Evaluation of Pilimmasaivik: the Federal Centre of Excellence for Inuit Employment in Nunavut, 2019/20 to 2023/24

CanNor and the territories

CanNor collaborates with Northerners, Indigenous Peoples, communities, businesses, organizations, other federal departments, and all levels of government to foster diversified and resilient economies across the territories—Nunavut, the Northwest Territories, and the Yukon. By supporting initiatives that promote long-term sustainability and economic prosperity, CanNor plays a vital role in advancing regional development.

Canada's territories cover 40% of the nation's landmass yet only host 0.32% of the nation's population. CanNor serves a region with a notably young and predominantly Indigenous population. Sixty percent of residents in the territories are under the age of 40 years, compared to 48% in the rest of Canada, and 57% identified as Indigenous compared to the 5% nationally^{Footnote 1}.

CanNor is considered a micro-agency. As of 2025, CanNor has only 124 full time employees, a budget of approximately $62.8 million in planned spending, and two specialty branches: Pilimmaksaivik and the Northern Projects Management Office. CanNor is headquartered in Iqaluit, Nunavut with regional offices in Whitehorse and Yellowknife, and a liaison office in Ottawa.

During the evaluation time period, Pilimmaksaivik was situated in CanNor's Community Development Program under its Departmental Results Framework. As a Centre within CanNor, Pilimmaksaivik received both policy and internal services support from the respective branches with CanNor.

Inuit Employment in Nunavut and the Public Service

Nunavut is the largest territory in Canada by area and accounts for 21% of Canada's total landmass^{Footnote 2}. According to the 2021 Census, the total population of Nunavut was 36,858 and the total number of Inuit was 30,865^{Footnote 3}. As a result of its vast size, Nunavut has one of the lowest population densities in the world. The majority of its residents live in a handful of communities, such as Rankin Inlet, Arviat, and Cambridge Bay while the largest number of both Inuit and non-Inuit reside in the capital city of Iqaluit.

According to Statistics Canada's 2022 Indigenous Peoples Survey^{Footnote 4} from 2022 reports that there were around 19,000 Nunavut Inuit aged 15+ living in Nunavut: 48.1% were employed, 10.5% were unemployed and 41.5% were not in the labour force.

The public sector is the largest employer of Nunavut Inuit. Among the employed Inuit, 53.8% worked in government roles, including:

• 52.6% working for the Government of Nunavut (GN)
• 31.2% for hamlet/municipal Governments
• 10.1% in public agencies
• 8.1% for the Government of Canada (GC)

Among Inuit not currently in government:

• 78.0% expressed interest in working in government in Nunavut
• 71.8% were interested in working for the GN
• 64.5% for hamlet/municipal governments
• 50.7% for public agencies
• 47.2% for the GC

As shown in Figure 1 below, approximately 78% of the Government of Canada positions in Nunavut were located in Iqaluit in 2023. Rankin Inlet had the second largest share, with about 4% of federal Public Service positions. The remaining were distributed across 11 other communities throughout the territory.

Text alternative for Figure 1: Map of the Geographic Distribution of Federal Public Service Positions within Departments and Agencies that have the Article 23 obligations in Nunavut in 2023, with Parks Canada and Polar Knowledge Canada (POLAR)

Figure 1 shows a map of the geographic distribution of federal public service positions within departments and agencies that have Article 23 obligations in Nunavut in 2023, including Park and Polar data. The data presented highlights that most, 78% of federal positions in Nunavut are in Iqaluit, while Cambridge Bay has 10% of positions and Rankin Inlet has 4% of positions. Resolute Bay, Grise Fiord, Pond Inlet, Qikiqtarjuaq, Pangnirtung, Kinngait, Coral Harbour, Sanikiluaq, Whale Cove, Kugluktuk all have little to no (0.02% to 1%) positions available.

The Nunavut Agreement and Article 23

The Nunavut Agreement is an agreement between the Inuit of the Nunavut Settlement Area, represented by the Tunngavik Federation of Nunavut (now Nunavut Tunngavik Incorporated (NTI)) and the Government of Canada. It is the largest land claims settlement in Canadian history and led to the creation of Nunavut in 1999, and the Government of Nunavut. The Nunavut Agreement defined rights and benefits for Inuit in the Settlement Area including ownership and use of lands and resources, rights for Inuit to participate in decision-making processes in government and encourage self-reliance and cultural well-being, wildlife harvesting rights, and to provide Inuit with financial compensation and a means of participating in economic opportunities.

The objective of Article 23 of the Nunavut Agreement is to increase Inuit participation in government employment in the Nunavut Settlement Area to a representative level. A representative level is defined as a level of Inuit employment within Government reflecting the ratio of Inuit to the total population in the Nunavut Settlement Area. Any federal department or agency with four or more employees with Treasury Board as the employer must work towards the objective of representative Inuit employment by fulfilling the specific legal obligations set out in Article 23, including producing IEPs and PTPs.

Pilimmaksaivik: Federal Centre of Excellence for Inuit Employment in Nunavut

Pilimmaksaivik serves as a centralized service hub for nine federal departments and agencies operating in Nunavut that hold obligations under Article 23 of the Nunavut Agreement. In addition to supporting these departments, Pilimmaksaivik plays a key coordination role by acting as the primary federal liaison with NTI—the Designated Inuit Organization representing Nunavut Inuit under the Nunavut Agreement—as well as with the GN.

Whole-of-Government Inuit Employment Plan (IEP)

During the timeframe of the evaluation, the 2017-2023 whole-of-government IEP outlined the following actions for Pilimmaksaivik:

• Ensure all federal departments operating in Nunavut are aware of their own IEP development responsibilities and were regularly updating them with available data outlined in the Nunavut Inuit Labour Force Analysis (NILFA).
• Contract trainers for conducting workshops and curriculum development and covered the costs of bringing instructors to a central Nunavut-based location (as opposed to sending numerous staff south for such training not otherwise available in the territory).
• Deliver the Sivuliqtiunirmut Ilinniarnniq: Leadership Training (SILT) for Nunavut Inuit focused on increasing the number of Inuit taking on positions with supervisory responsibilities with training based on core Canada School of the Public Service (CSPS) programming.
• Implement the Ilipallianniq Education Support Fund, which provides multi-year financial support for Nunavut Inuit employees working for the federal government to pursue post-secondary education that correlates to requirements of positions where there are chronic and high levels of underrepresentation, such as law and science-based positions.

Pilimmaksaivik's monitoring and reporting activities:

• Support the design, delivery, monitoring and reporting on numerous activities either explicitly required of the Government of Canada in the Nunavut Agreement or committed to in the IEP. The team also provides direct support to hiring managers across federal government departments in Nunavut, federal Inuit employees, and Inuit seeking work (i.e., recruitment).
• Monitor and report on the progress of IEP implementation. During the implementation of the first generation IEP, this exercise was reviewed interdepartmentally on a quarterly basis and reported on an annual basis starting in the summer of 2019. Pilimmaksaivik collected Inuit representation data on a quarterly annual basis directly from departments and monitored progress towards the Government of Canada's Article 23 objectives. The team also informed the Pilimmaksaivik Assistant Deputy Minister Steering Committee on the status of overall Article 23 implementation. Pilimmaksaivik regularly released information to the treaty partners, through the Nunavut Implementation Panel, and the Centre released one IEP Annual Report during the timeframe of the evaluation.

Pilimmaksaivik's outreach and awareness activities:

• Conducted outreach and awareness building activities including the coordination and delivery of several community-based career fairs that promoted the Government of Canada as an employer of choice.
• Coordinated community-based training, such as workshops on resume writing and how to apply for federal public service positions.
• Coordinated the promotion of all externally advertised processes to local communities as well as social media, oversaw an inventory of photos and profiles of Inuit employees to promote employment opportunities, and administered the Inuksugait Resume Inventory.

Advice and support provided by Pilimmaksaivik:

• Cultural Learn-to Events: this activity promoted Inuit culture in government and awareness of Inuit culture with all Government of Canada employees in Nunavut.
• Celebrated seasonal Inuit Qaujimajatuqangit (IQ) days. These were designed to celebrate Inuit traditional heritage and knowledge whereby all interested GC employees go out onto the land to connect with Inuit culture, land and language, supported by Inuit guides, Elders and Knowledge holders.
• Counselling services: these counselling sessions, open to all federal employees in Nunavut, were available in-person or over the phone, either when and as needed or during a pre-determined monthly schedule.

Whole-of-Government Pre-Employment Training Plan (PTP)

Part 5 of Article 23 of the Nunavut Agreement, requires the Government of Canada to develop and implement a Pre-Employment Training Plan (PTP). Although a whole-of-government PTP was not formally finalized, Pilimmaksaivik implemented pre-employment training programs including its flagship program, the Inuit Learning and Development Program (ILDP) (see Annex C Case Study).

Regarding the development of a PTP, the 2017-2023 whole-of-government IEP outlined the following activities for Pilimmaksaivik:

• Coordinate with departments to discuss pre-employment training programs currently being implemented and planned to be implemented that will lead to IEP employment targets.
• Monitor and report on pre-employment training initiatives to determine whether participants remain in the public service upon completion of their training, and redesign the program as needed based on these findings.
• Outreach and build awareness amongst Nunavut Inuit and other stakeholders.
• Serve as the point of contact for Nunavut Tunngavik Incorporated (NTI), the GN, and other Inuit stakeholders regarding the ILDP and other pre-employment training initiatives, and work with these stakeholders to ensure Inuit values, knowledge, and culture are integrated into the development training initiatives.

During the evaluation period, Pilimmaksaivik also committed to participate in the Oversight Committee on the Tripartite Framework on Pre-Employment Training at the Senior Official and working group levels as well as provide administrative support to the committee as the Secretariat on behalf of all three treaty partners.

Key finding #1: There is an ongoing need for Pilimmaksaivik to continue to play a central role in creating and implementing whole-of-government IEPs and supporting federal departments with their IEPs. Pilimmaksaivik is seen as a source of help, guidance and support in training and hiring Inuit in Nunavut and specifically within the federal public service.

Interviewees from federal departments all stressed the importance of Pilimmaksaivik's role in providing detailed information necessary to create and implement their departmental IEPs.

Respondents noted that Pilimmaksaivik serves as the federal centre of excellence for Inuit employment, and its centralized role is essential for:

• Encouraging consistency across departments in interpreting and implementing Article 23 of the Nunavut Agreement.
• Providing guidance, templates, and data (e.g., NILFA – Nunavut Inuit Labour Force Analysis) to departments that often lack internal capacity or expertise.
• Acting as a hub for collaboration, especially through the HR Network, Inuit Kittuaq Network and ADM Steering Committee.

Many departments, especially smaller ones or those without a strong northern presence, rely on Pilimmaksaivik for:

• Resume inventories and candidate matching,
• Outreach coordination (e.g., job fairs, community visits),
• Pre-employment and developmental programs like ILDP.

Key finding #2: Pilimmaksaivik's activities and mandate were in alignment with Article 23 of the Nunavut Agreement.

Key informants highlighted how Pilimmaksaivik was seen as a leader in disseminating information about employment and training opportunities in Nunavut. There was broad recognition that Pilimmaksaivik was helping to increase Inuit employment levels by providing access to culturally relevant and sensitive training and education that will ultimately provide Inuit with the tools they need to gain employment and advance within the federal government.

Activities conducted by Pilimmaksaivik included actively approaching other federal departments working towards the Article 23 objective and engaging with Nunavut Inuit to inform them of training and educational opportunities for obtaining federal government employment. Pilimmaksaivik staff attended career fairs, posted information online on social media and ensured all materials were culturally relevant and specific to the needs of Nunavut Inuit.

Key finding #3: Pilimmaksaivik was a source of help, guidance and support in the unique operating environment of Nunavut.

Pilimmaksaivik supported the implementation of Article 23 by focusing on recruitment and by promoting Inuit culture and language within the Government of Canada. Activities like IQ days were seen as a success and appreciated. The Ilipallianniq Education Support Fund, which provides financial support for post-secondary education in fields with high levels of underrepresentation, also contributes to building a representative public service. Program participants highlighted the Inuit Cultural Awareness Training and the Inuit Language Training Fund as impactful activities.

Interview respondents made special note of the positive efforts Pilimmaksaivik staff made to provide culturally appropriate and supportive activities (such as the IQ days) and openly facilitated access to locally available wellness services.

Key finding #1: Pilimmaksaivik achieved many of its planned outcomes through program implementation and outreach activities, but needed additional support to complete and formalize the PTP.

Progress has been made toward meeting many of its original objectives (e.g., Government of Canada departments creating and implementing their own IEPs, and the development of a whole-of-government IEP), however, further progress is needed to move towards finalizing a formal pre-employment training plan.

Key informants mentioned the effectiveness of the following activities conducted by Pilimmaksaivik:

• Increased awareness of job opportunities in the public service through community outreach events and via social media (e.g. Facebook, attendance at career fairs),
• Developed and maintained a resume inventory which is well referenced by hiring managers,
• Organized and implemented the ILDP program which supported participants to gain experience in federal government employment,
• Organized the Human Resource Network meetings across departments, which served as a valuable source of information and support.

Regarding the development of a formal PTP, Pilimmaksaivik implemented substantial activities and programs, but did not formally present a recognized PTP. During the evaluation period, ongoing challenges with collaboration and coordination between the GN, NTI and the GC due to issues such as capacity (e.g. staffing, turnover, etc.) contributed to the failure to formalize a PTP. Additionally, COVID-19 restrictions/limitations impacted the ability to develop a PTP.

Key finding #2: COVID-19 pandemic impacted results by limiting access to in-person activities and engagement and reducing the ability of staff to implement activities.

• In-person outreach activities like career fairs and community visits were paused or scaled back, reducing visibility and engagement in remote communities.
• Reliance on digital platforms (e.g., Facebook) increased, but this was less effective in areas with limited internet access.
• COVID-19 heightened the need for mental health support, especially culturally appropriate services. Pilimmaksivik offered counselling, but uptake was mixed due to limited availability of Inuit counsellors and cultural fit concerns.
• The shift to remote work during and after COVID-19 affected mentorship and supervision dynamics within the Inuit Learning and Development Program (ILDP), and some participants struggled to adapt to virtual environments. Dropout rates increased in some cases, attributed to isolation and lack of in-person engagement.

Key findings #3: Pilimmaksaivik had a positive impact on Nunavut Inuit, and more Inuit were employed by the GC, but the impact was not fully reflected in the Inuit representation targets which were not fully met.

The Government of Canada did not achieve Inuit employment targets as set out in the original whole-of-government IEP or the revised targets set in the Annual Report of 2019/20. However, Pilimmaksaivik's activities did have a measurable positive impact on Nunavut Inuit that will likely increase participation in the federal public service in the longer term, including:

• Increased access to employment opportunities as it provided training and outreach that helped Inuit across Nunavut learn about and access federal government jobs they might not have previously considered or felt qualified for.
• Socio-economic benefits: by enabling more Inuit to obtain employment in the federal public service, Pilimmaksaivik contributed to economic empowerment and community development.
• The program supported education funding, including for university degrees and language training, which helped individuals build long-term career paths.
• Cultural and social inclusion: Pilimmaksaivik organized Inuit Qaujimajatuqangit (IQ) days and other cultural workshops that promoted Inuit culture and language within the federal government. These events helped non-Inuit employees better understand Inuit culture, fostering a more inclusive and respectful workplace.

Key finding #1: Pilimmaksaivik has created and implemented a whole-of-government IEP and worked effectively with departments to create their own individual IEPs.

Pilimmaksaivik played the central role in guiding federal departments through the development and implementation of their IEPs, and developed and implemented a whole-of-government IEP. Departments consistently reported that Pilimmaksaivik offered clear templates, timely data from the NILFA, and collaborative forums such as HR network meetings and ADM steering committees. These platforms allowed departments to align their IEPs with whole-of-government priorities while tailoring them to their specific operational contexts. Pilimmaksaivik's ability to convene departments, share best practices, and respond to questions with practical guidance was seen as instrumental in helping departments work towards meeting the Article 23 objective. Pilimmaksaivik's strategic planning support not only improved consistency across IEPs but also fostered a culture of accountability and continuous improvement in Inuit employment outcomes.

Key finding #2: To expand program delivery, extend its impact to Nunavut Inuit outside of Iqaluit, and enhance participant support, Pilimmaksaivik will require additional resources.

The GC's presence is limited outside of Iqaluit due to population demographics (see Figure 1), but there are areas where Pilimmaksaivik may be able to expand its impact further. To effectively respond to increasing demand and evolving program objectives, Pilimmaksaivik will require additional resources. As programming expands, so too does the need for enhanced operational capacity, including staffing, infrastructure, and administrative support. Broadening the reach of the program—particularly to remote and underserved communities—necessitates investment in outreach, travel, and culturally relevant engagement strategies. Furthermore, deepening supports for participants, such as mentorship, training, and wellness services, calls for specialized personnel and tailored resources. These investments are essential to ensure Pilimmaksaivik remains responsive, inclusive, and impactful.

It is recommended that Pilimmaksaivik focus on increasing coordination and cooperation between the GC, GN and NTI to create and implement a formal PTP.

While Pilimmaksaivik has made significant progress in delivering pre-employment training activities, the absence of a formalized PTP limits strategic alignment and accountability. A finalized PTP would provide a clear framework for training delivery across departments and enable better tracking of outcomes and continuous improvement.

It is recommended that Pilimmaksaivik engage the GN and NTI in co-designing a PTP framework. This might provide an opportunity to build a structured, standing forum with clear terms of reference, regular meeting schedules, and decision-making protocols agreed to by all parties. During this process, it is recommended that Pilimmaksaivik ensure dedicated resources (i.e. staff and budget) are allocated to this purpose. Additionally, it is recommended that Pilimmaksaivik ensure Inuit knowledge, values, and regional realities are embedded in the plan.

It is recommended that Pilimmaksaivik expand wraparound supports to address barriers to employment participation.

Evaluation findings highlighted that participants face systemic barriers such as housing, mental health, and relocation challenges. To improve retention and success, it is recommended that Pilimmaksaivik and departments enhance participant-centered supports to improve program accessibility and outcomes. This includes providing potential participants access to culturally appropriate wellness services, potentially increasing logistical and financial supports for participants from remote communities, and integrating mentorship and coaching into all training programs.

It is recommended that Pilimmaksaivik scale and diversify programming to reach more Inuit across Nunavut.

To broaden its impact and better serve Inuit across Nunavut, it is recommended that Pilimmaksaivik scale and diversify its programming beyond its current reach. This includes increasing the number and frequency of cohorts for key initiatives such as the Inuit Learning and Development Program (ILDP) and the Sivuliqtiunirmut Ilinniarniq Leadership Training Program (SILT), which have proven effective but remain small in scale. Expanding training delivery to more communities and leveraging virtual platforms would help overcome geographic barriers and ensure more equitable access.

Additionally, it is recommended that Pilimmaksaivik develop targeted programming tailored to the distinct needs of youth, mid-career professionals, and those aspiring to leadership roles. By expanding its delivery capacity and tailoring its offerings, Pilimmaksaivik can better meet the diverse needs of Inuit across the territory and make meaningful progress toward the Article 23 objective.

It is recommended that Pilimmaksaivik continue to build on its current strengths and invest in relationship-building and cultural competency, between governmental bodies, staff and participants.

To strengthen collaboration, it is recommended that Pilimmaksaivik continue to build trust-based relationships between the GC, the GN, and NTI. This will require intentional investment in shared experiences and cultural understanding. One way to foster this is by facilitating joint training sessions and cultural exchange opportunities for staff across all three partners. These sessions can help build mutual respect, clarify roles, and align expectations.

Pilimmaksaivik's strength lies in continuing to support highly effective and proven activities such as working with departments to support IEP implementation, on-the-land gatherings or retreats for participants which have in the past created space for deeper dialogue and relationship building in a culturally grounded setting. These experiences allowed participants to connect with Inuit values, traditions, and each other in meaningful ways that go beyond formal meetings. This evaluation found that embedding IQ principles into all collaborative work further reinforced a shared commitment to culturally respectful and inclusive approaches. By prioritizing these relational investments, Pilimmaksaivik, and GC departments can continue to lay the foundation for more effective and enduring inter-organizational coordination.

It is recommended that Pilimmaksaivik create and implement standard operating procedures for data gathering and reporting.

A recurring theme throughout the evaluation was the difficulty staff experienced with data collection and reporting. Much of the data gathered by Pilimmaksaivik is owned by other departments and requires greater and more organized coordination. This would help address inconsistent application and understanding of departmental IEPs and reinforce their significance beyond HR functions. To enhance Pilimmaksaivik's ability to effectively monitor program performance and communicate results, it is recommended that the organization develop and implement clear standard operating procedures (SOPs) and potentially Inter-departmental Letters of Agreement (ILA). These SOPs and ILAs should define what data is collected, how it is collected, and how it is reported. Implementing this recommendation may require dedicated resources, including investments in technology, technical support, and specialized staff for data coordination and reporting.

Evaluation Question

1. Canada meets its objective to develop a whole-of-government Pre-Employment Training Plan (outputs).

2. Inuit from all Nunavut communities have the opportunity to learn about employment opportunities within the Government of Canada.

3. Inuit Government of Canada employees based in Nunavut have access to culturally appropriate mental support services and activities.

4. Inuit students have the opportunity to gain work experience within the Government of Canada.

5. Nunavut Inuit gain practical work experience in the public service and benefit from coaching and mentoring by participating in the Inuit Learning and Development Program or other Inuit pre-employment programs.

6.Government of Canada Inuit employees working in Nunavut have the opportunity to gains skills to become better prepared for supervisory positions.

7. Increase in the number of Nunavut Inuit employed in federal government departments in Nunavut.

8. Increase in the number of Nunavut Inuit employed in federal government departments in Nunavut.

What does the ILDP provide to Nunavut Inuit?

During the evaluation timeline, the ILDP aimed to provide Nunavut Inuit with the opportunity to develop transferable skills that could be applied in various work environments of the public service. Participants in the ILDP took part in training in the classroom, on the job and self-paced mobile learning to support the development of work-related competencies. Pilimmaksaivik aimed to support everyone involved: participants, the sponsoring department/agency, supervisor, coach/mentor, learning advisor and the program coordinator.

The ILDP focused on addressing barriers to gaining employment within the federal public service, and sought to increase interest among Inuit in obtaining government employment. It aimed to build four key competencies in support of participant's employability: knowledge of government, client service excellence, analytical thinking, and employment skills.

When participants began the ILDP program, a coordinator identified core training activities and objectives based on the individual's learning activities and objectives. For the 4th cohort (completed in 2022/23), departments determined what ILDP employees would work on during their placements. Throughout the work assignments and learning activities, progress was monitored by an advisor in close collaboration with the supervisors, mentors/coaches and the program coordinator. This collaboration aimed to ensured that all learning activities and assignments were aligned with the overall objective of the program and the participant's needs.

Potential training providers included: the GN, GC departments, NTI training, CSPS and the Iqaluit Human Resources base.

Key findings from the Evaluation

Overall, the ILDP was considered a success in that a large proportion of participants who completed the program (13) transitioned into permanent federal roles (8), with another graduate going on to higher education and another gaining employment outside of the government.

On an individual level, the ILDP is making a positive impact on participants beyond obtaining employment. Interviewees from the evaluation noted:

• increased confidence and workplace readiness,
• broadened understanding of government operations, and
• conveyed positive feedback on mentorship and exposure during the program.

Challenges identified by interviewees included:

• short 4-month rotations limited meaningful learning,
• lack of structured onboarding and training plans,
• mismatch between participant expectations and job realities,
• mental health, housing, and relocation barriers, and
• limited support for participants from remote communities.

Interviewees suggested that, for future programing, the ILDP might:

• extend placement durations or reduce number of rotations,
• develop standardized onboarding and training templates,
• improve screening and matching of participants to departments,
• provide wraparound supports: housing, mental health, mentorship, and
• increase community-based and remote work opportunities.

Challenges and areas for improvement

Scale and Reach:

• Programs were often small in scale (e.g., 11–16 participants per cohort), limiting broader impact.
• Some participants faced technical barriers (e.g., being excluded from Teams chats), especially those outside Iqaluit.
• Facilitation quality: one cohort reported issues with a poorly prepared facilitator, though this was addressed in later iterations.
• Geographic access: most leadership training occurred in Ottawa or Iqaluit, limiting access for Inuit in remote communities.
• Participants and managers recommended more regional delivery and manager-focused training in Nunavut.

Interviewees suggested that, for future programing, the SILT program might:

• Expand cohort size and frequency to reach more Inuit employees.
• Increase regional access by offering training in more communities or virtually with proper technological support.
• Enhance manager engagement by training supervisors on how to support Inuit leadership development.
• Strengthen follow-up to track long-term career outcomes and support continued growth.
• Integrate cultural safety into all leadership training to ensure relevance and retention.