Homeless Needs in Fort Providence

A Perspective Based on Local Research

Prologue
FP Management & Consulting (FPMC) saw a need to assist Community Advancement
Partnership Society (CAPS), a local registered non-profit dedicated to addressing the homeless
issues in the community, with research on how housing is affecting residents in Fort Providence.
Although FPMC will own the intellectual property in this report, CAPS will be allowed to use it in
any capacity to advance their goals.
Methodology
FPMC used personal contact with many residents and entered into discussions on how some of
the programs that available for their housing needs were affecting them. These discussions
were held in confidence however FPMC does have a list of the people who were interviewed.
Discussions were also held with Probation, Social & Mental Health workers, Child Services and
RCMP. There were two meetings that included the local housing manager and two meeting
with the Regional Housing Authority Manager.
The author has lived in the community for over 4 years and has been closely involved with many
of these individuals.

Introduction
CAPS is a NWT registered non-profit society located in Fort Providence that is dedicated to
addressing the large in-need housing issue within community.
The following report has been based on research from GNWT Housing Corporation and
Education, Culture and Employment (ECE) web sites, documents received from the Local
Housing Authority, discussions with departmental staff, CAPS clients, and with local mental
health and social service workers. It is not the intention of this report to provide answers but
rather to identify areas where more discussion may be warranted.
This report is also not intended to be critical of legislation in place but rather to show how
people are falling through the cracks.
Although the Housing Corporation and ECE are separate departments and under different
ministerial authority, when it comes to working with the in-need housing residents the two
are very much intertwined.
It is important to note that homeless, hard-to-house, in-need housing, under-housed are all
interchangeable in our report. Many people are resigned to the fact that having their own
housing unit seems unattainable; they use couch surfing, living in shacks, abandoned housing,
without water, sewage, power, or living in under-housed units with relatives or friends.
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Homeless Needs in Fort Providence

A Perspective Based on Local Research

CAPS Prospective Clients

CAPS has begun promoting a waiting list for transitional housing it hopes to have in place by
the fall of 2016. They are requesting people who are in need of housing to apply and begin
telling their story. To date there are 13 registered and 17 that have been referred, wth
attempts being made to meet. CAPS is trying not to influence their decision to apply but rather
promote what they hope to offer and allowing them to make contact directly or through friends
and family.
The people who have applied so far seem to fall into four categories:
1.
2.
3.
4.

Currently on the LHA waiting list

Does not quality for LHA waiting list due to arrears, debt or other
Currently not on Income Support
Currently on Income Support

Housing in Fort Providence

The waiting list for housing units currently stands at 16 with many being singles in their early
twenties.
Housing Corporation is using the waiting list to determine the housing need in the community.
People who have been evicted or terminated for any number of reasons, people who are living
in under-housed units, living in cabins and shacks without sewage, running water or power, and
who are couch surfing are not counted. This figure is difficult to ascertain because many do not
want to admit their situation. So far, CAPS has been able to have them self-identify, (it has
taken some time) and believes it has only 50-60% in this category.
If you eliminate the children under 18 and the non-residents from the approximate population
of 800, CAPS estimates there is conservatively 6-8% of the adult population in need of proper
safe housing. A staggering number.
The government and local housing use the waiting list to ascertain housing need in the
community. They do not include people who cannot get on the list nor the ones resigned to
living in under-housed units or shacks as it would dramatically skew the results.
FPHA waiting list seems to run from 3 to 16 applications singles, couples and families in the
last 6 months and the list is continuing to get larger. How are they going to address these
requests? Would evictions allow for the opening to reduce the waiting list?

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Homeless Needs in Fort Providence

A Perspective Based on Local Research

FPHA presently have 126 units and their goal now is to reduce that number to 97. They plan on
selling 16 detached units and giving present tenants the first option to purchase. If the tenant
does not have the means or does not want to purchase where to they end up? What effect
would this have on their waiting list? How will they address the expected increase in demand
for units?
The Housing Corporation recently erected a duplex earmarked for professionals at a cost of
approximately $ 800,000 or $ 400/ft. This is when there are at least 8 market rental units that
have been empty for many months and creating direct competition with local businesses using
tax payer money. The rationale for this escapes the author.
Another situation that has been developing is the increase in the adult population. As students
graduate (8-15 per year) where can they go? Many do not go onto further education but
remain with parents or relatives. As they get older how do they get their own space?
Girlfriends and children add to the under-housed unit creating health issues. How do they get a
unit? What options do they have?
Fort Providence Housing Authority (FPHA) cannot give an average time for being on the waiting
list but all indications show that it is usually more than 6 months and for many 8-12 months.
Some are reporting being removed from the waiting list for going out of town to look for work.
They then have to start all over again with a 6 month wait just to be able to apply. Many give up
believing they will never qualify. Will this attitude get worse as the housing budget continues to
get cut and the number of units decreases substantially?
FPHA seems to be circumventing eviction by using the termination clause in the tenancy act to
remove tenants from units. Because tenants do not comprehend their rights and are
intimidated by getting a termination letter, they just comply. Although they cannot be forced
out through termination. In the last 12 months there has been 1 eviction and 4 terminations
(from the rental officer) with no appeals. Is there a need for someone to assist these tenants
when they get letters they do not understand?
There appears to be very little resources going towards diagnosis of issues such as FAS and
PTSD. Victims of these types of disorders can be re-traumatized through evictions. Efforts
toward making them more responsible may result in opposite and negative effects.
Although FPHA is willing to explain rules and regulations to their tenants, this seems to be
mostly futile. Many are illiterate, have low comprehension and short attention spans. In our
opinion, much more work on this front would go a long way to reducing evictions/terminations.
Addictions and chronic alcoholism is prevalent but there seems to be little recognition of its
affect on tenant behaviour. Is it practical for a tenant that is known to have an alcohol problem
and tends to party be put in the middle of a triplex or four-plex? Is it fair not to house them
because for their issues? No easy solution.

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Homeless Needs in Fort Providence

A Perspective Based on Local Research

Issues arise due to damage to units, sometimes by the tenant and other times but visitors.
Although the tenant is responsible who they let in, it is usually difficult. Often, people just walk
in if the door is open and if they are a relative, what does one do? In a small, closely related
community rules that seem reasonable in other larger centers do not necessarily work. Again, is
there a solution? Break and Enters have been on the rise and this causes severe damage to
many units. Some units have been burglarized several times. Is the tenant responsible?
Noise has been a common reason for eviction/termination. All it takes is a neighbour, even one
across the street to make a complaint through a phone call and the tenant gets a warning.
Three letters and you are subject to eviction. If you want to get back at someone this is an easy
way. There is no investigation and the tenant does not know which neighbour put in the
complaint. There also seems to be no time limit on the warnings. Do they eventually get reset?
Many have behavioural and history of conflict issues related to mental disorders. The size of the
community is small so they will have experienced conflict with some FPHA directors, staff or
members of their families. It is difficult for anyone even professionals to set aside feelings of
resentment in such instances. This is also compounded by those in society who view
penalization as just in all instances, particularly where corrections are ineffective.
It is important that any transitional or emergency housing organization work closely with the
local housing authority. The overall goal should be to have everyone properly housed. The
groups should not be in conflict but be working toward a common outcome.
For those not on Income Assistance the tenants are assessed rent depending on their income.
As of the past year, assessments are made from the previous years T4 for gross income. This is
reasonable for most levels of income however it becomes a bit exorbitant for the higher income
families. The goal should be for these people to get their own homes.
A new initiative with the Housing Corp is to increase the power rates for their tenants. They
have increased the raw rate from .09 to .15 per Kwh a 67% increase. Again for many, they will
say about time. But who does this really impact. Tenants on Income Assistance will continue to
get their utility paid in full. This really only impacts the tenant who is trying to get ahead,
working for a living and not using the social system for accommodations. Is this not
counterproductive?

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Homeless Needs in Fort Providence

A Perspective Based on Local Research

Income and Benefit Assistance

Income support in Fort Providence is called help. For many it is considered an entitlement
and there is little incentive to get off.
Unless you have a medical or mental condition you are required to do a productive choice
that requires some kind of volunteer work to a non-profit or local government, attend courses
or some other choice accepted by the case officer. While this is not a bad thing, it seems to
have little influence on leading clients to improve themselves and get off assistance. It does not
factor in undiagnosed conditions. There appears to be zero allowance for giving the clients the
benefit of the doubt. This type of judgement would be tossed out in a court of law.
Although IA has several categories for assistance, providing rental help is the area that this
report has focused on. The single most important criteria presently in place for clients to
receive a housing allowance is the requirement to be on the Local Housing waiting list. Without
this requirement all are denied the benefit.
This requirement alone is a prime reason for the large percentage of residents who are in need
of proper housing. The immediate argument one will get is that they have a means to get on
the housing list. This will be discussed further into this assessment.
Many of CAPS registered clients have told stories of getting suspended from benefits. The
regular one is not reporting income. Although the rules at first blush seem reasonable,
suspensions can be questionable and are a major cause of people ending up being evicted from
housing units. A former housing board member reports that other board members who served
at the time viewed their primary function as reporting tenants that may be concealing income.
It also appeared to coincide with incidences where they had family or friends high on the
waiting list.
There is an appeal process available to all IA clients however as many are illiterate and with low
comprehension levels, it is difficult. Again, immediate argument is that they just have to ask the
case worker to help with the appeal. So, the case worker suspends you and then will help you
with the appeal conflict? There is close to 0% of appeals won by clients. There seems to be a
need for advocacy.
When on IA, a client must declare ALL income. Most including bingo winnings are counted.
Locally, winners are not announced because of this. It is a concern with this author with clients
being suspended for not declaring bingo winnings. Where would the proof come from? Bingo
in the north is inbred in the community and a part of the social fabric. Although the chances of
winning or getting ahead is astronomically high, it seems to help. There is such a lack of hope
within the community, that even with the huge odds against winning, they seem do need it to
cope.

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Homeless Needs in Fort Providence

A Perspective Based on Local Research

When calculating income, a single person is allowed $200 per month and a couple/family
allowed to have $ 400 in income. The GNWT boasts that an incentive of 15% of further income
will not count against their assessment. In reality it is an 85% charge. So a client who has extra
income during a month will have their benefits reduced the following month at a dollar for
dollar amount at the 85% rate. Although this may not seem bad to many and arguments are
easily made by the uninformed, the reality again is quite different. Because of a lack of
education, understanding and other issues, most will see this money as a windfall and spend it
recklessly and almost immediately. Then, when they find out they will have either reduced or
no benefits the next month they are in a panic no rent money, no money for food, no money
for personal care, etc. So the first thing that gets behind is rent and utilities. They then want to
make sure it doesnt happen again so the next time they do not report income. The case officer
finds out and they get suspended for 60-90 days. No rent, no food, nothing for all that time.
Arrears pile up, eviction notice is given and the client and his family are now homeless and have
to find accommodations wherever then can.
The cynic will say they deserve it or they should have budgeted or some other logical reason.
Unfortunately, this is not a logical situation. Many are victims of early childhood trauma which
has led to chronic addictions, others have undiagnosed issues such as FASD and PTSD. Efforts to
correct the behaviour of such individuals through penalties are misguided and only victimizes
them more. They are being re-traumatized through evictions and other penalties by a system
that makes recovery much more difficult.

Examples
Examples are important to show context and the effects various programs have on people. It is
hoped that by giving these examples the local Housing Authority or local IA case worker does
not assume who we are showing and take some sort of retribution on their part.

Example 1
A family of three was evicted for arrears. Family was also suspended from IA for 90 days
because the male did not report income to IA. They are now living in a two-bedroom apartment
with two other adults and one bathroom. They also have to rely on others for food for
themselves and their child.

Example 2
A three-bedroom house has 6 adults and one child living together again with one bathroom.

Report Prepared by FP Management & Consulting

Homeless Needs in Fort Providence

A Perspective Based on Local Research

Example 3
A full-time working housing tenant who has been paying more than the minimum rental rate for
more than a year has received the third noise warning and a threat that eviction may be
requested. The 2nd warning was previously 11 months prior. Only a call to housing from
someone initiated the warnings. No investigation or follow-up was given for any of the
warnings.

Example 4
A couple are living on the winter road (7 Km from the community) in a shack without running
water or power because they have been evicted/terminated.

Example 5
Elders takes in homeless children resulting in higher rent. Elders were moved to seniors home
against their wishes and children were made homeless again.
These are actual examples with the information provide by the people who CAPS had
interviewed.

CAPS Solution
CAPS would like to provide small units of approximately 320-350 ft that would house a single
or couple until they can qualify and get a regular housing unit. Each unit would cost between $
40-50,000 and ideally separate from each other. The units would be damage resistant and have
only the basic amenities.
CAPS would like their project to be considered as a pilot and work with various departments
including Housing, Income Assistance, Probation and Health and Social Services to give tenants
safe and secure housing and an opportunity to move to better accommodations.
It is understood and expected that CAPS tenants would have to do either the Productive Choice
or another agreed to program.
The goal would be to advance the tenants to regular housing units. A 5-year pilot would be
ideal and allow enough time to assess the results. Regular reporting should also be made
available to anyone wishing to see them.

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Homeless Needs in Fort Providence

A Perspective Based on Local Research

CAPS also has no intention of retaining ownership of the buildings. Once the units have ben
paid and operations are going as expected, CAPS will donate them to another local community
organization, such as the Friendship Centre, to continue with the management and operations.

Comments
Although there is an immediate need for many housing units in Fort Providence, that only
touches the overall issues. Many of these people require help to get their lives straightened
out. Some will never. This unfortunately is a reality.
CAPS hopes to develop a means to allow their clients who want to improve themselves by
creating bridges for them to use to access opportunities. CAPS is fully aware that many will
not take advantage but as long as there are some that can be help, the effort will be worth it.
The rules that govern people who are on income assistance and are in need of housing in many
ways works against the individuals. Although the rules many seem reasonable in a normal
society, the social issues that are prevalent in this community are not taken into account.
Many are dealing with one or multiple issues including, FASD, PTSD, ADD, depression, chronic
alcoholism, abuse, drug addictions, low education levels, even lower comprehension levels,
despondency, mistrust in the system and resigned to living in poverty.
How one addresses and incorporates these issues within a housing program will undoubtedly be
difficult. Not doing anything means that continued generations will follow the same path
making solutions even more difficult in the future.
The refusal of the local FPHA to release public information shows a need for training. The
training should cover how this is harming their clients by creating distrust. Withheld information
can not be addressed. Measures currently being applied could be misdirected and wasteful.
Transparency is important, even more so since this is a government and taxpayer supported
organization. This should and can be done while keeping personal information confidential.
There appears to be an over-riding concern that someone may be able to game the system
but the victims of this concern get overlooked
It has been difficult to get people to respond to this report. Many fear retribution and believe
they will have an even harder time to get a unit.
The homeless are unorganized and cannot advocate for themselves. They most likely do not
vote during FPHA or any other elections.
There will be an immediate circling of the wagons by bureaucrats and politicians when
addressing this document. They will feel a need to justify their programs as necessary and
working and may feel embarrassed. It would be nice if instead of responding defensively, they
look at the issues and actually work toward solving some of them. There is an opportunity to
work with a local non-profit that has solutions.
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Homeless Needs in Fort Providence

A Perspective Based on Local Research

Conclusion
The author of this report has been led to conclude that the pattern of complaints and concerns
stem from a failure in communication. The Housing Corporation has failed to communicate the
safeguards it has in place for:

The possibility that a community member may place a false or exaggerated complaint
about a tenant for unrelated reasons.
How complaints are investigated for conflict where the complainant will benefit in some
manner.
How conflict is managed at the staff and board member level. For example, when a
friend or relative applies for a unit and the eviction of a tenant will benefit friends or
relatives on the waiting list.

The Housing Corporation has also failed to communicate:

1) The justification of having units sitting unused for long periods of time.
2) The rational for condemning of units when there is no alternative.
3) The justification for its inability to provide for those not capable of acting in their own
best interests due to mental dysfunction.
Many homeless and hard-to-house have been affected by incest, sexual abuse, physical abuse,
and abandonment. Because of their various trauma, many have symptoms of depression,
suicide, low self esteem and a defeatist attitude. All these issues need to be included when
assessing the viability of programs.
Safety and shelter are basic to survival. Those without it have to and will resort to desperate
measures. The shortage or lack of safety and shelter will bring out the worst in anyone. It should
not be in the least surprising that there are many concerns over abuse of the system.
The blame should sit at the corporation's door. It is, after all, the only one that can bring
about any change. They have made all the rules that do not work in our impoverished
environment.

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