H O U S I N G I N

NunavikInformation Document

November 2001

Photographs: Kativik Regional Government: Gordon Cobain, Société d’habitation du Québec, Maisons Laprise inc.

Legal DepositBibliothèque nationale du Québec, 2001Bibliothèque nationale du Canada, 2001ISBN 2-550-38484-9© Gouvernement du Québec

This information document has been prepared for use by the members of theministerial delegations from Western and Northern Canada during their tripto Kuujjuaq on November 27 and 28, 2001. It is also intended to be read byour partners in the region and by local households wishing to play an activerole in improving their housing conditions. This is why we have taken stepsto ensure that the document is published in three languages: French, Englishand Inuttitut.

The first section of the document provides some basic information onNunavik (territory, population, social, political and economic organization,etc.), in other words on factors that influence housing development north ofthe 55th parallel. The second section defines some key events that havemarked the history of government initiatives to provide housing in Nunaviksince the early 1950s.

The third section gives factual information on the development of socialhousing in Nunavik over the last two decades (1981-2001), while the fourthsection focuses on the measures that led to the establishment, in the late1990s, of a new Québec-Nunavik partnership in the field of housing.Housing needs, challenges and future prospects in the region are dealt withinthe fifth section.

Our sincere thanks go to the representatives of the Nunavik authorities, andespecially the Kativik Regional Government, the Makivik Corporation and theKativik Municipal Housing Bureau, for the invaluable assistance they providedduring the preparation of this information document.

JACQUES GARIÉPY

President and Director GeneralSociété d’habitation du Québec

TABLE OF CONTENTS

NUNAVIK 1 Territory 8

Climate 8

Population 8

Sources of income 9

Municipal services 9

Social, political and economic organization 9

Culture 10

Housing 10

HISTORICAL OVERVIEW OF 2 Early period (1950-1970) 12GOVERNMENT HOUSING ASSISTANCE INITIATIVES IN NUNAVIK The James Bay and Northern

Québec Agreement (1975) 13

Transfer of responsibility (1981) 13

The Canada-Québec Global Agreement on Social Housing (1986) 14

The Agreement Respecting the Implementation of the James Bay and Northern Quebec Agreement (1990) 14

Federal withdrawal (1993) 15

The Framework Agreement Concerning the Kativik Region (1998) 15

DEVELOPMENT OF SOCIAL 3 Overview 18HOUSING STOCK (1981-2001) Housing quality 18

Housing unit size 19

Construction costs 19

Rental rates scale 19

Operating deficit 20

A NEW RESPONSIBLE PARTNERSHIP 4 The reform of government interventions 22

Introduction of three new programs 22

Creation of the Kativik Municipal Housing Bureau (KMHB) 23

The Agreement Respecting the Implementation of the James Bay and Northern Québec Agreement related to Housing in Nunavik 23

HOUSING NEEDS IN NUNAVIK: 5 Housing needs in Nunavik 26CHALLENGES AND PROSPECTS The challenges 27

Future prospects 27

• Continuation of social housing construction work 27

• Diversification of residential products adapted to Northern conditions 27

• Extended home ownership 28

• Implementation of an experimental financial support program for the development of a private rental sector 28

• The joint (Canada-Québec) affordable housing program 28

• Introduction of a major repair program 29

• Consolidation of the new Québec – Nunavik housing partnership 29

BY WAY OF A CONCLUSION: GOVERNMENT PRIORITIES AND HOUSING PROGRAMS IN NUNAVIK 31

APPENDICES

APPENDIX 1Map of Nunavik 35

APPENDIX 2Population of Nunavik by Age Group and by Village 36

APPENDIX 3The Kativik Regional Government (KRG) 37

APPENDIX 4The Makivik Corporation 39

APPENDIX 5The Cooperative Movement in the Inuit Communities 40

APPENDIX 6Social Housing Stock Development in Nunavik (1980 – 2001) 41

APPENDIX 7Scale of Social Housing Rents (2001) 42

APPENDIX 8The Kativik Municipal Housing Bureau (KMHB) 43

SELECTIVE BIBLIOGRAPHY 45

NUNAVIK

1

Territory

Climate

Population

Sources of income

Municipal services

Social, political and economic organization

Culture

Housing

Nun

avik

SECT ION

8

Demographic trendsdrive the need and

demand for housing.

N U N A V I K

NUNAVIK

1

TerritoryNunavik is a vast, 600,000 square kilometresregion covering the whole of Québec north ofthe 55th parallel (see Appendix 1). It contains14 Northern villages on the shores of UngavaBay, the Hudson Straits and Hudson Bay. Thevillages are located between 1,500 and 2,500kilometres north of Montreal. The largestvillages are Kuujjuaq, Puvirnituq and Inukjuak(see Appendix 2).

There are no road links between southernQuébec and Nunavik, or between the Northernvillages themselves. Year-round air transportationof passengers and freight is available, but costly.Sea transportation is available during the summerand fall months.

Climate

An Arctic climate prevails north of the 55thparallel, where the winter is both long (up to 8months a year in some villages) and extremelycold. Strong winds, gusting up to 160 km perhour, sweep the snow away or bank it uparound buildings, so that the slightest crack inthe building’s outer skin creates glacial conditionsinside and causes the structure to deterioraterapidly.

In Nunavik, the cold is intense and can last forextended periods of time, with winter tempera-tures dropping as low as –40°C. Buildings mustbe heated, on average, for a period twice aslong as in Southern Québec. The ground in theNorthern villages is permanently frozen(permafrost), except in the three villages locatedclosest to the 55th parallel.

Population

The total population of Nunavik is estimated at11,000 people, 90% of whom are of Inuitorigin. Demographic trends in Nunavik contrastsharply with trends elsewhere in Québec; in theInuit communities, the annual population growthrate is 2.1% compared with just 0.7% for theQuébec population as a whole. The populationis young: more than 60% are aged 25 or under,and 75% are under 35 (see Appendix 2). Giventhis situation, it is not surprising that many newhouseholds are being formed. In addition, eachNunavik household has, on average, moremembers (4.3 individuals) than in southernQuébec (3.0 individuals).

N U N A V I K S E C T I O N 1

9

In contrast to the Amerindians, who aregoverned by the Indian Act, the Inuit are fulltaxpayers: they file income tax returns with thegovernments of Canada and Québec, and mustpay all applicable federal and provincial taxes(GST and QST). The cost of living in Nunavik isvery high, and all goods and services cost signifi-cantly more than in southern Québec. An itemthat costs $1.00 in Montreal costs an average of$1.60 north of the 55th parallel.

Nunavik’s education system is administered bythe Kativik School Board. The language ofinstruction is Inuttitut, and students choosebetween French and English as their secondlanguage. In recent years, a growing number ofstudents have opted for French as their secondlanguage. Practically all Inuit people in Nunavikspeak Inuttitut.

Sources of income

Most of the jobs available in Nunavik are tied toactivities in the public and parapublic sectors.Approximately 60% of all full-time jobs are inhealth and social services, education, and provin-cial, regional and local administration. Theprivate sector offers jobs in air transportation (AirInuit and First Air), small and medium-sized busi-nesses, mining and construction. Casual or part-time positions are more common than full-timejobs. The income of a substantial number ofhouseholds derives from transfer payments(employment insurance, income security, old agepensions, etc.).

Municipal servicesBecause of the permafrost, there are no mainswater or sewer systems in Nunavik. The installa-tion of water and sewer systems would be tech-nically complex and prohibitively expensive. Eachhouse must have its own drinking water andwastewater tanks,respectively filledand emptied bytanker trucks. Inaddition, the villagesare supplied withpower not from thehydroelectric distri-bution grid thatserves the rest ofQuébec, but frompowerful dieselgenerators installedin each village. These special municipal servicesgenerate high costs, and the annual municipaltax bill for a dwelling with three or fourbedrooms can easily reach $9,000 to $10,000.

Social, political and economicorganization

The political, administrative and economic orga-nization of Nunavik is under the responsibility of,and mainly conducted by, the Kativik RegionalGovernment (see Appendix 3) and the MakivikCorporation (see Appendix 4). The main respon-sibility of Makivik is to see to the implementationof the James Bay and Northern Québec Agree-ment (JBNQA), and to manage the compensationpaid under the Agreement. The Kativik RegionalGovernment is the political authority in Nunavik.

10

N U N A V I K

With regard to social and economic organization,it is worth remembering that the communities inNunavik have been familiar with the cooperativemovement for many years. Each Northernvillage has its own cooperative to run the grocerystore, and in some villages the cooperative move-ment is also involved in running hotel services.For additional comments on the role played bythe cooperative movement in Inuit communities,please see Appendix 5.

Culture

The Inuit of Nunavik feel strongly that their tradi-tional lifestyle should be maintained that theirculture should be preserved. The Avataq CulturalInstitute was established on November 1, 1980.This non-profit, non-political cultural organizationhas the mission of preserving traditional Inuitvalues and artefacts of historical importance. Italso promotes cultural activities in the Nunavikregion and elsewhere. The Institute recognizesthe vital importance of involving Inuit elders inthe development of its programs and projects,and sponsored the first Inuit Elders Conferenceheld in Kangirsuk in 1981.

HousingThe combination of geographical, climatic, social,economic and demographic factors found inNunavik places constraints on and demandsparticular approaches to the development of resi-dential housing in the region. Demographictrends drive the need and demand for housing.The social and economic situation of the house-holds requires substantial, diversified governmentintervention (social housing, home ownershipsupport, etc.). In addition, the remoteness andisolation of the Inuit communities in Nunavikcreates economic constraints (high costs) andlogistical problems (short construction season).

As this overview shows, housing development inNunavik poses major challenges for both thegovernment authorities involved and the repre-sentative organizations in the region, and one ofthe main objectives of this information documentis to highlight these challenges. But beforelooking at them in detail, and at the possiblesolutions that have been identified, it is perhapsuseful to review previous government actions tohelp provide housing in the Inuit communities ofNunavik.

Historical overview of

GOVERNMENT HOUSINGASSISTANCE INITIATIVES IN NUNAVIK

2

Early period (1950-1970)

The James Bay and Northern QuébecAgreement (1975)

Transfer of responsibility (1981)

The Canada-Québec Global Agreementon Social Housing (1986)

The Agreement Respecting theImplementation of the James Bay andNorthern Quebec Agreement (1990)

Federal withdrawal (1993)

The Framework Agreement Concerningthe Kativik Region (1998)

Nun

avik

SECT ION

12

The James-Bay andNorthern Quebec

Agreement was one ofthe most important

treaties ever signed withNative people in

Canada.

H O U S I N G A S S I S T A N C E

Historical overview of

GOVERNMENT HOUSINGASSISTANCE INITIATIVES IN NUNAVIK

2

Early period (1950-1970)In the early 1950s, the Government of Canada,through the Department of Indian Affairs andNorthern Development (DIAND), began to offervarious financial assistance programs to Inuits inNunavik to allow them to improve their housingconditions. Some of the programs promoted aself-build approach, and the government assis-tance consisted in providing materials for house-holds that wished to build their own homes. Atthe time, the buildings concerned were more likehuts or bad weather shelters than actualdwellings - in other words buildings in whichfamilies could live permanently and comfortably.These buildings – referred to at the time as“matchboxes” – were small in size and had noservices (running water, electricity, heating,household appliances, etc.).

The traditionally nomadic Inuit lifestyle wasbeginning, in the early 1950s, to give way to amore sedentary period, encouraged by theprogressive introduction of various communityservices (health care, education, etc.). In suchcircumstances, the housing constructed duringthe 1950s and 1960s quickly became over-crowded.

In the late 1960s and early 1970s, DIAND madea significant effort to improve housing conditionsin Inuit communities in Nunavik by addinghousing services and broadening the range offinancial assistance programs available. At theend of the 1970s, DIAND had constructed orrenovated more than 800 dwellings in the 13communities that then existed. Overuse of thedwellings, caused mainly by overcrowded housingunits, led to rapid structural deterioration.

Appendix 9 contains photographs that illustratethe evolution of residential construction types inNunavik between 1950 and 2000.

H O U S I N G A S S I S T A N C E S E C T I O N 2

13

The James Bay and NorthernQuébec Agreement (1975)At the beginning of the 1970s, the Governmentof Québec made public its plans for large-scalehydroelectric development in the James Bayregion, and the vital forces within Inuit societywere quick to react. The leaders and representa-tives of the Inuit communities put up a vigorousopposition, often through the courts, to theunilateral proposals made by Québec concerningsome of their ancestral lands. The courts ruled infavour of the Inuit, and the implementation ofthe government plans was suspended, or at leastpostponed until an acceptable agreement hadbeen reached by the parties. A long, multilateralnegotiation process ensued, leading to thesigning on November 11, 1975, of the JamesBay and Northern Québec Agreement by all theparties concerned, namely the Government ofCanada, the Government of Québec, the GrandCouncil of the Crees (of Québec), the NorthernInuit Association, the Société d’énergie de laBaie-James, the Société de développement de laBaie-James and the Commission hydroélectriquede Québec (Hydro-Québec).

The Agreement was one of the most importanttreaties ever signed with Native people inCanada. Under the Agreement, the Cree andInuit acquired broad responsibilities for educa-tion, health services and social services, adminis-tration, and hunting, fishing and trapping. TheAgreement also provided for the establishmentof administrative structures and the financialmeasures required to enable the Native commu-nities to meet their new responsibilities. Inexchange, the Natives gave up their rights overmore than 600,000 square kilometres of land,releasing it for development by Québec in accor-dance with the rules set out in the Agreement.

Once the Agreement was ratified, the Govern-ment of Québec passed a series of Acts,including the Act respecting Northern villagesand the Kativik Regional Government (R.S.Q., c.V-6.1), the Act respecting the land regime inJames Bay and New Québec territories (R.S.Q., c.R-13.1) and the Act respecting the MakivikCorporation (R.S.Q., c. S-18.1).

When the Agreement was signed, the govern-ments of Canada and Québec made firmcommitments concerning, among other things,the promotion and support of social andeconomic development in the First Nationsconcerned, includingthe Inuit Nation.Section 29 of theAgreement, on thesocial and economicdevelopment of theInuit, provided forthe continuation ofexisting programscovering housingservices for Inuitcommunities in Nunavik.1

Transfer of responsibility (1981)

An agreement entered into in 1981 by the Cana-dian government transferred its responsibility forhousing in Nunavik, and gave Québec full juris-diction over all activities relating to housingdevelopment in Inuit communities north of the55th parallel. At the same time, Québec inher-ited around 800 dwellings constructed in theregion by DIAND over the preceding decades.The agreement provided for the payment, to theQuébec government, of $72 M (a substantialamount at the time) to allow it to begin therenovation and extension of the housing stock inNunavik.

1 For more information on theJBNQA, see a highlyinstructive collection ofdocuments brought togetherfor the conferenceReflections... on the JamesBay and Northern QuebecAgreement held in Montrealon October 25 and 26, 2001.

14

H O U S I N G A S S I S T A N C E

The Nunavik authorities interpreted this transferof responsibility as a way for the federal govern-ment to rid itself of the commitments made tothe Inuit communities.

The Canada-Québec GlobalAgreement on Social Housing(1986)

In the early 1980s, the Government of Canadabegan an extensive review of all its housing assis-tance policies. The recommendations made byvarious task forces and commissions set up forthe purpose culminated in the 1985 announce-ment by the federal government of the newguidelines contained in its housing policy. This,in turn, led to the signing in July 1986 of theCanada-Québec Global Agreement on SocialHousing.

The fundamental guideline set out in the 1986framework agreement was the principle thatgovernment financial assistance would be chan-nelled primarily towards the households experi-encing the strongest financial hardship. Existingprograms were modified accordingly, and awhole range of new programs was introduced,for example constructing social housing, homerenovations, adapting houses to the needs ofpeople with impairments, etc. The agreementformally established the principle of Canada-Québec cost sharing for the expenses of eachprogram, and also set up various planning andcoordination mechanisms involving the signingparties.

With regard to social housing as such, the 1986agreement provided for the payment of substan-tial financial assistance under the Non-ProfitHousing Program (NPHP). From the date ofimplementation of the agreement, the programincluded an “Inuit component”. In concreteterms, this meant that part of the budget enve-lope for the construction of social housing hadto be used to improve housing conditions forInuit communities in Nunavik. The most exten-sive annual construction projects for socialhousing were therefore undertaken in Nunavikunder this component of the program. Theshortage of housing in Inuit communities duringthis period led to the application of major reme-dial plans which resulted in the construction,especially during the 1980s and until the early1990s, of around 130 to 140 social housingunits each year (see Appendix 6).

The Agreement Respecting theImplementation of the JamesBay and Northern QuebecAgreement (1990)

In 1990, the Government of Canada and theMakivik Corporation entered into the AgreementRespecting the Implementation of the James Bayand Northern Quebec Agreement. Appendix Hof the agreement established a mechanism toresolve disputes between the parties concerningthe interpretation and application of the provi-sions of the agreement. Québec was not a partyto the 1990 agreement.

H O U S I N G A S S I S T A N C E S E C T I O N 2

15

Federal withdrawal (1993)In 1993, the federal government announcedunilaterally that it would no longer contributefinancially to any new long-term commitment inthe social housing sector, including in Nunavik.However, under a special agreement betweenthe CMHC and the SHQ, around 130 socialhousing units were added to the region’s resi-dential housing stock during 1994 and 1995. Inthe following years, in other words between1995 and 1999, apart from some isolatedbuilding campaigns and in particular the cons-truction of 43 units in 1999, very few socialhousing units were built in Nunavik, despite thefact that demographic trends in the Inuitcommunities had generated an enormous needfor new housing.

The Framework AgreementConcerning the Kativik Region(1998)

On October 21, 1998 the Government ofQuébec and the Kativik Regional Governmentsigned the Framework Agreement Concerningthe Kativik Region, which included a chapter onthe management of social housing in Nunavik.The chapter brought about an important change

in Québec-Nunavik relations in the field ofhousing. Under the framework agreement, theGovernment of Québec undertook, in particular,to:• recognize and promote the establishment of a

social housing management structure thatwould reflect the prevailing situation in theregion;

• redirect all amounts recovered as rent owingfrom social housing tenants towards the devel-opment of social housing.

Under the agreement, the Government ofQuébec agreed in principle to the possible imple-mentation of a program to sell some socialhousing units to the families living in them.

The approach that led to the signing of theframework agreement is based on allocatingincreased responsibility to the Nunavik authoritiesand encouraging them to take charge of mattersthat concern them directly, including themanagement of housing programs applicable tothe region, and the management of the socialhousing stock.

Development of

SOCIAL HOUSING STOCK (1981-2001)

3

Overview

Housing quality

Housing unit size

Construction costs

Rental rates scale

Operating deficit

Nun

avik

SECT ION

18

Lastly, the climaterequires the use of

higher-qualitymaterials and

insulation.

S O C I A L H O U S I N G S T O C K

Development of

SOCIAL HOUSING STOCK (1981-2001)

3

Over 90% of all existing residential units inNunavik are social housing. There are also severalhundred so-called “institutional” housing units,in other words units belonging to variousgovernment departments and agencies and toregional bodies (health services, education,police, Kativik Regional Government, etc.) tohouse employees living in Nunavik. Very fewdwellings are owned by their occupants (a fewdozen in all); most of these people were able toacquire their properties thanks to the homeownership programs implemented in the mid-1990s. There is no private rental market in theregion.

Overview

Since it first began to exercise full jurisdictionover housing in Nunavik in the early 1980s, theQuébec government, via the SHQ, hasconstructed or renovated over 1,700 socialhousing units in the region’s 14 villages.Between 1981 and 2001, over $300 M of publicfunding (Canada-Québec) was allocated to fundthese initiatives; on average, the Canadian

government provided 60% of the funding andthe Québec government 40%. The socialhousing stock in Nunavik now numbers 1,800housing units (see Appendix 6).

Housing quality

Since the early 1980s, the SHQ, in collaborationwith various other government departments andagencies at the provincial and federal levels, hasbeen able to establish effective standards for resi-dential construction in the Far North. Althoughsocial housing in Nunavik is comprised of rela-tively unpretentious dwellings, as required by theagreements that led to the construction projects,in recent years the buildings themselves havemet high technological standards. They areespecially energy-efficient, and are well suited tothe harsh climatic conditions of the Arctic envi-ronment (cold, strong wind, permafrost, etc.).

However, the older buildings (those constructedin the early 1980s) will require major work in theimmediate future to ensure that the existingstock will continue to be preserved.

S O C I A L H O U S I N G S T O C K S E C T I O N 3

19

Housing unit sizeSocial housing units in Nunavik are generallylarger (in terms of number of bedrooms) thanlow-rental housing units (LRH units) in southernQuébec. Almost all social housing units in theNorth have at least three bedrooms, and somehave four, five or even six. This is because Inuitfamilies are generally larger than families else-where in Québec, and because many socialhousing units in Nunavik are home to more thanone family.

However, the housing units built in Nunavik since1999 have only two bedrooms. This newapproach to housing unit size is intended tomeet the growing needs of single-parent familiesand young couples with one or two children.

Construction costs

Low-rental housing costs far more to constructnorth of the 55th parallel than it does insouthern Québec. For example, in the mid-1990s, a family-type housing unit was estimatedto cost an average of $66,603 in Québec,compared with an average of $196,823 for thesame unit in Nunavik.

Several factors explain this substantial gap, ofwhich the three most important are the climate,the remote location and the type of residentialhousing provided. Because of the permafrost,no excavation is possible, and the constructionseason is short. The remote location generatesadditional costs for the packing of materials andtheir transportation by boat or plane, in additionto the travel and accommodation costs of theconstruction workers. Families in Nunavik aregenerally larger than in southern Québec, andthere is no tradition of multi-family complexes,meaning that most of the buildings are single-family dwellings. Lastly, the climate requires theuse of higher-quality materials and insulation.

However, in recent years, technological progressin the area of construction materials and theconstruction of housing units with fewerbedrooms have brought down social housingconstruction costs in Nunavik quite considerably.

Rental rates scale

As mentioned above, in 1981 the Québecgovernment, through the SHQ, acquired owner-ship of just over 800 social housing units inNunavik following the transfer of responsibility bythe federal government. Almost none of thehousing units transferred met national standardsin terms of build quality, health, safety and “live-ability” in the broadest sense. When the SHQtook responsibility for the units, it would havebeen hard to justify the application of rental ratesbased on a proportion of the income of eachtenant household, since most of the units didnot even have running water or partition walls(between bedrooms, kitchen, bathroom, etc.).

The first rental scale for social housing units,applied from 1982, prescribed low rents basedon both the size of the unit (number ofbedrooms) and the socio-economic status of thehouseholder (worker or income security recip-ient). From the outset, the rental scale adminis-trative criteria provided for the rents to increaseat the same rate asthe consumer priceindex for theprevious year. Sincethen, the rental rateson the scale havenot been reviewedor readjusted tobring them into linewith the cost ofconstructing andoperating the build-ings and improvingthe quality of thedwellings.

20

S O C I A L H O U S I N G S T O C K

In September 2000, when the AgreementRespecting the Implementation of the James Bayand Northern Québec Agreement related toHousing in Nunavik was signed ($100 M overfive years for the construction of roughly 300social housing units in Nunavik), the parties tothe agreement (the Canadian and Québecgovernments, the Kativik Regional Government,the Kativik Municipal Housing Bureau and theMakivik Corporation) recognized that the timehad come to review the region’s social housingrental scale. The agreement provided for thegradual application of a revised scale over anumber of years, so as not to affect the dispos-able income of the tenant households toodramatically.

However, a significant increase in rental rates willbe required, although the high cost of livingnorth of the 55th parallel will have to be takeninto account. The revision of the rental scale willbe a key element in the effectiveness of the newset of measures (home ownership assistance,development of a private rental housing market,etc.) proposed to improve the living conditions ofthe Inuit communities and meet their housingneeds.

Operating deficitOn December 31, 2000, there were 1,778 socialhousing units in Nunavik. In addition, the SHQsubsidized 58 units administered by the KativikRegional Government, the Inuulitsivik healthcentre and the Tulattavik health centre. In 2000,the operating deficit for the units, taken as awhole, was more than $49 M. The deficit wassubsidized by allocating a monthly amount of$2,317 per housing unit.

A new

RESPONSIBLE PARTNERSHIP

4

The reform of governmentinterventions

Introduction of three new programs

Creation of the Kativik MunicipalHousing Bureau (KMHB)

The Agreement Respecting theImplementation of the James Bay andNorthern Québec Agreement related to Housing in Nunavik

Nun

avik

SECT ION

22

The AgreementRespecting the

Implementation of theJBNQA related to

Housing in Nunavikshould allow for the

construction ofaround 300 social

housing units.

A N E W P A R T N E R S H I P

A new

PARTNERSHIP

4

The reform of governmentinterventionsIn 1998, the Québec government, through theSHQ, undertook a major reform of its housinginitiatives in Nunavik. The reform coincided withthe signature of the Framework AgreementConcerning the Kativik Region in October of thatyear, and focused on two issues: the diversifica-tion of programs and an in-depth review ofsocial housing management practices. The mainfocus of the reform was greater responsibility forInuit authorities. It was made possible thanks toclose cooperation between Québec governmentrepresentatives and representatives of local andregional organizations, in particular the KativikRegional Government (KRG).

Introduction of three newprogramsAs part of the reform diversification component,three new programs were introduced in 1999,namely the Home Ownership Program for Resi-dents of the Kativik Region, the Purchase-Reno-vation Program for Households in the KativikRegion and the Residential Renovation Programfor Owner-Occupiers in the Kativik Region. Allthree programs are financed in their entirety bythe Québec government.

Québec’s Home Ownership Program replaced theRemote Housing Program (RHP), which wasfunded jointly by the Canada and Québecgovernments in 1995 and 1997. The new

A N E W P A R T N E R S H I P S E C T I O N 4

23

Québec program offers financial assistance ofbetween $70,000 and $125,000, depending onthe household’s income. To be eligible for assis-tance under the program, a household must livein a social housing unit. The program also offersan amount equal to 75% of municipal servicecosts (up to an annual maximum of $7,000 perunit), for a period of 15 years.

Clearly, then, the Home Ownership Program isintended mainly for households with a reason-able financial capacity. Its purpose is to releasesocial housing units so that they can then beoffered to Inuit households in need.

The Purchase-Renovation Program is intended forhouseholds, housing cooperatives and non-profitorganizations. It offers assistance equal to 50%of qualifying costs (up to a maximum of $50,000per unit), and also pays 75% of municipal servicecosts (up to an annual maximum of $7,000 perunit), for a 10-year period.

The Home Renovation Program is intended forNunavik’s handful of owner-occupiers. It offersfinancial assistance equal to 50% of admissiblerenovation costs, and pays 75% of municipalservice costs for a five-year period, up to anannual maximum of $7,000 per home.

So far, approximately 60 Nunavik householdshave obtained assistance under these threeprograms. The Kativik Regional Government(KRG) is responsible for program administration.The decision to hand over administrative respon-sibility was made as part of the new Québec-Nunavik housing partnership.

Representatives of the Québec and Nunavikauthorities have agreed to a review of adminis-trative standards (eligibility conditions, level ofgovernment assistance, etc.) for the HomeOwnership, Purchase-Renovation and HomeRenovation programs, with the aim of increasingthe number of households able to take advan-tage of the benefits available.

Creation of the KativikMunicipal Housing Bureau(KMHB)

The reform and the new partnership also extendto the management of Nunavik’s social housingstock. After consulting the KRG, which adopteda resolution in that respect, the SHQ entrusted allsocial housing management activities in Nunavik(rent collection, building maintenance, localmanpower training in housing-related fields, etc.)to a new regional body known as the KativikMunicipal Housing Bureau (KMHB). The KMHBwas created under a provision of the 1998Framework Agreement Concerning the KativikRegion. Appendix 8 provides additional informa-tion on its role, responsibilities and fields of inter-vention.

The Agreement Respecting theImplementation of the JamesBay and Northern QuébecAgreement related to Housingin Nunavik

In 1999, the Makivik Corporation took advan-tage of the dispute settlement mechanism in the1990 Agreement Respecting the Implementationof the JBNQA to convince and force the federalgovernment to recommit financially to the devel-

24

A N E W P A R T N E R S H I P

opment of Nunavik’s social housing stock, inaccordance with its obligations under the JBNQA.The Québec government (Secrétariat aux Affairesautochtones, Société d’habitation du Québec,Secrétariat aux Affaires intergouvernementalescanadiennes and Ministère de la Justice) activelysupported the Corporation, taking part in a longprocess of talks and negotiations with the federalgovernment. The process eventually led to thesignature of the Agreement Respecting theImplementation of the James Bay and NorthernQuébec Agreement related to Housing inNunavik on September 20, 2000.

This historic multilateral agreement was signedby the Québec government, the Canadiangovernment and the Inuit authorities (MakivikCorporation, Kativik Regional Government andKativik Municipal Housing Bureau). It was thefirst long-term agreement concerning the devel-opment of Nunavik’s social housing stock, and itsprimary aim was to ease the demand for socialhousing in the region.

The Agreement provides that the governmentsof Québec and Canada will contribute financiallyto a five-year social housing stock developmentplan for Nunavik ($100 M). The federal contri-bution will cover capital costs at a rate of $10 Mper year for five years, while Québec’s contribu-tion will pay the operating deficit for the unitsconstructed, for a 20-year period. In all, theAgreement should allow for the construction ofaround 300 social housing units.

In addition to maximizing the number of unitsbuilt every year, the Agreement is also designedto optimize the local economic spin-offs fromresidential development work. Accordingly, aregional authority (the Makivik Corporation) hasbeen entrusted with responsibility for construc-tion work. Once the units have been built, theCorporation will transfer ownership to the KativikMunicipal Housing Bureau (KMHB), which willthen manage them.

In the first two years of this renewable five-yearAgreement, the experience and skills of theMakivik Corporation and the KMHB have provedto be both advantageous and complementary.The Makivik Corporation, in its role as promoter-constructor, has been able to use a mainly Inuitworkforce for Agreement-related work.

As a result, in the period 2000-2004, manyhouseholds in all 14 Northern villages will experi-ence a net improvement in their housing condi-tions. Pressure on the need and demand forsocial housing in Nunavik should be easedconsiderably, and local economic spin-offs shouldbe generated

Housing needs in Nunavik:

CHALLENGES ANDPROSPECTS

5

Housing needs in Nunavik

The challenges

Future prospects

Nun

avik

SECT ION

26

At least 80 units peryear will need to beadded to Nunavik’s

housing stock.

C H A L L E N G E S A N D P R O S P E C T S

Housing needs in Nunavik:

CHALLENGES ANDPROSPECTS

5

Application of the five-year agreement to buildsocial housing units, combined with the Québecgovernment’s Home Ownership and Home Reno-vation programs, will certainly help satisfyhousing needs in Nunavik in the coming years.However, because of the demographic profile ofthe Inuit communities, government interventionssuch as these will not be sufficient, alone, tomeet all the region’s housing needs. The chal-lenges will therefore be considerable. Despitethis, the Québec government believes there areexcellent prospects for better housing conditionsin Nunavik.

Housing needs in Nunavik

In 1992, the SHQ, with the cooperation of localand regional authorities, carried out an in-depthstudy of housing needs in Nunavik’s Inuitcommunities (overcrowding and undercrowdingof housing units, demographic trends, realneeds, etc.). The study’s data and findings arestill relevant even today in assessing currenthousing needs in the communities.

According to the study, there were 1,450housing units in existence on January 1, 1992,63 of which were dilapidated and neededreplacing. In the period 1992 to 1995 inclusively,the SHQ built 288 new units, for a net additionto stock of 225 units: 89 units in 1992, 71 in1993, 79 in 1994 and 49 in 1995. By January 1,1997, the stock had grown to 1,673 socialhousing units, which was clearly not enough tomeet the population’s needs, given the demo-graphic trends.

Based on the assumption that each family shouldhave its own home, and given that 371 unitsacross the 14 villages were already overcrowdedat the time (26% of the 1992 stock), the studyconcluded that slightly over 80 new housingunits per year would be required for the period1992 to 2002. If this requirement had beenmet, the social housing stock would have grownto 1,882 units in 1997 – 208 more than theactual figure.

C H A L L E N G E S A N D P R O S P E C T S S E C T I O N 5

27

Thus, including the units built as part of theRemote Housing Program (RHP) in 1995 and1997 (16 units in 1997 alone), by 1998 theNunavik housing stock was short of between132 and 192 homes. The construction of 43new units in 1999 and 60 more in 2000 hashelped make up the shortage to some extent,but the demand continues to grow every year.

It is estimated that, to meet the housing needsgenerated in the coming years by demographictrends in the Inuit communities, at least 80 unitsper year will need to be added to Nunavik’shousing stock.

The challenges

In the coming years, the main challenges will beto increase the supply of housing units, diversifyfinancial assistance programs and residentialproducts, and preserve the existing stock. Effortsto optimize local economic spin-offs from resi-dential stock development work and to promotethe training and use of Inuit labour on buildingsites must be continued, as must efforts toconsolidate the new Québec-Nunavik housingpartnership.

Future prospectsContinuation of social housingconstruction work

The application of the five-year agreementsigned in September 2000 by the governmentsof Québec and Canada and the Inuit authoritieswill allow for the construction of approximately60 social housing units per year. The agreementincludes a commitment by the parties to nego-tiate a renewal in 2004.

Diversification of residential productsadapted to Northern conditions

In 2001, the SHQ, as part of its drive to offeraffordable residential products to Inuit commu-nity households, implemented a new PrivateEnterprise-Nunavik-SHQ partnership for thedevelopment and application of a new housingconcept adapted to Northern conditions. Theinitiative was part of the SHQ’s DevelopmentSupport Program for Québec’s Housing Industry,and involved a private company that produces ahighly affordable, revolutionary new folding andtransportable home concept.

To seal the partnership, the SHQ, along with theKuujjuamiut Corporation Inc. (a social andeconomic development promotion agency inNunavik) and Maisons Laprise Inc., recentlysigned the Agreement Concerning an Experi-mental and Demonstration Project for the“Habitaflex” Housing Concept Adapted toNorthern Conditions. The SHQ and Kuujjuamiutwill each fund half the project, while MaisonsLaprise Inc. will pay all research and developmentcosts for adaptation of the product to Nunavikconditions. The prototype “Habitaflex” productwas installed in Kuujjuaq in November 2001.

If the results are as anticipated, they will open upsome brand new prospects in Nunavik, in termsof both home ownership and the developmentof a private or cooperative rental home market.

28

C H A L L E N G E S A N D P R O S P E C T S

After assessing the experimental and demonstra-tion project, Maisons Laprise Inc. and theKuujjuamiut Corporation Inc. agreed to sign acontract granting the Corporation exclusive distri-bution rights for “Habitaflex” in Nunavik andother Arctic regions. Eventually, if the demand issufficient, a production plant could be opened inNunavik, generating significant economic spin-offs and creating local jobs. The new partnershipis expected to produce approximately 20 newhomes per year, in addition to those built by theMakivik Corporation as part of the five-yearagreement signed in September 2000 (60 homesper year).

Extended home ownership

Several new cooperative and advisory mecha-nisms have been implemented as part of thenew Québec-Nunavik housing partnership. TheQuébec and Nunavik representatives on thevarious committees and task forces have agreedthat discussions with a view to extending homeownership should take priority. The “Habitaflex”concept is likely to encourage interest in homeownership among Nunavik’s moderate incomehouseholds. The product’s affordability will leadto an adjustment or reduction in the amount of

government financial assistance paid to house-holds wishing to purchase homes. As a result,more households will be able to obtain support.

In addition, it is important to remember thatevery household purchasing a home releases asocial housing unit that can then be offered to ahousehold in need.

Implementation of an experimentalfinancial support program for thedevelopment of a private rental housingsector

The isolation and remote locations of theNorthern villages, combined with high construc-tion and operating costs, have traditionallyprevented the development of a private rentalhousing market in Nunavik. However, represen-tatives of Nunavik authorities have suggestedthat some individuals and companies in theregion would be willing to try to develop such amarket if sufficient financial assistance were tobe available. Several potential options arecurrently being examined. The new shared cost(Canada-Québec) affordable housing programshould facilitate matters.

The experimental program will help ease thedemand for social housing units.

C H A L L E N G E S A N D P R O S P E C T S S E C T I O N 5

29

The joint (Canada-Québec) affordablehousing program

The 2001 conferences of housing ministersconcentrated mainly on the preparation andforthcoming implementation of a joint (federal-provincial-territorial) affordable housing program.The federal government has said it is willing toinject $680 M over four years to help fund theprogram.

It has already been agreed that a significantportion of the program budget will be used toimprove housing conditions for households inremote areas, including Nunavik.

Introduction of a major repair program

As mentioned earlier, Nunavik’s oldest socialhousing units, built in the early 1980s, nowrequire major repairs. The Nunavik authoritiesand the SHQ have agreed on the need to protectthe region’s existing built stock, and the SHQplans to include a major repair program in its2002-2007 plan of action. An annual amountof around $5 M would be sufficient to repair 50social housing units with deficiencies affectingthe quality of life of the households living inthem.

Consolidation of the new Québec-Nunavik housing partnership

Preparation and administration of the residentialinitiatives proposed for the coming years will onlybe possible with the cooperation of local andregional organizations in Nunavik.

In particular, theKativik RegionalGovernment (KRG)and the KativikMunicipal HousingBureau (KMHB) willbe involved exten-sively in planningnew programs,administering existing programs and managingNunavik’s social housing stock. The MakivikCorporation will continue in its role of promoter-constructor under the five-year agreement signedin September 2000 that will lead to the cons-truction of approximately 300 social housingunits. Other organizations, especially those inthe cooperative movement, will also be invited totake part in a joint process designed to ensurethat the principal housing needs of Nunavik’sInuit communities are met as effectively aspossible. Thus, the Québec government clearlyintends to maximize the benefits of the newQuébec-Nunavik housing partnership.

BY WAY OF A CONCLUSION:

GOVERNMENT PRIORITIESAND HOUSING PROGRAMSIN NUNAVIK

Nun

avik

32

B Y W A Y O F A C O N C L U S I O N

On November 5, 1999, Pita Aatami, President ofthe Makivik Corporation, along with GuyChevrette, Québec’s Minister for Native Affairs,Joseph Facal, Minister of Canadian Intergovern-mental Affairs and Robert Nault, Canada’sMinister of Indian and Northern Affairs, signed aPolitical Accord Between the Nunavik Party, theQuébec and Canada Government for Considera-tion of a Form of Government in Nunavikthrough the Creation of a Nunavik Commission.

The signatories to the Political Accord agreedthat the future Nunavik government should takeover some of the jurisdiction of the Québec andCanadian governments, and that the projectshould meet the needs of all Nunavik residents inaddition to the Inuit. The parties also agreedthat such a government should have appropriatefinancial resources (block funding) and some kindof autonomy.

The Nunavik Commission held public hearings inall Nunavik communities, and met with most ofthe local and regional organizations. It thenbroadened its consultations to include neigh-bouring communities and nations, and heldnumerous consultations with representatives ofthe Québec, Canadian, Nunavut and Greenlandgovernments.

Last March, the Commission submitted a reportentitled Let Us Share: Mapping the Road Towarda Government for Nunavik. The report makes ahost of recommendations aimed at achieving acompletely new form of self-government forNunavik based on the creation of public (non-ethnic) institutions open to all the region’s resi-dents. The Québec and Canadian governmentsare currently completing their internal consulta-tions and study of the Commission’s report, andthe Inuit party is following suit.

If a consensus can be obtained, the NunavikCommission’s recommendations will trigger somesignificant changes to the architecture of govern-ment policies in the region and to the methodsused to administer, deliver and fund the manygovernment programs applicable in Nunavik. Ashas been the case for other sectors of govern-ment activity (transportation, public security, etc.),Québec’s approach to the transfer of responsi-bility for housing to the Nunavik authorities willbe along the same lines as that proposed by theNunavik Commission.

APPENDICES

Nun

avik

A P P E N D I X 1

35

A P P E N D I X 2

36

Population of Nunavik*

By Age Group and by Village

0-14 15-24 25-34 35-44 45-54 55-64 65+ Total

Akulivik 165 85 55 55 25 15 5 410

Aupaluk 70 25 35 15 5 10 0 160

Inukjuak 490 210 210 125 65 50 40 1,185

Ivujivik 120 50 50 30 15 10 5 275

Kangiqsualujjuaq 290 100 125 55 40 25 15 650

Kangiqsujuaq 210 95 85 45 25 15 10 480

Kangirsuk 155 80 70 25 25 20 20 395

Kuujjuaq 640 285 315 240 135 60 40 1,725

Kuujjuarapik 210 80 110 80 50 35 10 580

Puvirnituq 470 240 195 115 90 35 25 1,170

Quaqtaq 120 45 30 25 15 10 5 260

Salluit 390 190 150 75 55 45 15 925

Tasiujaq 80 40 30 15 5 5 5 190

Umiujaq 130 55 55 25 30 10 5 315

Nunavik 3,535 1,585 1,520 925 580 355 215 8,715

(*) Source: Makivik Corporation, Nunavik at a Glance (1999), p. 4

NOTE: The figures by age group have been rounded off to + 5.

These figures were published in1999 using data from the 1996 Statistics Canada census.

A P P E N D I X 3

37

The Kativik Regional Government (KRG)

5 Jurisdiction

Under section 351 of the Kativik Act, the ARK’sjurisdiction extends to the following areas: localadministration, transportation and communica-tions, regional police, and manpower trainingand use. The KRG also has the competenciesdelegated to it by the region’s municipalities.

6 Administrative structure

The KRG has roughly 250 employees, most(70%) of whom are from Nunavik. In recentyears Inuit staff members have begun to takeover the senior management positions formerlyheld by people from Southern Québec.

7 Budget

The KRG’s annual operating budget was slightlyover $1.3 M when the organization was firstcreated in 1978. It is now approximately $54 M.

8 KRG’s Activities in thehousing sector

The KRG was one of the signatories to theAgreement Respecting the Implementation ofthe James Bay and Northern Québec Agreementrelated to Housing in Nunavik. Under article 5of the Agreement, the KRG appoints a represen-tative to the Nunavik Housing Committee (NHC),which is composed of equal numbers of repre-sentatives from the Canadian and Québecgovernments. The Agreement also stipulatesthat the KRG must be consulted during Nunavik’ssocial housing rent reviews.

1 Constitution

The Kativik Regional Government (KRG) waslegally constituted in 1978 under the Actrespecting Northern villages and the KativikRegional Government (R.S.Q., c. V-6.1),commonly known as the Kativik Act.

2 Territory

The KRG has jurisdiction over the entire portionof Québec located north of the 55th parallel.

3 Powers

The KRG’s powers are exercised by a councilknown as the Council of the Kativik RegionalGovernment.

4 Composition of the KRGCouncil

Under section 251 of the Kativik Act, each of thearea’s 14 Northern villages is represented on theKRG Council by a regional councillor appointedby and from among the members of its muni-cipal council (usually the mayor of the munici-pality). The composition of the KRG Council issimilar in many respects to that of SouthernQuébec’s regional county municipalities.

The current KRG chairman is JOHNNY N.ADAMS, who is also a municipal councillor inKuujjuaq.

38

A P P E N D I X 4

39

The Makivik Corporation

Makivik has also created other subsidiaries in thefishery, tourism, Arctic mapping and petroleumproduct distribution sectors among others. Atthe same time, it is active in the fields of culture,leisure (ice rink construction), international busi-ness and politics.

4 The Corporation’s structure

The Makivik Corporation’s activities are governedby a board of directors composed of memberselected by Nunavik’s 14 Inuit communities.Board members are elected for a term of threeyears. The Corporation’s structure also includes aSenior Council and a Management Council(Executive).

The Makivik Corporation’s current president isPITA AATAMI.

5 The Corporation’s activitiesin the housing sector

It was through an initiative of the Makivik Corpo-ration that multilateral (Canada-Québec-Inuit)negotiations were able to culminate in the signa-ture of the Agreement Respecting the Implemen-tation of the James Bay and Northern QuébecAgreement related to Housing in Nunavik.Makivik is responsible for carrying out the five-year social housing construction plan providedfor in the Agreement (some 300 new socialhousing units will be built in Nunavik under theAgreement). Under article 5 of the Agreement,the Makivik Corporation appoints a representa-tive to sit on the Nunavik Housing Committee(NHC), which is composed of equal numbers ofrepresentatives from the Canadian and Québecgovernments.

1 Creation of the MakivikCorporation

The Makivik Corporation is a non-profit organi-zation with no capital stock and no monetarygain for its members. It was constituted by anAct adopted by the Québec government in 1978(R.S.Q., Chapter 91). Makivik is a private ethniccorporation whose only members are the Inuitbeneficiaries of the James Bay and NorthernQuébec Agreement (JBNQA).

2 The Corporation’s role

The Act constituting the Makivik Corporationdefines its goals as follows:a) To receive, administer, use and invest the

compensation payable to the Inuit underthe JBNQA;

b) To fight poverty and promote the well-being and education of the Inuit people;

c) To develop the Inuit communities and per-fect their methods;

d) To exercise the other powers granted to itunder other special laws or under theJBNQA;

e) To encourage, promote and protect theway of life, values and traditions of theInuit of Nunavik.

3 The Corporation’s powers

The Makivik Corporation can use part of itscompensation payments to create financial hold-ings or venture capital corporations, amongother things to help with the creation, financingand development of goods and service compa-nies owned by Inuit people. It was with the goalof fostering the economic development ofNunavik that the Makivik Corporation began tocreate its subsidiaries, including Air Inuit, anairline serving the 14 Nunavik Villages, and FirstAir, another airline purchased in 1990. First Air isa major air transportation company in NorthernCanada, and now employs more than 1,400people.

40

A P P E N D I X 5

The Cooperative Movement in the InuitCommunities

“In terms of economic self-sufficiency, the creation in most communities of cooperatives belonging toand managed by the Inuit has been one of their greatest successes. The members of these localenterprises do not simply share revenues, they also decide on management policies and methods.Indeed, the cooperatives are veritable classrooms where the Inuit can obtain experience in businessadministration, retail sales, accounting and marketing.

If the Inuit communities have embraced the cooperative movement with such enthusiasm, it is due tothe parallel between the movement’s underlying principle and the Inuit tradition of pooling labour andskills and then sharing the product of their efforts for the good of the group”. 1 (Free translationfrom the French)

The Fédération des coopératives du Nouveau-Québec (FCNQ) was first constituted in 1967, eightyears before the JBNQA was ratified. However, the FCNQ is not yet active in the housing sector.

1 DIAND, The Inuit, 1986, p. 59-60

A P P E N D I X 6

41

Social Housing Stock Development in Nunavik (1980-2001)*

(Total: 1,802 dwelling units)

* These interventions includedboth the replacement ofdiapidated dwellings and theconstruction of new socialhousing units.

1980 1981 1982 1983 1984 1985 1986 1987 1988 1989 1990 1991 1992 1993 1994 1995 1999 2000 2001

13 36 76 126 128 148 166 130 144 139 143 131 86 71 79 49 43 60 34

200

150

100

50

0

� Year

� Number of units

42

A P P E N D I X 7

Scale of Social Housing Rents: 2001

Amount of the Householder’s Contribution for Housing Servicesin Inuit Communities

FROM JULY 1, 2001

CATEGORIES HOUSEHOLDERS HOUSEHOLDERSSecurity Recipients Others

CATEGORY “C”Renovated unit

2 bedrooms $198 $2243 bedrooms $199 $2414 bedrooms $202 $282

CATEGORY “D”Unit built since 1980

1 bedroom $115 $1512 bedrooms $167 $2172 bedrooms (J2) $198 $2553 bedrooms $201 $2944 bedrooms $205 $3335 bedrooms $208 $3676 bedrooms $215 $391

A P P E N D I X 8

43

The Kativik Municipal Housing Bureau (KMHB)

housing tenants. The other two are appointedby the Minister responsible for applying the Actrespecting the Société d’habitation du Québec,after consultation with and from among thesocial and economic groups most representativeof the community. KMHB board membersreceive no remuneration, but are reimbursed forany costs incurred in carrying out their duties.

4 The KMHB’s funding

The KMHB’s operating budget is part of theoperating deficit for Nunavik’s social housingstock. In its first year of existence (fiscal year2000-2001), the Bureau’s budget was approxi-mately $55 M. The Nunavik social housing stockoperating deficit is funded by the governmentsof Canada (60%) and Québec (40%). Thus,unlike their Southern Québec counterparts,which must pay 10% of their MHB socialhousing operating deficits, the Nunavik munici-palities have no such obligation.

5 A long-term agreement forthe construction of socialhousing

The KMHB is one of the signatories of theAgreement Respecting the Implementation ofthe James Bay and Northern Québec Agreementrelated to Housing in Nunavik. Under article 5of the Agreement, the KMBH appoints a repre-sentative to sit on the Nunavik HousingCommittee (NHC), which is composed of equalnumbers of representatives from the Canadianand Québec governments.

The KMHB’s current president is MAGGIEEMUDLUK, Councillor of Kangiqsualujjuaq.

1 Creation of the KativikMunicipal Housing Bureau(KMHB)

The KMHB obtained its letters patent on January21, 1999, under the Act respecting the Sociétéd’habitation du Québec (R.S.Q., s. S-8, section57), following a resolution adopted by the boardof directors of the Kativik Regional Government(KRG).

The creation of the KMHB was the culminationof extensive talks between the Nunavik and SHQauthorities. It was part of the Québec govern-ment’s drive to decentralize its housing activitiesin the Kativik region by transferring the manage-ment of its social housing stock in Nunavik to anindependent organization. The KMHB’s incep-tion has brought the decision-making powercloser to users and facilitated contacts with theregion’s municipalities and social housing tenants.

2 The KMHB’s role

In addition to maintaining and repairing socialhousing units, the KMHB has been entrustedwith all rent and arrears collection activities andfor local manpower training in areas related tohousing. In short, it is entirely responsible formanaging Nunavik’s social housing stock ofapproximately 1,800 units.

3 The KMHB’s structure

As is the case for Québec’s other municipalhousing bureaus (MHBs), the KMHB’s activitiesare governed by a board of directors composedof seven elected or appointed representatives.The KRG appoints three members, and two areelected by and from among Nunavik’s social

44

A P P E N D I X 8

Kativik Municipal Housing Bureau

Organisational Chart

MaterialManagement

Technician

MaintenanceCo-ordinator

BuildingTechnicians

Legal AdvisorAssistantDirectorof ClientServices

GeneralAccountant

AccountingClerks

ComputerTechnician

BuildingInspector

Director ofBuilding Maintenance

Director ofClient Services Director of Finance

Tenants of Social Housing

Société d’habitation du Québec

Board of Directorsof the Kativik Municipal

Housing Bureau

Kativik RegionalGovernment

Director General

Executive Secretary

Receptionist /Secretary

45

Selective bibliography

1. Nunavik Commission (Report). “Mapping the Road toward a Government for Nunavik”.March 2001.

2. Department of Indian Affairs and Northern Development. “The Inuit”, Ottawa: 1986

3. Quebec Studies Program, McGill University. “Reflections... on the James Bay and NorthernQuebec Agreement”. Texts produced to mark the 25th anniversary of the JBNQA. Montreal:2001. Trilingual.

4. Makivik Corporation. “The 25th Anniversary of the James Bay and Northern QuébecAgreement”. 2000.

5. Société d’habitation du Québec. Wood Frame Construction in Extreme climatic conditions.Québec: 1999. 27 p. (English-French).

6. Société d’habitation du Qubéec. Habitat in Québec for the period 1996-2001. Québec:2001. 80 pages.

Housing in the 1950’s: Matchbox type

Housing in the 1960’s to 1980’s

Housing from the 1980’sto present day

Wastewater being removed by a tanker truck equipped with pumps

In Québec’s Great North, the housing sector alone accounts for between 90% and 95% of village infrastructures

CHANGES IN HOUSINGi n N u n a v i k

Washbasin, no faucets orrunning water pit toilet (bag)

Sink, no faucets or runningwater

OIL ANNEXE

OIL TANK

CHANGES IN HOUSINGi n N u n a v i k

Habitaflex, a new housing concept experimented by Maisons Laprise Inc. from Montmagny (November 2001)

Pre-manufactured houses constructed by Diane Fortin Inc. from Matane (June 1999)