At a Glance:
- Hockey Nova Scotia responded to incidents of racism by listening directly to underrepresented communities and embedding their input into nine concrete, Board-approved recommendations.
- Change has been driven through governance (for example, Code of Conduct, EDI training, diverse leadership) and community-based programs that create more inclusive entry and retention pathways.
- Inclusion is treated as long-term, system-level work, which requires sustained investment, accountability, and a shift in both culture and structures to ensure everyone feels they belong.
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Hockey is often described as a place where communities come together. But in recent years, a growing number of stories have challenged that idea, raising important questions about who feels welcome in the game, and who does not.
For Hockey Nova Scotia (HNS), those questions became a catalyst for change.
As the provincial governing body for amateur hockey, HNS supports the sport from grassroots to elite levels. It also serves as a voice for hockey across the province, advocating for the many benefits participation can provide from physical activity and skill development to community connection and leadership. At the same time, HNS has recognized that these benefits are not experienced equally by everyone.
In response, the organization has taken deliberate steps to examine its own systems, listen to underrepresented communities, and rethink how the game is delivered and governed.
Background: A Moment That Sparked Action
In 2019, a series of high-profile incidents brought issues of racism and discrimination in hockey into sharp focus.
In Nova Scotia, a young Black goaltender, Mark Connors, was subjected to racial slurs from other players and spectators during a tournament. Nationally, former NHL player Akim Aliu spoke publicly about racism he experienced from a coach during his career. These stories, along with others emerging across the sport, prompted difficult but necessary conversations.
For Hockey Nova Scotia, they also prompted action.
In December 2019, the HNS Board of Directors issued a public statement acknowledging that while the organization believed hockey should be welcoming to all, the reality did not always reflect that belief. The statement recognized that racism and discrimination existed within the sport, described the issue as complex and rooted in broader societal dynamics, and emphasized that inaction was not an option.
The last few weeks have been difficult ones for our game. Recent incidents of discrimination in hockey, both internationally and here at home, are shining a light on some disturbing behavior. The victims of these incidents have demonstrated courage in coming forward with their stories. It is through these stories that we will see change. At HNS, we believe that the rink should be a welcoming place for everyone. We believe that racism and discrimination have no place in our game. While that is our belief, it is clear to us that racism and discrimination continue to exist in our sport. This is a complex issue with deep and ugly historical roots. There are no easy solutions. But that is no excuse for inaction. We are setting an example and taking action. We recognize that solutions will only be found if we work together, particularly with those who are and who have been most affected.
Central to the Board’s response was a commitment to work collaboratively with those most affected. The organization acknowledged that meaningful solutions would only emerge by listening to the voices and experiences of underrepresented communities. That commitment led to the creation of the Hockey Nova Scotia Diversity & Inclusion Task Force.
Research on sport consistently shows that while it is often promoted as a powerful vehicle for inclusion and community building, it can also reproduce patterns of exclusion shaped by race, gender, ability, and social identity, particularly when systems and cultures go unexamined (Coakley, 2015).
Listening to Communities
Established in 2019, the Diversity & Inclusion Task Force was made up of individuals representing Black, Indigenous, 2SLGBTQ+, and Persons Living with Disabilities communities. Sport research is increasingly emphasizing that change is more likely to happen when those most affected by the inequities are actively brought in to identifying problems and shaping solutions (Pettican et al., 2023).
Over the course of 2020, the Task Force led a province-wide digital engagement process designed to gather feedback on how hockey could become more inclusive and welcoming. The approach was intentional: rather than assuming solutions, HNS sought to hear directly from those with lived experience.
In total, 841 Nova Scotians participated, sharing personal stories, challenges, and ideas for change.
Importantly, feedback came not only from individuals currently involved in hockey, but also from those who had left the sport, or never joined, because they did not feel it was a space where they belonged. This broader perspective provided valuable insight into both barriers to entry and reasons for attrition.
Participants shared practical suggestions on how to improve accessibility, strengthen inclusion, and create more welcoming environments. The process reinforced a key principle: those most affected by exclusion often hold the most meaningful insights into how systems can improve.
From Consultation to Recommendations
After 16 months of engagement, listening, and analysis, the Task Force released its final report, outlining nine recommendations aimed at strengthening diversity, inclusion, and belonging within hockey in Nova Scotia.
The recommendations addressed multiple areas of the organization, including:
- Governance and leadership representation
- Education and training
- Policies and codes of conduct
- Participant development and accessibility
- Data collection and accountability
Among the proposed actions were the development of new training frameworks, increased representation across boards and committees, revisions to the organization’s constitution and bylaws, and the establishment of a new, values-based Member Code of Conduct.
The HNS Board of Directors approved all nine recommendations. Several initiatives had already begun during the Task Force’s mandate, including the creation of a board-level position dedicated to diversity and inclusion, which would ensure sustained focus and accountability moving forward.
At the time of the report’s release, then-President Arnie Farrell emphasized that while the conversations may be uncomfortable, they are necessary. He noted that hockey has the potential to shape not only athletes, but also leaders and communities, and that expanding access to those benefits requires a more inclusive approach.
Implementing Change Through Governance
Following the approval of the Task Force recommendations, HNS began the process of embedding these commitments into its governance structures and day-to-day operations. Governance research suggests that inclusion efforts gain traction when they, the key stakeholders, are deliberately integrated into governance structures, leadership roles, and everyday organizational practice (Pettican et al., 2023).
A key step was the development of a new Member Code of Conduct grounded in a zero-tolerance approach to racism and discrimination. The Code represents a shift from a primarily sanctions-based model to one that clearly outlines expectations for behaviour aligned with organizational values.
In addition, HNS introduced mandatory equity, diversity, and inclusion training for Board members and staff, and are endeavouring to deliver the training to associations, coaches, officials, volunteers, and partners. This training aims to build shared understanding and equip participants across the system with the tools to contribute to a more inclusive environment.
Other governance-focused actions include:
- Actively pursuing greater diversity across boards, councils, committees, and staff
- Developing a five-year growth strategy for participants with disabilities
- Investing in data collection to measure progress and inform decision-making
- Reviewing and modernizing bylaws, regulations, and policies through an inclusion lens
- Supporting the Future of Hockey Lab, an initiative designed to foster learning through experimentation
Together, these measures reflect a comprehensive approach. One that recognizes inclusion as an ongoing process requiring both structural change and cultural shift.
Revisiting Vision and Values
As part of this work, HNS also revisited its vision and values, recognizing that meaningful change must be anchored in a clear and consistent framework.
HNS’s vision is that every Nova Scotian can experience the positive benefits of hockey. Achieving this vision requires a focus on listening to participants, supporting local associations, and using sport as a tool to build life skills and strengthen communities.
The organization’s values guide decision-making across all levels. These include:
- Always Improving – Embracing learning, creativity, and innovation
- Collaboration – Working together and sharing knowledge
- Trustworthy – Acting with openness and integrity
- Celebrating Diversity – Recognizing strength in differences
- Welcoming – Creating spaces where everyone feels they belong
- Player First – Prioritizing the participant experience
- Accountable – Taking responsibility for actions and outcomes
- Community – Contributing to and strengthening local communities
By embedding these values into its operations, HNS aims to ensure that inclusion is not a standalone initiative, but a core component of how the organization functions.
A New Approach to Accountability
The introduction of the updated Member Code of Conduct for the 2024–2025 season marked a significant milestone in HNS’s work. Rather than focusing solely on punitive measures, the new Code emphasizes clear expectations for respectful behaviour and alignment with organizational values. It also incorporates restorative practices when incidents occur, supporting learning and accountability rather than relying exclusively on discipline.
Importantly, the Code applies to all participants in the hockey environment including players, coaches, officials, volunteers, and parents. This reflects the understanding that culture is shaped collectively, and that creating a safe and positive environment requires shared responsibility.
Community-based Programming
In addition to governance changes, HNS has used community-based programming as a practical tool to address participation gaps and build more inclusive pathways into the sport. Each program is developed in partnership with community organizations, ensuring that initiatives are responsive to the needs and realities of the populations they aim to serve.
Key programs include:
- Indigenous Girls Hockey Program: Developed in partnership with Membertou, Eskasoni, and Millbrook First Nations, this program supports Indigenous girls aged 5–12 in developing foundational hockey skills in culturally safe environments within their own communities.
- “Breaking Ice” – New Canadians Hockey Program: Delivered in collaboration with the Immigrant Services Association of Nova Scotia (ISANS), this program introduces newcomer and refugee children aged 6–12 to hockey, providing an accessible entry point into the sport and supporting their connection to Canadian culture.
- Black Youth Ice Hockey Program: Created in partnership with the Black Ice Hockey and Sports Hall of Fame Society, this program introduces hockey to Black youth aged 5–10. It is primarily delivered by Black coaches, many of whom have previously participated in the program, helping to create visible pathways and mentorship opportunities.
- BIPOC Advancing Hockey Program: This initiative supports BIPOC players already registered in minor hockey who may lack peer support within their teams. It provides high-level training in a supportive environment, creating space for connection and shared experience.
Collectively, these programs focus not only on introducing participants to hockey, but also on supporting retention, addressing a key issue identified through the Task Force’s engagement process.
Reducing Risk and Building Trust
One of the central lessons for HNS has been that increasing participation is only part of the equation. Ensuring that participants feel safe, supported, and included once they enter the system is equally important.
Community-based programs have provided valuable insights in this area. For example, coaches involved in the “Breaking Ice” program have developed a deeper understanding of how to support Muslim participants, including accommodating the use of hijabs within helmet requirements.
HNS has also prioritized initiatives that recognize and celebrate the history of underrepresented communities within hockey. Each year, the organization hosts a memorial game honouring the Colored Hockey League of the Maritimes (1895–1930), an all-Black league that played a significant role in the sport’s history. Participants from the Black Youth Ice Hockey Program are included in these events, helping to connect past and present.
Additional initiatives, such as community games involving Black youth and local police, aim to build relationships and foster trust beyond the rink environment. These efforts reflect a broader understanding that inclusion is not only about access; it’s about experience, representation, and a sense of belonging.
HNS has also introduced targeted recognition initiatives that celebrate excellence and representation within underrepresented communities. In 2022, HNS created the Bill Riley Award and Scholarship ($2,000), awarded each year to Black players who best embody the characteristics of Bill Riley, the first African Nova Scotian and third Black player overall to play in the National Hockey League. These characteristics include being an exceptional teammate, demonstrating competitiveness, passion for the sport, and a tenacious work ethic.
In 2025, HNS also established the Erin Denny Award and Scholarship ($2,000), awarded annually to Indigenous players who embody the characteristics of Erin Denny, the first Indigenous female to represent Team Nova Scotia at the 2019 Canada Games. These characteristics include outstanding determination, commitment to leadership, community involvement, and personal growth.
Lessons Learned
Through its work, HNS has identified several key lessons that may be relevant to other sport organizations to implement low-cost scalable governance solutions that go beyond policy:
- Resource the commitment: Advancing diversity, inclusion, and belonging requires dedicated funding and progress won’t happen without budget lines to support the work.
- Take a long-term, strategic approach: The exclusionary culture in hockey developed over decades and will require sustained, methodical effort to change.
- Start small, think impact: Even modest investments (e.g., under $5,000 annually) can meaningfully support access and retention for underrepresented communities.
HNS has also recognized that while progress is being made, the work is far from complete. The systems and cultures that shaped hockey over decades cannot be transformed overnight.
Looking Ahead
A guiding principle for HNS’s work comes from Kim Davis, Senior Executive Vice President at the National Hockey League, who contributed to the Task Force report. She noted that the growth of the sport is closely tied to cultural and demographic change, and that meaningful progress requires both leadership and community engagement.
For HNS, this reinforces the importance of continuing to listen, learn, and adapt.
While there is no single solution to addressing racism and discrimination in sport, HNS’s approach demonstrates how organizations can move beyond statements of intent toward sustained, system-level change.
At its core, the work is about ensuring that more people, regardless of background, can see themselves in the game, feel welcome in its spaces, and experience the benefits that hockey can offer.
References:
Coakley, J. (2015). Assessing the sociology of sport: On cultural sensibilities and the great sport myth. International Review for the Sociology of Sport, 50 (4-5), 402-406.
Pettican, A., Goodman, B., Bryant, W., Beresford, P., Freeman, P., Gladwell, V., Kilbride, C and Speed, E. (2023). Doing together: reflections on facilitating the co-production of participatory action research with marginalised populations. Qualitative Research in Sport, Exercise and Health, 15(2), 202–219. https://doi.org/10.1080/2159676X.2022.2146164