Rural Migration and Homelessness in the North

EXECUTIVE SUMMARY

This research examined homelessness, and co-morbid disorders (addictions and mental health issues) in Inuvik and communities in the Beaufort Delta. Five objectives guided the research, conducted from Summer, 2011 to Summer, 2013. These included: (1) to understand the mental health, addictions, and housing support needs of homeless men and women in Inuvik; (2) to identify gaps in mental health and addictions services for local homeless men and women; (3) through an examination of other northern communities, identify effective strategies and emerging best practices; (4) to assess how gaps in the current continuum of care vis-à-vis mental health, addictions, and housing services relate to local homelessness; and (5) provide suggestions for the development and implementation of best practices for homeless persons in Inuvik and surrounding communities.

A broad definition of homelessness – ranging from chronic to temporary – was used to recruit participants who were considered hard-to-house (HtH) for this study. Focus groups with a broad range of service providers from the Inuvik Interagency Committee (IIC), and other key stakeholders, were used to identify: (1) reasons for homelessness; (2) gaps in services; and (3) potential solutions. These interviews were used to generate a focus group questionnaire assessing the same questions that was administered to HtH persons in Inuvik. As well, HtH persons completed the Quality of Life for Hard to House Individuals inventory. Lastly, focus groups with service providers and stakeholders in several outlying communities were conducted in order to assess the issues related to HtH persons in those communities and migration of residents to Inuvik.

The results show that some migration from outlying communities into Inuvik does occur, but many HtH persons arrive from southern communities. As well, Inuvik itself generates its own HtH population. Homelessness results from problem behaviour, and subsequent eviction from public housing. Many of the behavioural issues arising are in one way or another related to substance abuse and/or the behaviour of other friends and relatives, and to a lesser degree, mental health problems. In addition, the policies guiding the Inuvik Housing Authority are not well understood and are often perceived as punishment. Significant gaps in services in terms of facilities such as detoxification facilities and community-based services were identified by service providers and HtH persons alike. Similarly, a shortage of trained personnel working in existing services was noted. The use of the local RCMP lockup or cells as a top gap measure for HtH persons is recognized as a significant issue as officers are not trained in addiction or mental health care, and the incarceration of HtH persons without charges does not align with RCMP policy. In recognition of the last point, the use of RCMP cells as a defacto shelter is currently under scrutiny.

This research has demonstrated that the factors leading to homelessness, particularly amongst HtH persons living at the Inuvik homeless shelter – poverty, lack of education/training, substance abuse, mental health problems and lack of affordable housing – are entrenched and persistent. The following recommendations are intended to encourage debate, coordinate services and engender the development of sustainable responses for people who find themselves in HtH situations.

1. Create a central co-ordinating body to work with members of the IIC, Aboriginal groups, the broader community and all levels of government. This body would take a leadership role in responding to HtH persons with co-morbid disorders.

While the IIC does take on a coordinating role, a more permanent body is needed to provide stability of leadership and to facilitate the development of strategies that will promote change in the lives of HtH persons.

2. Develop a strategy to bring all service providers together to share operational mandates, polices and services. The reduction of cross-institutional confusion, misinterpretation of policies, duplication of services and an increase in community services is crucial to service provision.

Throughout this research it has been apparent that, despite the coordinating role of the IIC, many agencies and service providers are not aware of their counterparts’ roles and responsibilities in serving HtH persons.

3. Work with members of the IIC, Aboriginal organizations, community groups and government to develop and propose a housing first model appropriate for Inuvik and other communities in the Beaufort Delta. A housing first approach can be developed to be sensitive to the different cultures requiring assistance, while at the same time provide core elements required for daily living in the Beaufort Delta.

Research demonstrates that HtH persons experience positive physical and mental health outcomes, are more likely to engage in treatment, and more likely to find and maintain employment when housed (see: Atherton & McNaughton Nicholls, 2008; McGraw et al., 2010; Singleton et al., 2002; TSSHA, 2007 & Trewin & Madden 2005).

4. Work with housing authorities in the Beaufort Delta to promote practices that are effective in reducing eviction rates among HtH persons.

Discussions with representatives of housing authorities and HtH persons illustrate a lack of understanding between the two groups. HtH persons see housing policies as punitive while housing authority staff view their managerial role and the enforcement of policies as essential to the well-being of all tenants. Clearly, third party intervention is needed to assist those who cannot abide by policies to change behaviours and avoid eviction, while at the same time reducing the strain on other tenants and housing authority staff. Several recommendations in this study speak to ways in which this can be accomplished. At minimum, stabilization of HtH persons is necessary before accessing public housing. This can be accomplished through services provided in transitional housing (recommendation 3) and changes to service provision (recommendations 6 and 7).

5. Work with members of the IIC, particularly BDHSSA, to establish a permanent detoxification centre.

As noted in this research, persons seeking detoxification must leave their communities for treatment. Most return to the conditions associated with their addictions and failure follows. A local detoxification centre, particularly paired with transitional housing staffed with capable personnel, offers a chance for these people to break the cycle of repetition.

6. Strategize with members of the IIC, aboriginal organizations, community groups and government to change to expand the operation of the shelter from 14 to 24 hours.

Particularly in colder months (.e.g. September – April) many HtH persons find themselves in need of a warm and safe place to stay until the shelter opens. The public library and local market are not acceptable solutions. Instead, having a place to go where they could access service providers or be offered suggestions for personal change while staying safe and warm, may be attractive, even to the most chronic HtH persons.

7. Work with members of the IIC, aboriginal organizations, community groups and government to explore transitional housing options for chronically HtH persons. Options should include the development of a temporary “wet shelter” serviced by staff trained in dealing with addicted persons with mental health problems.

Similar to the preceding point, this recommendation includes transitional housing as a means of dealing with homelessness while at the same time providing services that may work towards the improvement in the lives of the HtH. This could involve a more therapeutic environment serving Aboriginal and non-Aboriginal peoples using approaches appropriate to their respective cultures. Indeed, these services could be coordinated with “on the land” approaches and have the benefit of providing HtH persons with the skills and resources to cope in a more urban setting thereby reducing the likelihood of a return to substance abuse and ensuing housing related problems.

8. Develop outreach services so that HtH persons are aware of available services and can access services when needed.

Presently, accessing services requires HtH persons to make and keep appointments, which is generally during the standard work day While this may be considered an important step in developing personal responsibility for one’s own care, it is a loft goal for someone living day-to-day or indeed hour-to-hour as is the case for some. Even to the initiated, bureaucracies are intimidating and difficult to navigate, but those living on the margins of society are at a further, structural disadvantage. Outreach in this regard could be coordinated with transitional housing to be more expedient and effective.

Using mixed methods – review of literature, focus group interviews, statistical data and the administration of the QoLHHI – this research had identified significant gaps in existing services to HtH persons, many suffering from co-morbid disorders. The emerging images of homelessness and the lives of HtH persons could be construed as bleak. Even without eviction, there is not sufficient housing to meet demand. This issue will require significant and immediate attention to avoid further strain on existing services and personnel. In addition, the causes of homelessness, deeply rooted in the marginalization of people, are multiple and complex, and thus require a comprehensive response on behalf of governments and the communities involved. Still, there are high degrees of community commitment and energy dedicated to ameliorating the conditions leading to homelessness, and the development of strategies to reduce the plight of HtH persons. The recommendations in this report represent first steps in processes of change that will, hopefully, bring about betterment in the lives of HtH persons, and the communities in which they live.

Publication Date: 
2014
Location: 
Inuvik, Northwest Territories