REPORT ON INUIT HOMELESSNESS IN MONTREAL, CANADA

Transcription

1 REPORT ON INUIT HOMELESSNESS IN MONTREAL, CANADA Presented to the Front d action populaire en réaménagement urbain in the context of the Popular Commission on Housing Right Makivik Corporation November 2012

2 INUIT HOMELESSNESS IN QUEBEC: A DISASTROUS SITUATION Nunavik s Inuit families live in a toxic housing environment. - An assertion signed by 11 Quebec university professors and researchers in a September 15, 2010 letter to the editor of the Montreal newspaper, La Presse. They refer to the current housing crisis in Nunavik, a Quebec region north of the fifty-fifth parallel, where some 10,000 Inuit live in 14 coastal communities. A Time of Change in Nunavik In the last 60 years, Nunavik Inuit have been undergoing a series of changes that continue to have a significant impact on that population. This major transitional period began shortly before the Second World War, when the collapse of the fur economy caused periods of intense hunger amongst the Inuit. The presence of American military bases in all northern regions of Canada, including Nunavik, led the Canadian government to assert itself as it began to fear the loss of sovereignty over its northern territories. In 1953, an officer of the Royal Canadian Mounted Police was the first federal official to arrive in Kuujjuaq, considered Nunavik s regional capital. The establishment of federal services in the region led to the creation of a new system of governance, facilitated access to basic health care, and created federal schools where teaching language was English and of federal residential schools that would go on to cause the breakdown of the Inuit family unit.

3 Other tragic events, such as relocating groups of Nunavik to the High Arctic by the federal government in 1953, slaughter of sled dogs in the 1950s and 1960s by police officers compounded the abrupt transition from the Inuit semi-nomadic life to settlement in villages. It is only in 1963, Québec, at the initiative of René Lévesque, then Minister of Natural Resources, got interested in Nunavik and to the well-being of the Inuit living in that region. The Direction générale du Nouveau-Québec (DGNQ) was thus created. All these drastic changes over a short period of time, will have major impacts on the Inuit population: changes of traditional values, in the roles of men and women, food insecurity, etc. A recent study by McGill University shows clearly that 6 Inuit out of 10 in Canada are hungry, at a moment or another. Regarding the situation of housing, because of certain political decisions, we are now facing the worst-yet housing crisis in Nunavik. Such a crisis entails serious family and community problems. Housing units are too small, are overcrowded and do not meet the requirements of the sedentary life. The Kativik Regional Agreement and Makivik Corporation explained this situation at the hearings held in Kuujjuaq on October 12 th by the Commission. This overcrowding has a major impact on the development of children, both in terms of their physical health (they are more vulnerable to infections and chronic lung disease) as well as their psychological well-being (they exhibit symptoms of distress, including difficulties in impulse control and in learning at school).

4 Recently in the Inuit community of Kangiqsualujjuaq (George River) located on the East cost of the Ungava Bay, there were 90 cases of tuberculosis. In April 2007, the Quebec Human Rights Commission tabled its report Investigation into child and youth protection services in Ungava Bay and Hudson Bay. This investigation focused on the services offered to Nunavik children. In its report, the Commission revealed a situation of house overcrowding amongst the Inuit population. It is frequent to have two or three families in the same house. Often there are 12 to 15 people of three and even four generations in the same house. Several studies have shown a very high correlation between overcrowded housing and physical abuse and sexual assault against children. The James Bay and Northern Quebec Agreement (JBNQA) signed in 1975 by the Inuit of Nunavik, the government of Canada and the government of Quebec, will completely change the political and legal status of Nunavik. A new governmental structure was created, consisting of 14 municipalities under Quebec s jurisdiction and Quebec created three institutions that would provide programs and services to all residents of Nunavik: the Kativik School Board, the Kativik Regional Government, and the Nunavik Regional Board of Health and Social Services. The federal government also pledged to finance a significant portion of the programs and activities of these organizations.

5 Hidden homelessness in northern communities In recent years, we have been witnessing a new phenomena in all communities: Hidden homelessness. In Nunavik, hidden homelessness refers to people who live temporarily with members of their family, friends, or in shacks. These people live very dramatic situations but are invisible. This phenomena which is not well documented, is a reality to which authorities will have to pay further attention. Similar plights can be observed in Iqaluit, Nunavut s capital (reference: The Little Voices of Nunavut: A Study of Women s Homelessness North of 60, Qullit Nunavut Status of Women Council, Iqaluit, Nunavut, January 2007), where between 100 to 300 women live on a daily basis this hidden homelessness. Hidden homelessness greatly exacerbate physical and mental health problems of Inuit, including social and family situation. Urban Inuit in Canada In 2006, 20% of Canada s Inuit population lived in southern Canadian cities: mainly in Vancouver, Edmonton, Winnipeg, Toronto, Ottawa, Montreal, and St. John s (Newfoundland). This phenomena is recent, dating back only to the 1980s. The Inuit population of Canada is approximately 50,000 people. In Montreal, there are about 1,000 Inuit, out of which the majority are from Nunavik Several things draw Inuit to Montreal: jobs (especially with Inuit organizations and institutions based in Montreal); continue their studies; accompanying a family member for hospital care (about 150 to 200 people at any given time); and attraction to city life. Almost half of Inuit adults in Montreal are employed.

6 Other reasons drive Inuit away from their home communities: high cost of living in Nunavik; high level of poverty, food insecurity, housing crisis; physical and sexual abuse; marital problems, etc. Other Inuit arrive in Montreal when they leave detention centers. Inuit homelessness in Montreal Inuit represent 10 percent of the aboriginal population in Montreal, but they count for 45 percent of homeless aboriginal people in the city. There seem to be as many men as women in this situation. This homelessness generates physical and mental health problems. Many women flee from domestic violence in their home communities, only to reconnect with it in the city (reference: The dream of the South: leaving the violence of hell for an artificial paradise, an article in Le Devoir, February 26-27, 2005). All Inuit live away from their culture. Inuit migrate to Montreal after completing penal terms in federal or Quebec detention centers. Some of them are forbidden from returning to their home communities by order of the courts, or they are simply no longer welcome in North. With no other alternatives, they quietly drift into homelessness. The causes of homelessness in Montreal originate from Nunavik (reference: article Nunavik housing crunch squeezes Inuit onto Montreal streets, Nunatsiaq News, May 27, 2008). Homelessness strategy and action plan Makivik Corporation ( represent the Inuit nation of Nunavik. It administers the compensation fund provided to the Inuit by the JBNQA.

7 Makivik also fights poverty, promotes the welfare, progress, and education of Inuit, stimulates economic development, supports Nunavik communities, and promotes and protects the Inuit way of life. Since its inception in 1978, Makivik has demonstrated political, cultural, and economic leadership in establishing and developing a Nunavik region where Inuit are able to find a place and create a distinct identity. In October 2008, Makivik Corporation delivered to the Quebec Government Social Affairs Committee a report on Inuit homelessness in Quebec, especially in Montreal. In November 2009, the Commission issued a report on the matter and proposed some references and suggestions for dealing with First nations and Inuit homelessness. The following month, Quebec released its Interdepartmental Action Plan to deal with homelessness in the province. In April 2010, given the acute situation of Inuit homelessness in Montreal, Makivik Corporation moved to take the initiative in developing a strategy and action plan on Inuit homelessness that pursue two objectives: 1. Ensure the access to adequate medical care and social services for Inuit in Montreal who are in vulnerable situations or are homeless; 2. Work on the prevention of homelessness. In order to implement its strategy, Makivik promotes the development and signing of partnerships with other Nunavik organizations, as well as with organizations representing Inuit of other regions of Canada, with several agencies working with homeless people. A major factor to take into account is these organizations are to be aware of the Inuit reality, of its culture and traditions.

8 On April 27, 2011, Makivik Corporation and the CHEZ DORIS, Women s Shelter Foundation Inc. signed a Partnership Agreement which entails, amongst other things, the hiring of an Inuit Case Worker (Judy Hayohok) who takes care on a priority basis of Inuit women that are in a vulnerable situation or homeless. Inuit women represent 15% of the clientele of CHEZ DORIS. Funding of the agreement is entirely secured by Makivik Corporation in collaboration of the Kativik Regional Government, through the Ungaluk Programme. On October 4, 2012, Makivik signed another Partnership Agreement with Projets Autochtones Québec (PAQ) who manages the only night shelter for Aboriginal people in Montreal. Funding of this agreement is also secured by Makivik Corporation with the support of the Kativik Regional Government, through the Ungaluk Programme. More than 50% of the visitors to this shelter are Inuit. Approximately 400 Aboriginal people visit the shelter every year. Furthermore, Makivik supports Projets Autochtones Québec in the implementation of its Development Plan. This Development Plan calls for the establishment of a new shelter, creation of transitional beds, development of a day centre and a program of social reintegration adapted to the cultures of First Nations and Inuit. As for the agreement with CHEZ DORIS, this agreement with PAQ also calls for the hiring of an Inuit Case Worker, who speaks Inuktitut (Inuit language) and has knowledge and experience in dealing with social issues. Any project or initiative to address homelessness must not ignore the reality of Inuit. The major objectives must be to ensure: a) adequate housing;

9 b) adequate incomes and continued integration strategies (developing employability through education and training, facilitating job searching); c) ensure the provision of medical and social services (developing support services, especially support for adjusting to urban life, substance abuse treatment, and language interpretation services). Housing in Nunavik Statistics Canada confirm that Nunavik has the highest overpopulated housing in all of Canada, and there is an immediate need of 1,000 houses. This is a major challenge. In 2005, an agreement was signed between the government of Quebec, Makivik Corporation and the government of Canada for the implementation of a 5-year construction program of 275 houses. This represents 11% of the needs. This agreement was the renewal of a similar agreement signed in In 2007, at the Katimajiit conference held in Nunavik, the government of Quebec announced the construction of 50 other houses. This Makivik-Quebec-Canada agreement was renewed in 2010 by adding 350 houses in Nunavik over a period of 5 years. In the context of its Plan Nord, Quebec announced the construction of 300 social housing in the context of a catch-up program. Quebec has confirmed its commitment to finance by itself construction costs and the operations costs of these social housing. Furthermore, Quebec will contribute to construction of 200 private homes and 50 under the cooperative form.

10 It is through the Quebec Housing Corporation the Government of Quebec will implement this special catch-up programme for the construction of houses in Nunavik. It is also through the Quebec Housing Corporation that Quebec will finance a major programme of repairs to the existing houses in Nunavik. These programmes are managed by the Kativik Municipal Housing Bureau. Unfortunately, the government of Canada keep refusing to make a special effort to initiate a catch-up program similar to the one of the government of Quebec. In Fall 2011, Makivik Corporation in the context of the James Bay Implementation Agreement between Canada and Makivik, initiated the Dispute Resolution Mechanism regarding this refusal by the federal government to finance a catchup program. The outlook for Inuit homelessness in Montreal Homelessness can either become a norm in our society, or we can ensure it does not become a continuing problem by ensuring adequate housing, income, social services, and medical care. For certain, if nothing is done we will experience a rise in Inuit homelessness, which will incur further problems, social burdens, and an enormous financial cost for governments, including the City of Montreal and surrounding cities. Conclusion The causes of hidden homelessness in Nunavik and homelessness in Montreal both originate in Nunavik. Makivik Corporation is ready to collaborate closely with all levels of government, with social organizations, the City of Montreal, surrounding cities and the private sector in order to find together in

11 a concerted effort innovative and permanent solutions to the acute crisis of housing in Nunavik and to Inuit homelessness in Montreal. These two issues are closely intertwined. Donat Savoie Special Advisor to the Office of the President of Makivik Corporation Knight of the National Order of Quebec November 7, 2012