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The Union of Northern Workers, known as the Northwest Territories Public Service Association prior to 1987, is the largest labour union in the Northwest Territories. Northern labour is a little explored field in Canadian history, and as such, this work surveys new ground. Trade unionism in the North's private sector began at the close of the Second World War. The UNW, however, like most public sector unions in Canada, had its roots in the 1960s. This study examines issues pertaining to the union's leadership and staff from 1967, when correctional workers in Yellowknife first organized, until the 1996 convention, when the union took steps to divide into two separate unions in anticipation of the creation of Nunavut in 1999. From its start, the union's geographic jurisdiction distinguished the UNW as unique among Canada's public service unions. It and its predecessor, the NWTPSA represented workers in Canada's most northern reaches. The challenges of life in the North were as real for the union as they were for its members. A relatively small membership spread across such a huge land mass presented obstacles with regards to leadership and service. Also, cultural factors differentiated the organization from others. With an increasing native membership, mostly Inuit, lnuktitut became the union's second language. Distinguishing the union institutionally was its component status within the Public Service Alliance of Canada. The quality of the relationship between these two bodies regularly fluctuated between excellent and belligerent. Similarly, the union's relationship with the Nonhwest Territories Federation of Labour degenerated from founding member to pariah status, in spite of the UNW comprising the overwhelming majority of the Federation's membership. As the union grew from a fly-by-night, seat-of-the-pants organization of less than 100 members at its inception, to over 5,000 when it divided, leadership and staffing gained increasing importance. To meet the challenges of representing northern workers, the union increasingly attempted to professionalize its leadership cadre. The effect of this was an increasing distance between members and leaders which ultimately resulted in the secession of the Nunawt membership.
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In 1960 the Canadian United Auto Workers suggested to the government that in order to save the automobile industry, rationalization with the American industry was a viable and desired option. Over the next five years, as the government gradually moved towards integration, the union stood behind the principle, yet at the same time stated tha protection for dislocated and laid-off workers must be part of the deal for union support to be forthcoming. The union, which felt that the costs of government-induced layoffs should be fully borne by the state, did not waver in its commitment to securing safeguards, even though from 1960 to the Auto Pact in 1965 it became increasingly apparent that the granting of adequate protection was not on the government's agenda. The layoff of 1,600 workers in 1965 resulted in the withdrawal of Canadian UAW support for the trade deal and highlighted the significance and importance of the over-riding condition of support, the protection of workers from the consequences of state actions.
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The period 1935 to 1947 provides an excellent opportunity to investigate the ways in which the employment and training policies of Canadian welfare state forms delineated the boundaries of gender, race, class and nation in ways that actively constituted (il)legitimate social and economic forms of work, of motherhood, of sexuality and citizenship. Covering attempts starting in the Depression and accelerating during the Second World War into the postwar period, this study tracks the constitution and deployment of government attempts at mapping the female labour supply, of monitoring the activities of women in the labour market, of charting and opening up to scrutiny the conditions of women's labour force attachment: all in an effort to predict and prescribe patterns of women's employment and problems of female unemployment. I approach government reports, studies, commissions and committees as policy events—exercises in governance—as markers for policy analysis which signified important shifts in governmental approaches to the phenomenon of female participation in the formal waged economy. Viewed during the war as a crucial national resource, central to the war effort, women war workers would be cast as a largely ‘unskilled female labour reserve’ by war's end. I examine how ideas about mental testing, intelligence and human capacities—ideas that comprised the foundation of the mental hygiene programme during this period—informed employment and training policies in the formation of the Canadian welfare state for the period 1935–1947. During the Depression, studies of the labour force produced classifications of unemployed women and men. Scrutiny of female employment patterns resulted in the production of categorical knowledges about employability. These practices were further elaborated through the unprecedented research opportunities presented by the war. Suitable vocation, aptitude, and measures of intelligence: these concepts were drawn upon as part of a growing apparatus of employment policy intended to facilitate the smooth transition into the postwar period. I argue that the roster of policies and programmes devised in the name of postwar rehabilitation constituted ideas about female employability which were deeply imbued with the principles of scientific racism and sexism at the core of the mental hygiene program. Vocational planning, counselling and training practices reorganised relations of employment and of unemployment in ways that reflected the managing principles of the risk society. Postwar planning drew upon and constituted new areas of activity for government and community agencies, creating opportunities for the deployment of knowledge-practices such as personnel selection while opening up the interior of the subject as an object of governance, by assessing and calibrating allegedly innate human capacities.