers are not sensitive to the culture and traditions of the
people. Researchers who have failed do so because they did not include tribal customs, values,
and values in the intervention of substance abuse.
In the article by L.R. Thomas et al., (2009), the thesis is that alcohol and drug abuse are
areas of major concern for American Indians/Alaska Native communities (AI/AN). Research on
this issue has not been successful because many researchers are not sensitive to the culture
and
the communities with which they are working. The article states that the American
Indians/Alaskan Natives (AI/AN) account for less than 2% of the American population but suffer
unacceptably high health disparities. The disparities include lack of effective culturally
appropriate care, poorer health, and high levels of substance abuse. Little is known about the
communities’ community based programs strengths and resources.
What is known is that where there are culturally relevant treatment programs, there is
evidence that prevention, intervention, and treatment is more feasible and effective (L.R.
Thomas, 2009) The article lists that the failures of the researchers stems from the facts that
they failed to understand tribal sovereignty, respect the diversity of AI/AN communities,
understand the social-political and historical contexts, build on tribal strengths, incorporate
their traditions, customs, and values into interventions, one of them being substance abuse.

12. Aboriginal Public-Private Partnership 12
However, there are two approaches to working with AI/AN communities: community
based participatory research (CBPR) and tribal participatory research (TPR). (L.R. Thomas et al.,
2009) “CBPR is a research methodology in which the research institution and the community or
agency are fully partnered in every aspect of the research process, from determining research
questions to analyzing, interpreting, and disseminating research findings.
TPR is similar in that it is a full partnership between the research institution and the
AI=AN community or agency and extends the collaborative agreements to issues unique to
AI=AN communities; both are described more thoroughly below.
CBPR and TPR are particularly appropriate methodologies because they provide a
mechanism for understanding the complexities of conducting scientifically sound and respectful
research with tribal communities. For example, there are more than 560 federally recognized
tribes that are geographically, culturally, historically, and sociopolitically unique. Both CBPR and
TPR provide methods for conducting research that is respectful of this diversity (Caldwell et al.,
2005; Christopher, 2005).” (L.R. Thomas et al., p. 285, 2009)
One good use of CBPR principles was the Healing of the Canoe project. This partnership
consisted of the community and researchers instead of the researchers dictating what they will
research to the community. There was a demonstrated collaborative process in which the
researchers and the community share funds and resources. Using CBPR, the researcher
becomes more focused on being responsive to the community’s needs, considers the
resources and strengths of the community, and identify or prioritize community needs. (L.R.
Thomas et al., 2009)

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Using the TPR method, L.R. Thomas et al., (2009) suggest that research should involve
continual tribal oversight like setting up a community advisory council with representation of all
applicable segments. The council would also facilitate ongoing communications with
community members. Another option is to have a cultural facilitator to act as a [liaison]
between project staff and the committee and establish meetings of community members and
researchers.
The community did set up ‘cultural facilitators’ in their community. These workers
developed an outreach strategy that worked for the community and not against it. The lessons
learned from this article are that there has to be flexibility and navigation of two cultures to
implement a successful substance abuse intervention program. There has to be consideration
to being flexible with extending time lines of the projects and that cultural practices must be
instituted when conducting business with Aboriginal people such as having food on site for a
banquet. Cultural sensitivity does matter.
Governance of the partnership
NNAPF is the headquarters and it has regional chapters set up in Canada and there are
affiliates with the Inuit and First Nations communities in Canada. At the head are the board of
Directors consisting of 15 members that represent various regions, then an Executive Director,
Office Assistant, National Liaison and Policy Analyst Officer, International and Special Projects
Coordinator, Executive Assistant, Office Assistant, Communications Manager, and Researcher.
The organization is accountable to the Assembly of First Nations and the Youth Solvent Abuse
Committee.

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NNAPF is funded by Health Canada and the organization is governed by a board
consisting of fourteen board members that include representatives as listed:
 National Chair and Chief Executive Officer (CEO)
 Atlantic
 British Columbia
 Alberta
 Saskatchewan
 Manitoba
 Ontario
 Quebec
 Northwest Territories
 Nunavut
 Yukon
 Assembly of First Nations
 Youth Solvent Abuse Committee
 NNAPF National Elder
 Ex-officio (National Native Addictions Partnership Foundation, 2010)

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In addition, NNAPF is also in partnership with First Nations and Inuit families,
communities, and agencies; community addictions specialists, common interest partners,
program collaborators, First Nations and Inuit Health Branch, and various treatments
centres in Canada. (National Native Addictions Partnership Foundation, 2010)
What the partnership delivers
As of March 2007 “NNAPF will focus on the following core strategic functions:
1. Networking: Forge and maintain a national network, acting as a conduit linking NNADAP
workers, treatment centre directors, FNIHB regional consultants, and others, and build
lasting relationships with other expert organizations (e.g.. CCSA) to enhance the
knowledge-base of First Nations and Inuit addictions.
2. Communications and Information Exchange: Contribute to and facilitate the exchange of
information, including best practices and emerging issues, serving as a forum for
discussions among NNADAP workers, treatment centre directors, FNIHB regional
consultants, and other regional staff who are involved in addictions such as nurses and
other addictions experts.
3. Policy and Research: Provide policy advice to government and other groups regarding
addictions based on evidence and proven practices; contribute to the body of First
Nations and Inuit addictions research by setting and influencing research priorities with

16. academic and other groups.
4. Advocacy on Emerging Issues and Mitigating Strategies: Provide to Health Canada issue-
specific advice on behalf of First Nations and Inuit, identifying emerging issues and
proposing mitigating strategies; and raise awareness among mainstream expert groups
Aboriginal Public-Private Partnership 16
and Canadians about the nature and extent of substance abuse within Canada’s First
Nations and Inuit communities.” (National Native Addictions Partnership Foundation,
2010)
o
o
o
o
o
NNAPF combines the use of modern and traditional knowledge in the following objectives:
 A System Sensitive to and Respectful of Both Traditional and Contemporary Approaches
to Healing - As determined by clients, families and communities, both traditional and
contemporary approaches to healing will be respected and valued.
 Demonstrably Effective Prevention and Intervention Methodologies - Substance abuse
and addictions service methodologies should be demonstrably effective, as indicated by
scientific, and evaluative research.
The scope of work by the NNAPF, which are relevant to Aboriginal communities include:
“Best Practices
To identify the best practices within the extensive base experience of community prevention
programs and treatment centres; to capitalize on these experiences by documenting success

17. and providing “hands-on” exposure for addictions personnel to methods and practices that are
centre programs.
Training
To establish a networked training system to support the development of the human resources
required to ensure effective and efficient addictions services for Aboriginal people regardless of
where they live; and, to establish a national certification program for community prevention
and treatment centre personnel.
Aboriginal Public-Private Partnership 17
Communications
To develop and implement a national program of communications, using state-of-art methods
and technologies that provides timely information related to the addictions field to clients,
workers, managers, policymakers and partners within the First Nations and Inuit Addictions
network; and, to ensure communications support to Regional Addictions Partnership
Committees.
Resources/Capital
To establish a funding base that supports an effective and efficient system of programs and
services delivered by qualified personnel to Aboriginal people regardless of where they live in
Canada (including operational and capital requirements).” (National Native Addictions
Partnership Foundation, 2010)
How the Aboriginal Public-Private partnership evaluates its performance
It provides an annual report that lists the vision statement, mission statement, and
values. It lists the guiding principles, it shows how they laid out a strategic plan of action and
there are numerous accomplishments listed by NNAPF. Lastly, it shows transparency in the

18. financial statements that was done by an auditor.
This partnership is very successful because it is a collaborative organization with high
activity and high strategy. This partnership is very organized and effective because it has
cultural sensitivity to First Nations and the Inuit as well.
For reference, the Aboriginal Healing Foundation implements Aboriginal culture and yet
retains high administrative standards. The Aboriginal Healing Foundation was started in 1998
Aboriginal Public-Private Partnership 18
and it administers a $350 Million fund for communities across Canada in dealing with the legacy
of residential school physical and sexual abuse. DeGagne (2008) states that respect for
Aboriginal cultural context can be implemented while retaining high standards of administrative
practice. The Aboriginal Healing Foundation had the challenge of meeting the demands of
Aboriginal organizations who demanded that there would be flexibility to meet their cultural
needs. At the same time the organization had to abide by the public service norms like fiscal
management and reporting because they believed that it was prudent to do so. (DeGagne,
2008)
The annual report in 2009 by the NNAPF listed a number of benchmarks which the
governance committee established a corporate risk assessment file, continued review of policy
and procedure manuals, publication of NNAPF bulletin, monitoring of survey results for
National Treatment Centre Directors survey and Addictions workforce survey results, etc. All of
these had emphasis on governance, administration, and strategic planning.

19. Aboriginal Public-Private Partnership 19
References
Boase, J.P., (2000). Beyond government? The appeal of public-private partnerships. Ryerson
course material. Toronto, ON: Ryerson University
Cronin, A.E., & Ostergren, D.M., (2007). Democracy, Participation, and Native American
Tribes in Collaborative Watershed Management. Ryerson course material. Toronto,
ON: Ryerson University
Davidson, P.M., DiGiacomo, M., Abbott, P., Zecchin, R., Heal, P.E., Mieni, L.,
Sheerin, N., Smith, J., Mark, A., Bradbery, B., & Davison, J., (2008). A partnership
model in the development and implementation of a collaborative, cardiovascular
education program for Aboriginal health workers. Ryerson course material. Toronto,
ON: Ryerson University
DeGagne, M., (2008). Administration in an Aboriginal organization: impacts of cultural
adaptations. Ryerson course material. Toronto, ON: Ryerson University
Dutil, P., (2010). CPPA 701 – Aboriginal P3 partnerships lectures 1, 2 & 3. Ryerson course

20. material. Toronto, ON: Ryerson University
Karnaghan, K. (1993). Partnership and public administration: conceptual and practical
considerations. Ryerson course material. Toronto, ON: Ryerson University
Missens, R., Dana, L.P., & Anderson, R., (2007). Aboriginal partnerships in
Canada: focus on the Diavik Diamond Mine. Ryerson course material. Toronto, ON:
Ryerson University
Aboriginal Public-Private Partnership 20
References
National Native Addictions Partnership Foundation (2010). Retrieved on June 14, 2010 from
http://www.nnapf.org/about-us
Thomas, L.R., Donovan, D.M., Sigo, R.L.W., Austin, L., Marlatt, G.A., & and the
Squamish Tribe (2009). The community pulling together: a tribal community-university
partnership project to reduce substance abuse and promote good health in a reservation
tribal community. Ryerson course material. Toronto, ON: Ryerson University
Vucik, A., Rudderham, S., Misener, R.M., (2009). A Community Partnership to Explore Mental
Health Services in First Nations Communities in Nova Scotia. Ryerson course material.
Toronto, ON: Ryerson University