Despite Canada’s commitment to primary health care (PHC)
1 and principles of social justice, health inequities remain a pressing national concern [
1]. In Canada and other nations, PHC renewal continues to be identified as a key pathway to achieve health equity, with particular implications for marginalized
2 populations. Substantial evidence shows that PHC enhancements can lead to improved population health outcomes, including reduced acute and chronic conditions, reduced use of emergency services, shorter hospital stays, and lower overall health care utilization [
2‐
5].
In a prior publication [
6], we identified four key dimensions of equity-oriented PHC services, which provide a framework for understanding the essential elements of promoting equity among marginalized populations: trauma- and violence-informed care, culturally competent care, contextually tailored care, and inequity-responsive care. Since that publication, our analysis has focused more explicitly on the effects of structural violence and inequities on Indigenous peoples’
3 health. This paper presents our refined description of the key dimensions of equity-oriented care and specific strategies to use in PHC settings to promote health equity with Indigenous peoples. Using research at two long-established Indigenous health centres in Canada, we illustrate the relevance of these strategies for PHC practices, agencies, and organizations. Although the research we report on in this paper was conducted in the Canadian context, the health of Indigenous peoples throughout the world is shaped by common global colonial and neocolonial forces. Given the similarities in colonizing processes and Indigenous peoples’ experiences of such processes in many countries, these strategies will have applicability internationally.
Indigenous peoples’ health
Many Indigenous communities have flourished despite colonial forces, however, ongoing social inequities continue to have negative health effects for Indigenous peoples [
7‐
15]. Structural violence is increasingly understood in population and public health as a major determinant of the distribution and outcomes of social and health inequities. Structural violence refers to the disadvantage and suffering that stems from the creation and perpetuation of structures, policies and institutional practices that are innately unjust; because systemic exclusion and disadvantage are built into everyday social patterns and institutional processes, structural violence creates the conditions which sustain the proliferation of health and social inequities [
16]. Structural violence can be “static, insidious, silent, taken-for-granted, and hidden” [
17] (p. 258), leading many to “interpret disparities in health and income and good fortune as ‘the way things are’" [
18] (p. 5).
Structural violence shapes the health of Indigenous peoples and communities globally, and is deeply embedded in history, individual and institutional racism, and inequitable social policies and practices. These continue to exert their effects in the present. For example, in Canada, both the creation of reserve lands with resources inadequate for sustenance, and the apprehension of Indigenous children by the state, initially to residential schools and subsequently to foster homes, have had profound detrimental effects over multiple generations [
10,
11,
19]. In Australia, similar attempts at assimilation were implemented through the forced removal of children from Aboriginal and Torres Strait Islander communities. Across colonial contexts, these forced removals are often referred to as the ‘stolen generation’, and evidence of the harmful health and social impacts continues to mount [
14]. Today, the legacy of colonialism, and systemic racism and other forms of discrimination, contribute to the current lack of employment opportunities, limited access to education, inadequate housing, and high levels of poverty experienced by many Indigenous peoples in Canada, Australia, and other colonized countries throughout the world [
10,
20,
21].
Gaps in health services: the need for strategies to address the health effects of structural violence
The historical and ongoing forms of structural violence experienced by Indigenous peoples have unfolded against the broader context of neoliberal economic reforms and social spending cuts over the past three decades. Canada has become second only to the USA in its growing levels of income inequality [
22]. The lack of affordable housing in many parts of Canada, and the loss of community-based social and health services disproportionately burden Indigenous peoples. Within this context, the health and wellbeing of Indigenous peoples continues to lag behind that of the overall Canadian population on virtually every measure [
7,
9,
10,
20,
23‐
27]. For example, it is estimated that by 2017, the mean life expectancy of Indigenous men will be 70.3 years compared to 79 years for all Canadian men, and 77 for Indigenous women compared to 83 for all Canadian women [
28]. Throughout Canada, infant mortality rates among Indigenous populations are dramatically higher compared to other Canadians [
23,
29]. Today, Indigenous children represent an alarmingly high percentage of the children in government care
4, reflecting the current state surveillance of Indigenous women, families, and communities [
30,
31]. Research also shows that the high rates of HIV infection among Indigenous women [
32‐
34] and the disproportionate likelihood of violence against Indigenous women and girls are explained by the unique experiences of colonization of Indigenous peoples in Canada, founded on ongoing racism and discrimination [
9‐
11,
35‐
38].
Internationally, the traumatic, negative impacts of historical and ongoing colonialism on Indigenous peoples’ health and well-being are immense. Globally, Indigenous peoples experience significantly higher rates of ill health and have dramatically shorter life expectancies than other groups living in the same countries [
39,
40]. In Australia, life expectancy at birth for Indigenous peoples is estimated to be 19–21 years lower than their non-Indigenous counterparts [
40]. In parts of Central and South America, infant mortality rates are extremely high for Indigenous peoples, reflecting limited economic opportunities, poor access to social services, and high levels of public insecurity [
40]. Throughout the world, Indigenous peoples experience disproportionately high levels of maternal and infant mortality, malnutrition, cardiovascular illnesses, HIV/AIDS and other infectious diseases, such as malaria and tuberculosis [
39]. These morbidity and mortality patterns are strongly connected to histories of colonization, the dispossession of lands and cultural and economic resources, and the ongoing lack of access to the social determinants of health. As emphasized in the report of the United Nations Special Rapporteur, these health status disparities are compounded by the persistent and multifaceted forms of racial discrimination experienced by Indigenous peoples globally: “such discrimination is intimately interconnected and mutually reinforcing with the spectrum of violations experienced by Indigenous peoples” [
39] (p. 10). Research in Australia, for example, continues to show that ineffective, insensitive and inappropriate care contributes to Aboriginal peoples’ experiences of shaming, misunderstanding and stereotyping [
41].
Discrimination in health care is continuous with experiences of discrimination in people’s everyday lives. Racial discrimination is further amplified in the contexts of poverty, substance use, or stigmatizing conditions such as chronic pain, mental health issues, and HIV [
42‐
50]. Research confirms that Indigenous peoples experience individual and systemic discrimination when seeking health care [
6,
11,
27,
44,
51‐
53], despite efforts within the health care sector to promote cultural sensitivity and cultural safety. For example, despite long-standing evidence of lower per capita alcohol consumption by Indigenous peoples compared with the general population, one of the most common public perceptions in Canada reflects racialized assumptions about Indigenous peoples being prone to alcohol or substance use [
11,
54]. The colonizing image of the ‘drunk Indian’ is one of the most harmful stereotypes operating in health care settings [
55]. These assumptions intersect with messages in the media, public venues and everyday conversations in Canada to undermine Indigenous land claims, rights, and entitlements, and in health care contexts, shape decisions about which patients are credible and deserving of care [
6,
44,
52,
53,
56]. Thus racism and discrimination must be considered determinants of health for Indigenous peoples, and strategies are required to mitigate the negative impacts on health [
11,
25].
Health services, however, are not typically designed to take into account the experiences of Indigenous peoples [
10,
25,
57,
58]. For example, despite extensive evidence linking trauma and violence to multiple health problems, including chronic pain, depression, anxiety and substance use [
57,
59‐
62], these dynamics are rarely considered in the design and delivery of health care for Indigenous peoples [
7,
63‐
69]. A decolonizing lens is useful for addressing this complex interplay of factors [
66,
70,
71], by directing attention to the root causes of people’s health and social issues. In this paper, we offer a framework and specific strategies for promoting equity-oriented care that takes into account the colonial history and ongoing subjugation of Indigenous peoples, and that supports Indigenous peoples’ agency and resistance to such subjugation.