Debates of October 28, 2025 (day 69)

Yeah, thank you, Mr. Speaker. I too would like to stand up and recognize the former Speaker of the House here, Mr. Frederick Blake. It's good to see you here today. And also to your delegation that's all here, I want to say mahsi for being here and thank you. Also, I want to recognize Mr. Kurt Wainman as well and Todd that's here as well. And welcome everyone to the House. Mahsi.

Thank you, Member from Tu Nedhe-Wiilideh. Recognition of visitors in the gallery. Member from Monfwi.

Thank you, Mr. Speaker. Mr. Speaker, I would like to acknowledge and recognize Darrell Chocolate. He is originally from Gameti. And I've known Darrell for many years when he attended Chief Jimmy Bruneau School in Edzo. So I would like to recognize him. And I would like to recognize and welcome Sonny Blake and Diane Archie was there, and then Cynthia Cardinal in the gallery. Thank you.

Thank you, Member from Monfwi. Recognition of visitors in the gallery.

If we missed anyone in the gallery today, welcome to your chambers. Thanks to you, we get the pleasure of representing the people of Northwest Territories for four years. Now we're actually halfway through. So we have two years left to representing the people of the Northwest Territories. Thank you very much for giving us this honour. I hope you are enjoying the proceedings. It's always nice to have people in the gallery.

Thank you, Mr. Speaker. Mr. Speaker, your Standing Committee on Social Development is pleased to provide its Report on Housing as a Human Right and commends it to the House.

Mr. Speaker, I move, seconded by the Member for Mackenzie Delta, that the remainder of Committee Report 29-20(1), Standing Committee on Social Development's Report on Housing as a Human Right, be deemed read and printed in Hansard in its entirety. Thank you, Mr. Speaker.

ED: the link for Committee Report 29-20(1), Standing Committee on Social Development's Report on Housing as a Human Right can be found here.

Thank you, Member from Monfwi. Member from Monfwi.

Mr. Speaker, I move, seconded by the Member from Range Lake that Committee Report 29-20(1), Standing Committee on Social Development's Report on Housing as a Human Right, be received by the Assembly and referred to the Committee of the Whole. Thank you, Mr. Speaker.

Thank you, Member from Monfwi. To the motion.

Question.

Question has been called. All those in favour? All those opposed? Abstained? Motion carried.

---Carried

Member from Monfwi.

Executive summary: Mr. Speaker, the Standing Committee on Social Development presents this Report on committee Project: Housing as a Human Right, to advise the Government of the Northwest Territories on how to implement the right to adequate housing through updates to territorial laws and policies. The report outlines committee's study, public engagement, findings, and positions on key legislative and policy updates needed to advance housing rights in the Northwest Territories (NWT). The report puts forward 44 recommendations to guide the GNWT's response which will strengthen housing policy, improve access to adequate housing across the northern housing continuum, and ensure that all residents can live in dignity and security.

Committee's study was guided by the question: What does a right to adequate housing mean for law and policies in the Northwest Territories? The project involved literature and legislative reviews, policy analysis, and engagement with Indigenous governments, non-profit organizations, housing researchers, landlords, developers, and individuals with lived experience. Committee received 20 written submissions and presentations between August 2024 and March 2025.

Witnesses and subject matter experts describe the housing situation in the Northwest Territories as dire and urgent. Nearly 1 in 4 households in the Northwest Territories live in unsuitable, inadequate, or unaffordable dwellings and cannot afford alternative housing. Nearly half of homes are unsuitable or require major repairs. Close to 10 percent of households are informally sheltering someone experiencing homelessness. Outside Yellowknife, 73 percent of tenant households rely on public housing, with waitlists representing an additional 8 percent of households. These realities reflect systemic barriers to accessing safe, adequate, culturally appropriate, and climate-resilient housing.

Committee's study found that the housing crisis is rooted in historical and ongoing policy failures. Public housing has long dominated the northern housing landscape, with limited alternatives available. Federal funding for public housing has declined since the 1990s, and the Northwest Territories Housing Corporation (now Housing NWT) has shifted its role from direct delivery to partnership facilitation. This transition has opened opportunities for Indigenous governments and community organizations to lead housing initiatives, though outcomes vary across regions.

Thank you, Mr. Speaker. Mr. Speaker, I request that my committee colleague, Member for Range Lake, read the next sections of the report. Thank you.

Thank you, Member from Monfwi. Member from Range Lake.

Thank you, Mr. Speaker. Thank you, Madam Chair.

Committee examined the distinction between market and non-market communities. Most NWT communities lack a functioning housing market, meaning residents have few options beyond public housing. In these communities, the conventional housing continuum promoted by the Canada Mortgage and Housing Corporation does not reflect local realities. Committee supports the development of a northern housing continuum that includes transitional housing, supportive housing, community-led housing, and subsidized homeownership.

Committee also explored the principle of housing as a human right under international law, including the Universal Declaration of Human Rights and the International Covenant on Economic, Social and Cultural Rights. The right to adequate housing includes security of tenure, affordability, habitability, access to services, location, accessibility, and cultural adequacy. Committee heard that realizing this right requires governments to establish mechanisms that make housing accessible, enforceable, and responsive to the needs of marginalized populations.

Committee reviewed the federal National Housing Strategy Act, which recognizes housing as a human right and outlines mechanisms such as the Federal Housing Advocate and National Housing Council. Witnesses emphasized the need for territorial legislation to mirror these mechanisms and ensure accountability. Committee also examined the eviction practices, access to justice, culturally appropriate advocacy, and the need for legal supports for tenants.

Throughout the study, committee identified gaps in the northern housing continuum and emphasized the need to invest in all housing types. Committee supports a shift towards affordable homeownership, particularly in non-market communities, and highlights innovative models such as the Northern Transitional Homeownership Model. Examples from communities like Fort Good Hope demonstrate how community-led housing initiatives can produce homes, create jobs, and foster economic development.

Committee reviewed Housing NWT's policies and programs, including homeownership initiatives, appeal processes, tenant eligibility, repair programs, and funding mechanisms. Committee applied a rights-based lens to assess whether these policies support the progressive realization of housing rights. Committee also examined barriers to construction, land access, and trades capacity, and emphasized the importance of wraparound supports for tenants and shelter users.

The housing crisis in the NWT continues to affect thousands of residents across the territory. Committee urges the GNWT to take timely and coordinated action to implement the 44 recommendations outlined in this report. These recommendations reflect the collective input of Indigenous governments, housing experts, service providers, and residents, and offer a clear path forward to strengthen housing policy and delivery. By committing the necessary resources and working collaboratively across departments and with communities, the GNWT can make meaningful progress toward realizing the right to adequate housing.

The Standing Committee on Social Development recommends the Government of the Northwest Territories formally and officially recognize housing as a human right. Specifically, the Standing Committee on Social Development recommends the Government of the Northwest Territories urgently create new legislation that recognizes the right to adequate housing as it is articulated in international human rights law in the United Nations Convention on Economic, Social and Cultural Rights and in the United Nations Declaration on the Rights of Indigenous Peoples. This new legislation should incorporate accountability mechanisms found in Canada's National Housing Strategy Act, including developing and maintaining a robust housing strategy to progressively realize housing as a human right in the Northwest Territories.

The Standing Committee on Social Development recommends the Government of the Northwest Territories publicly recognize the colonial legacies that have contributed to Indigenous homelessness in the Northwest Territories. To address these legacies, the Government of the Northwest Territories should use the principles outlined in the Northwest Territories' United Nations Declaration on the Rights of Indigenous Peoples Implementation Act to guide policy changes in the housing sector and increase local government decision-making to facilitate the co-development of new housing policies by council leaders and Indigenous Governments.

Thank you, Member from Range Lake. Member from the Sahtu.

Thank you, Mr. Speaker, and thanks to the Member from Range Lake. To the report.

The Standing Committee on Social Development recommends the Government of the Northwest Territories create the Office of the Territorial Housing Advocate and appoint a Territorial Housing Advocate. The Territorial Housing Advocate and its Office should operate as an independent, nonpartisan entity, modeled after the Federal Housing Advocate. Its objective should be to advance meaningful action towards Addressing the inadequate housing and homelessness in the Northwest Territories. The Office should be created within the 20th Assembly. An implementation plan to create this Office should be developed and tabled in the House within one year.

The Standing Committee on Social Development recommends the Government of the Northwest Territories assign the Territorial Housing Advocate and its Office to investigate how human rights and advocacy organizations can pursue legal remedies for violations of the right to housing through legal or policy frameworks. This research study should identify existing legal barriers to housing-related claims, consider amendments to the Northwest Territories' Human Rights Act or other relevant statutes, and establish clear mechanisms for litigation and legal recourse. The research study should be done in consultation with affected communities and legal experts and presented to the Legislative Assembly for consideration within the first year of the Office's creation.

The Standing Committee on Social Development recommends the Government of the Northwest Territories review and amend the Northwest Territories' Residential Tenancies Act to include a proportionality framework that considers reasonable alternatives and ensures that evictions are used as a last resort only in serious situations, such as those where criminal activities are present.

The Standing Committee on Social Development recommends that the Government of the Northwest Territories review the Evictions from Public Housing Policy to incorporate consideration of multi-generational living arrangements prior to eviction decisions.

The Standing Committee on Social Development recommends that the Government of the Northwest Territories increase the number of supportive living and transitional housing options for individuals who are evicted from public housing. Steps and timelines to achieve this should be included in the Government's costed action plan as referenced in Recommendation 22.

The Standing Committee on Social Development recommends the Government of the Northwest Territories amend the Legal Aid Act and its regulations to include matters arising under the Residential Tenancies Act, as well as other housing-related legal matters, such as evictions, that may fall outside of the Residential Tenancies Act, as subjects to which legal aid services may be provided. The Government of the Northwest Territories should utilize the upcoming new federal Blueprint for a Renters' Bill of Rights to inform the development of effective legal aid services for tenants that reduce the power imbalance. To provide effective legal services, the Government of the Northwest Territories should allocate funding to the Legal Aid program to support services provided for housing-related matters.

The Standing Committee on Social Development recommends the Government of the Northwest Territories review and ensure that Housing NWT's policies are culturally appropriate, including that any related applications be available in Indigenous languages. The Government should also implement policies to train Government Service Officers on culturally appropriate advocacy related to housing issues.

Thank you, Mr. Speaker. I shall pass this on to my colleague from the Deh Cho. Mahsi.

Thank you, Member from the Sahtu. Member from the Deh Cho.

Further to recommendations,

The Standing Committee on Social Development recommends the Government of the Northwest Territories present a legislative proposal by mid-2026 to significantly modernize the Northwest Territories' Residential Tenancies Act. The amendments should be centered on the right to adequate housing and provide clear guidance to tenants and landlords on their rights and responsibilities.

The Standing Committee on Social Development recommends the Government of the Northwest Territories conduct an operational review of the Northwest Territories Rental Office, including whether it is accessible for tenants and landlords, whether it is adequately staffed, and whether access to justice through the Northwest Territories Legal Aid Commission is integrated within the roles and responsibilities of the Rental Office.

The Standing Committee on Social Development recommends that the Government of the Northwest Territories work with Housing Northwest Territories and the Canada Mortgage and Housing Corporation to develop and endorse a draft definition of the housing continuum that reflects the northern context. This preliminary northern housing definition should incorporate Indigenous understandings of housing and home and support a reframing of housing policy and funding models to align with the lived realities of northern communities. Committee encourages the use of the alternative framework developed through the “At Home in the North” project led by Dr. Julia Christensen. It is further recommended that Housing Northwest Territories publicly release this draft definition by the end of 2026 to support ongoing dialogue and policy development.

The Standing Committee on Social Development recommends the Government of the Northwest Territories reassess its role in providing homeownership programs in communities that are initiating their own locally led housing programs. Where there are locally led initiatives, the Government should redirect its investments to empower Indigenous Government-led or other locally led homeownership programs that offer cultural and community specific supports.

The Standing Committee on Social Development recommends that the Government of the Northwest Territories reinstate the 1980's Homeownership Assistance Program, with modern adjustments to reflect current needs. Committee further recommends the Government implement the “northern transitional homeownership model “which was presented to Committee.

The Standing Committee on Social Development recommends the Government of the Northwest Territories review municipal funding policies administered by the Department of Municipal and Community Affairs to ensure they do not create barriers to community-directed housing initiatives, including staff housing, and to commit to a timeline for when this review will be complete.

The Standing Committee on Social Development recommends the Government of the Northwest Territories review the current housing policy environment to identify and implement new or expanded incentives that support the development of affordable market housing.

The Standing Committee on Social Development recommends the Government of the Northwest Territories expedite the developmental of a Territorial Building Code to encourage the development of safe and appropriate housing and to dismantle barriers to building in the north and to publicly commit to the timelines necessary for this work to be brought forward.

The Standing Committee on Social Development recommends the Government of the Northwest Territories develop and implement a territorial trades strategy for housing-related trades that offers training and certification programs for local residents and builds long-term capacity. This program should establish an agency of tradespeople to ensure access to services across the territory and should subsidize contractors travelling to remote communities.

Thank you, Mr. Speaker. I request that my committee colleague, the Member for Yellowknife North, read the next section. Thank you.

Thank you, Member from Deh Cho. Member from Yellowknife North.

Thank you, Mr. Speaker, and to my colleague.

The Standing Committee on Social Development recommends the Government of the Northwest Territories sign Memorandums of Understanding with Indigenous Governments who have settled land claims with land use policies to encourage housing development.

The Standing Committee on Social Development recommends that the Government of the Northwest Territories develop policies that improve coordination between Housing NWT and other GNWT departments to remove barriers to housing development. This includes urgently increasing the supply of land suitable for residential construction, simplifying land use planning and approval processes, and embedding climate adaptation into land development strategies.

The Standing Committee on Social Development recommends the Government of the Northwest Territories provide adequate funding and investment in the development of transitional housing and in strengthening the shelter and safe home system in small communities of the Northwest Territories to relieve the burden on the Yellowknife shelter system. As the first step to achieve this, the Government of the Northwest Territories should develop a costed action plan, outlining specific action steps each with an assigned budget and timeline, and table this in the House within the 20th Legislative Assembly.

The Standing Committee on Social Development recommends the Government of the Northwest Territories create a 24-hour shelter in the city of Yellowknife, either through an existing or new program, to ensure wraparound supports are accessible for those utilizing homelessness shelter spaces to move along the housing continuum.

The Standing Committee on Social Development recommends the Government of the Northwest Territories create 24-hour shelters in communities across the territory, prioritized according to the urgency of shelter needs in the communities, to ensure wraparound supports are accessible for those utilizing homelessness shelter spaces to move along the housing continuum.

The Standing Committee on Social Development recommends the Government of the Northwest Territories review and implement strategies to assist non-profit and charitable organizations with contracts to provide social housing or Housing First, with the rise of insurance costs, specifically for their rental housing programs.

The Standing Committee on Social Development recommends the Government of the Northwest Territories work with the federal government to ensure that funding mechanisms, such as those established under the Urban, Rural, and Northern Indigenous Housing Strategy, provide direct and equitable funding to Indigenous Governments and organizations, including those with both settled and unsettled land claims. This approach is necessary to address and reduce funding disparities between regions and to support equitable access to housing resources for all Indigenous peoples across the Northwest Territories.

The Standing Committee on Social Development recommends the Government of the Northwest Territories collaborate with the Yukon Government and the Government of Nunavut to develop a unified pan territorial advocacy plan. This plan should be used to advocate to the Government of Canada to ensure that federal policies and funding are better aligned with Northern realities and Indigenous perspectives in light of federal strategies (i.e. Urban, Rural and Northern Indigenous Housing Strategy) and funding that continues to fall short in reaching the housing needs of northerners.

The Standing Committee on Social Development recommends that the Government of the Northwest Territories incorporate the recommendations contained in this report into its proposed 3-Year Housing Plan. Committee expects the Housing Plan to clearly demonstrate how each recommendation is being addressed, including the actions to be taken, anticipated outcomes, and timelines for implementation.

Thank you, Mr. Speaker. I request that my committee colleague, the Member for Range Lake, read the next section.

Thank you, Member from Yellowknife North. Member from Range Lake.

Thank you, Mr. Speaker. Thank you, colleagues.

The Standing Committee on Social Development recommends the Government of the Northwest Territories, through Housing Northwest Territories, enhance transparency and reporting of distinction-based funding allocations to ensure that the needs of each community and the overall advancement of housing in the territory are being met.

The Standing Committee on Social Development recommends the Government of the Northwest Territories provide more transparency surrounding the specific age and condition of housing units allowable under the Homeownership Initiative Policy, and publicly publish the age of public housing units that have been deemed eligible for the Homeownership Initiative Program.

The Standing Committee on Social Development recommends the Government of the Northwest Territories reform the housing appeals process to support the progressive realization of the right to housing and ensure more inclusive, transparent, and efficient oversight. This necessarily includes:

That all appeals under Public Housing and Homeownership Programs bypass the District Director and proceed directly to the Housing Appeal Committee to streamline the process and reduce administrative burden and barriers;

The Standing Committee on Social Development recommends the Government of the Northwest Territories review the Public Housing Tenant Eligibility Policy to ensure that it provides those ineligible for public housing a clear and time-bound response to how they could have their eligibility reinstated.

The Standing Committee on Social Development recommends that the Government of the Northwest Territories revise the Community Housing Plan policy to include capacity-building supports tailored to community needs. This should include additional human, financial, and technical resources to support implementation of housing plans.

The Standing Committee on Social Development recommends the Government of the Northwest Territories conduct an audit of the Small Community Homelessness Fund to determine and report on its overall policy performance.

The Standing Committee on Social Development recommends the Government of the Northwest Territories revise and adjust the eligible income thresholds for co-payment for the Senior Home Repair Program, the Seniors Aging in Place Program, and the Home Repair Program based on inflation and cost of living increases, and review every 3 years thereafter.

The Standing Committee on Social Development recommends the Government of the Northwest Territories review and revise the eligible properties for the Senior Home Repair Program, the Seniors Aging in Place Program, the Home Repair Program, and the Preventative Maintenance Program, specifically expanding the eligibility coverage of each policy to include primary residences outside municipal boundaries.

The Standing Committee on Social Development recommends that the Government of the Northwest Territories review the Disposal of Residential Property Policy to ensure that Housing Northwest Territories' assets located on treaty territory, and subject to disposal under the policy, provide Indigenous governments with the first right of refusal.

Thank you, Mr. Speaker. I request that further reading of this report be handed over to our committee chair, the Member from Monfwi. Thank you.

Thank you, Member from Range Lake. Member from Monfwi.

Thank you, Mr. Speaker. Mr. Speaker,

The Standing Committee on Social Development recommends the Government of the Northwest Territories review the Community Housing Support Initiative program to ensure it is reaching its goals and full effectiveness. Specifically, Committee recommends interviewing current and past recipients on the feasibility of supporting housing affordability and adequacy beyond the duration of their contribution agreement in order to evaluate the initiative's long-term impact on housing. It is recommended that the Government of the Northwest Territories publish the results of the program review and share it with the Standing Committee on Social Development.

The Standing Committee on Social Development recommends the Government of the Northwest Territories review all Housing NWT financial policies, including policies respecting loans and grants, to ensure treaty obligations are upheld. Specifically, to ensure that policies safeguard against unfairly including treaty-related income such as dividend payments, or gifts, into an applicant's income and thus disproportionately impacting their eligibility or level of assistance. The Standing Committee on Social Development recommends the Government of the Northwest Territories make any necessary policy changes to achieve this.

The Standing Committee on Social Development recommends the Government of the Northwest Territories review and revise the Collections Policy to ensure that the policy prioritizes the well-being and dignity of individuals and their right to adequate housing. Collection action should not jeopardize an individual's ability to secure and maintain adequate housing. Further, the Collections Policy should establish clear accountability mechanisms to ensure that collections comply with human rights standards. In its review, the Government of the Northwest Territories should engage individuals and communities experiencing housing challenges.

The Standing Committee on Social Development recommends the Government of the Northwest Territories respond to this report within 120 days. Thank you.

Thank you, Member from Monfwi. Member from Monfwi.

Thank you. Thank you, Mr. Speaker. Mr. Speaker, I move, seconded by the Member for Range Lake, that the remainder of the Committee Report 29-20(1), Standing Committee on Social Development's Report on Housing as a Human Right, be deemed read and printed in Hansard in its entirety. Thank you, Mr. Speaker.

Thank you, Member from Monfwi. To the motion.

Question.

Question has been called. All those in favour? Opposed? Abstentions? Motion carried, except for some of the commentary in the peanut gallery.

---Carried

The Standing Committee on Social Development (Committee) acknowledges the historical and present challenges that many people in the Northwest Territories have faced with all aspects related to secure, safe and reliable housing. Committee is committed to advocating for the establishment of mechanisms that uphold the right to adequate housing in the NWT. Committee affirms that all residents of the territory should have access to safe, secure and appropriate housing as a fundamental human right.

Committee greatly appreciates the recommendations and observations made by all witnesses as part of its study to examine how the right to adequate housing can be fully realized and upheld in the NWT. Committee strongly agrees that there needs to be significant strides in ensuring adequate and affordable housing for residents in the territory, particularly for those in small communities.

Committee acknowledges that some sections of this report, particularly those sharing lived experiences and testimony, may be distressing or triggering for some readers. Readers are encouraged to take care when engaging with this material. If you need support, please consider accessing local mental health services, community organizations, or other trusted resources.

Committee received direction in the House on February 28, 2024, to undertake a study on the implementation of adequate housing as a fundamental human right within the laws of the NWT and policies of the Government of the Northwest Territories (GNWT) through Motion 20 - 20(1). Committee’s project intended to study the right to adequate housing, and how its principles and theories can be applied to the NWT through engagement with subject matter experts, as well as Committee’s own independent research.

Throughout this study, Committee aimed to address the following question: What does a right to adequate housing mean for law and policies in the Northwest Territories? Ultimately, Committee believes that that everyone in the NWT is equally entitled to live in dignity and in a safe, suitable and secure home. Committee’s belief in this inherent right, and the desire to positively impact and improve the lives of residents in the NWT drove all aspects of the research and the recommendations made. This study is also aligned with one of the priorities of the 20th Legislative Assembly: the suitability, accessibility and affordability of housing.

The project scope of work involved a combination of desk-based research, a literature and legislative review, a policy and program review, feedback and learnings through presentations from Indigenous governments, key experts and stakeholders, and those with lived experiences.

To respond to the research question in greater detail, Committee undertook the following activities:

Engaged Indigenous governments and communities, stakeholders and subject matter experts to inform how the right to housing can be applied at a local level, and examined how principles of human rights law can be applied to the territorial context;

Completed a literature and legislative review to understand how jurisdictions have considered, applied and treated housing as a human right in law and policy, and considered how these principles and learnings could be applied to the territorial context;

Examined existing housing programs in the NWT and other jurisdictions, focusing on how they address homelessness, and improve housing affordability, accessibility and suitability;

Developed and proposed recommendations to the GNWT on ways to recognize and apply the right to housing in alignment with international human rights principles and obligations. These include those outlined in the Universal Declaration of Human Rights, the International Covenant on Economic, Social and Cultural Rights and the United Nations Declaration on the Rights of Indigenous Peoples

Between August 2024 to March 2025, Committee engaged the public to inform Committee’s project. Committee sent twenty-five (25) targeted engagement letters to Indigenous governments, researchers, non-profit and charitable organizations, landlords, and developers. Committee also proposed a generalized public request to landlords and developers on the implementation of the right to housing in the Territory. Committee received written submissions and presentations from:

Kristel Derkowski, Northern Housing Researcher

Salvation Army - Yellowknife

National Right to Housing Network

Federal Housing Advocate, Canadian Human Rights Commission

Dr. Sarah Buhler, Associate Professor, University of Saskatchewan, College of Law

YWCA Northwest Territories

Habitat for Humanity Northwest Territories

Gwich’in Tribal Council

Janine Harvey and Lisa Alikamik, Inuit Housing Researchers

Borealis Developments Inc.

Outpost North

Canadian Centre for Housing Rights

Midwest Property Management

Northview Residential REIT

Dr. Julia Christensen, Associate Professor, Queens University

Sherman Cavanaugh

Rashmi Patel, Private Landlord in Fort Smith

Kevin Sheedy

Yellowknives Dene First Nation, Housing Division

Yellowknife Women’s Society

The submissions and presentations are included in Appendix A & B.

Committee extends its appreciation to all individuals and organizations who contributed feedback at public meetings and in written submissions. This informed input and support was essential in shaping meaningful recommendations to recognize and uphold the right to housing in the NWT.

Committee categorized the content of the public comments received into eight (8) themes:

Historical Context of Housing in the Northwest Territories

Present Day Conditions of Housing in the Northwest Territories

Defining Housing as a Human Right

Principle of Housing as a Human Right in Law

Eviction and the Right to Housing

Updates to the Residential Tenancies Act

Filling Gaps in the Northern Housing Continuum

Housing Northwest Territories Policy Review

Each theme explored in Committee’s study is presented in a dedicated section in this report. These sections include a summary of what Committee heard and conclude with specific recommendations related to that theme. To support the discussion of each theme and its recommendations, this report begins with several sections that provide the context and definitions that guided Committee’s deliberations.

History and Legacy of Housing Policy and Programs in the NWT

There has never been a point in time where the Northwest Territories has not had a housing crisis. We have never had enough housing in the NWT ever since the federal government got involved with delivering housing in the North.

Kristel Derkowski, Northern Housing Researcher

On August 12, 2024, the Standing Committee on Social Development received a presentation from Northern housing researcher Kristel Derkowski, whose work traces the evolution of housing policy in the Northwest Territories. Her research provides a detailed account of the historical development of housing programs in the territory and identifies key factors that have shaped the current housing landscape. On February 6, 2025, Dr. Julia Christensen presented her research on the impacts of housing policy in the North, including findings from the “At Home in the North” project, which proposes an alternative framework to the Canada Mortgage and Housing Corporation’s housing continuum.

Together, these presentations offered critical context for understanding the persistent housing challenges in the Northwest Territories and informed Committee’s recommendations to support the progressive realization of the right to housing. Derkowski emphasized that the territory’s housing system has long been in a state of crisis, shaped by four interrelated factors: social, economic, geographic, and political (see figure 1, next page). These complex and compounding influences have contributed to both historical and ongoing barriers to adequate housing across the territory. In her research, Derkowski (2024) described how, in the 1950s, the discovery of resource extraction potential in the territory led to increased investment in infrastructure and the federal expansion of social welfare to the territory. The federal government began delivering public housing in the territory in 1959. Public housing was initially offered at a very low cost as part of a federal centralization scheme to impose a southern-based economic and community model in the north. The federal government was the public housing provider for only ten years before devolving administration to the territorial government in 1969. The territorial government, via the Northwest Territories Housing Corporation (NWTHC), took responsibility for public housing in 1974. Derkowski emphasized in her research that public housing rates in the territory has always been exceptionally high compared to provinces, with few alternative providers available. As a result, the role of NWTHC is “disproportionally significant in the landscape of NWT housing.” NWTHC delivered thousands of new units over the next two decades but continued to report that quantities of housing in the territory remained deeply insufficient compared to the need for housing. Committee learned that throughout the late 1900s, the territorial government made attempts to stimulate housing markets by raising rental fees for public housing in selected communities. These communities continued to have a heavy reliance on public housing, while the quantity, quality, and cost of these units remained problematic both for the NWTHC and for its clients. Dr. Christensen voiced to Committee that by 1990, it was reported that if housing delivery were to continue at the same rate, and if the population were to remain stable, it would take 30 years for the territorial government to meet the existing demand. Housing delivery did not, however, continue at the same rate, but rather sharply declined.

Committee emphasizes that federal contributions to the operations budget of the NWTHC began to decline in 1996, with an aim to reach $0 by the year 2038. With federal contributions in decline and further sources of operational funding uncertain, the NWTHC ceased adding new units to its stock of public housing. In her presentation to Committee, Derkowski highlighted the NWT’s extreme dependency on federal funding by stating:

The sustainable provision of northern housing has also been marred by consistently inadequate funding – which is the fundamental cause of the persistent northern housing crisis we face today.

Prior to the federal government’s freeze on operational funding for housing across Canada in 1996, the quantity of public housing in the territory equated to 50-60% of the total social housing need. Following the freeze, the quantity of housing equated to 49.9% of demand in 2004, and dropped further to 40.8% by 2019. Dr. Christensen highlighted that the NWT has some of highest rates of “Core Housing Need” in the country. Core Housing Need refers to households that are unable to access housing because they lack the funds necessary to acquire housing that is affordable and adequate. These rates have been increasing since 2000 and by 2019, nearly 1 in 4 households (or 25% of households) in the NWT live in unsuitable, inadequate, or unaffordable dwellings and cannot afford alternative housing. This is in stark contrast to the national rate of 12percent.

Dr. Christensen emphasized that rates of Core Housing Need vary significantly across regions. For example, Yellowknife and the South Slave regions report considerably lower rates compared to all other regions. As Derkowski noted, a longstanding deficit in operational funding for social housing has led to a shortage of public housing stock. This shortage triggered stricter regulations around public housing provision and fostered a punitive policy environment for clients. With rising demand and limited supply, vacant units became increasingly difficult to find. Long waitlists emerged, making the process highly competitive, even for those who met eligibility criteria under the points-rated system. For households that did not align with policy standards, or “rate high enough,” public housing became virtually inaccessible.

Declining federal funding and limited unit availability also prompted strict cost recovery measures, including aggressive enforcement of arrears and evictions. Derkowski argued that these punitive policies deepen vulnerabilities and fail to offer pathways out of institutionalization. Since the number of public housing units effectively froze after 1996, and private or alternative providers did not fill the gap, housing need in the territory has continued to grow.

Through its study, Committee has noticed that the responsibility for housing in the NWT has, within very recent years, become diversified. The federal government has begun to release capital funding for the construction of affordable housing directly to Indigenous Governments. Also, the NWTHC re-branded to Housing NWT and has strategically redefined its own mandate: from directly aiming to meet the housing need in the territory, towards acting as a partner to Indigenous and community-based housing providers. Thus, new opportunities are being created for community-based organizations to take an active, empowered role in supplementing, improving, diversifying, and fundamentally altering the landscape of northern housing.

The outcomes for this shift are yet to be seen, and they may also vary significantly between communities and between regions. However, Committee has heard of some promising examples which are shared in later sections of this report.

In concluding this section, Committee underscores the words of Derkowski: “There has always been a gap in reaching housing needs.” This historical context is essential to understanding the persistent and widespread housing challenges facing the Northwest Territories today. The legacy of underinvestment, policy fragmentation, and limited alternatives to public housing has contributed to the current crisis. Addressing these issues requires a systemic approach that includes coordinated interdepartmental action, integrated service delivery, and long-term planning. These efforts must be responsive to the diverse realities of communities across the territory. Understanding these differences is critical to developing effective housing strategies, particularly in distinguishing between market and non-market communities.

Several witnesses noted to Committee the stark differences in the housing landscape for market versus non-market communities. A “non-market community” is one that does not have a private housing market or a resell market. The reality, as presented by

Dr. Christensen, is that the vast majority of NWT communities are considered

non-market (29 out of 33 communities). Non-market communities are characterized by unsuitable and inadequate homes and high rates of unemployment, which are often intertwined. Across non-market communities, the average rate of households in unsuitable or inadequate condition is more than five times the national average.

Outpost, a real estate investment company operating in Yellowknife, informed Committee that of the total number of homes in the territory, approximately 70% are deemed as market homes. In contrast, 92% of housing in the City of Yellowknife is considered market housing which showcases a key difference for the capital region.

Committee believes it is important to highlight differences in the housing market, as it is key to conceptualizing the housing continuum in small communities across the NWT. The housing continuum, a phrase coined by the Canadian Mortgage and Housing Corporation (CMHC), is the range of options from homelessness to market housing (see Figure 2).

The housing continuum is different in non-market communities compared to larger regional centres in the territory. Due to economic circumstances in many communities across the territory, the housing options captured in CMHC’s housing continuum would not be available without some type of subsidization. In most non-market communities, market housing is not part of the continuum and there often isn’t an option outside of public housing. In her research, Derkowski visualized a present-day housing continuum for most non-market communities in the NWT. Figure 3, below highlights the present-day housing continuum for non-market communities. Committee underscores the extreme shortage of housing options in non-market communities and the urgent need for targeted strategies to expand the housing continuum.

In many cases, individuals and their families face a limited set of options: homelessness, public housing, or inherited home ownership as a best-case scenario. This gap highlights the importance of developing more diverse and accessible housing solutions tailored to the realities of non-market communities.

Committee aims to explore what a practical, context-specific and achievable northern housing continuum could look like, grounded in the realities of the communities across the NWT. Despite the absence of a conventional housing market in non-market communities, Derkowski created a non-market housing continuum that includes options besides public housing, which she considers achievable, including shelters, transitional housing, supportive housing, community housing, affordable rentals, and subsidized homeownership (see Figure 4). She notes in her research: “Housing providers (and funders) may need to accept the reality that the market-based model of community imposed on the North some decades ago has failed to flourish, and that the landscape of many northern communities will remain distinct from that of southern Canada, in many ways, for the foreseeable future”.

For many northerners, owning the physical structure of their home is a long-term goal. However, achieving homeownership in northern communities is complex.

The conventional housing market model used in southern Canada does not function in the same way in the North. Committee emphasizes that pathways to homeownership must exist, but they should not rely solely on market-based systems that do not reflect northern realities.

Research presented to Committee, including work by Derkowski, highlights that creating sustainable change in housing requires coordinated and long-term efforts from multiple partners. Committee agrees and believes it is essential to expand housing options, particularly in non-market communities, to address longstanding gaps as shown in Figure 4. Committee acknowledges that innovative approaches are already being pursued by Indigenous governments and Housing NWT, as discussed in the section entitled Filling the Gaps in the Northern Housing Continuum, later in this report. Committee commends these efforts and sees value in building on this progress.

Committee heard from witnesses across the non-profit, private, and public sector describing the present-day conditions of housing in the NWT. Non-profit organizations that operate shelters, Indigenous Governments and Indigenous Organizations, and housing researchers all portrayed a dire and emergency state of housing. Many residents face accessibility and cultural adequacy barriers to housing, challenges to access to safe and secure housing with adequate living standards, as well as challenges related to climate change.

Committee received key facts about the current state of housing in the Northwest Territories:

nearly 1 in 4 households (or 25% of households) in the NWT live in unsuitable, inadequate, or unaffordable dwellings and cannot afford alternative housing.

Approximately 1 in 2 homes is either unsuitable or in need of major repairs;

Almost 10% of households in the territory are informally hosting a homeless individual; and

Outside the capital city, 73% of tenant households are living in public housing, while the waitlist for public housing equates to an additional 8% of all households.

These housing realities are crucial to address to further the progressive realization of the right to housing in the NWT.

We need to all get on the same page of what housing looks like for vulnerable individuals – and that will differ from person to person.

Major Tony Brushett, Salvation Army – Yellowknife

For context, Committee wishes to express the types of homelessness and housing instability shared during engagement. The YWCA emphasized the presence of hidden homelessness in the NWT, which is particularly prominent among families. Hidden homelessness describes those who lack stable housing but are not living on the streets or in shelters. Because this type of homelessness is not visible, it is not properly enumerated or recognized. In addition, the YWCA expressed that women-led households disproportionately live in core-housing need, meaning their housing fails to meet the standards of adequacy, affordability or suitability. Violence in the home is a major driver of housing insecurity for women. Without safe alternatives, many are forced to return to unsafe living situations.

Shelter services are available in several regions across the territory, provided by a range of organizations and Committee commends these initiatives. In Yellowknife, the Salvation Army operates the Men’s Shelter, while the Yellowknife Women’s Society manages the Women’s Centre. Home Base offers a Youth Emergency Shelter. The YWCA NWT runs two domestic violence shelters: the Allison McAteer House in Yellowknife and the Sutherland House in Fort Smith.

The Inuvialuit Regional Corporation, the Gwich’in Tribal Council, and the Town of Inuvik jointly support two facilities: the Inuvik Emergency Warming Shelter and the Inuvik Homeless Shelter. In Hay River, the Hay River Committee for Persons with Disabilities operates an emergency shelter. In Fort Simpson, the Village of Fort Simpson coordinates shelter operations in collaboration with community partners, including the Łı́ı́dlı̨ı̨ Kų́ę́ First Nation.

Organizations such as the Salvation Army and the YWCA NWT described the shelter system in the NWT as deeply inadequate. As stated by the Salvation Army: “the current shelter model here in the NWT is awful,” raising concerns about the lack of dignity afforded to individuals when shelter access is limited to overnight hours, typically from 7 p.m. to 7 a.m. The Organization emphasized that shelters are not a long-term solution to housing needs. However, Committee heard that in the absence of alternative housing options, shelters serve as a vital and life-saving resource for individuals experiencing homelessness in Yellowknife.

Committee is aware of the presence of encampments in the territory and recognizes that homelessness manifests differently across communities and population groups. Committee has heard that some individuals living in encampments may feel safer than in the emergency shelter system. Barriers such as overcrowding, lack of culturally appropriate services, restrictions, and concerns about safety or privacy can discourage people from accessing shelters and shelter services.

Public and transitional housing services are available in some regions across the territory. In Yellowknife, the Salvation Army operates the Bailey House, a transitional housing initiative for homeless men. Home Base provides both a Youth Housing Program and Youth Dorms to support young people in need of stable housing.

The YWCA NWT manages Lynn’s Place, which offers transitional housing for women leaving violent relationships, as well as other supportive housing options.

The Yellowknife Women’s Society operates the Housing First program, which prioritizes immediate access to housing without requiring individuals to meet preconditions such as sobriety or readiness. This program currently supports 20 participants.

Territory-wide, Housing NWT delivers the Public Housing Program. This rental initiative provides income-based subsidies to residents in need across 31 communities.

As expressed by the Salvation Army, some participants in supportive housing programs face significant barriers to maintaining stable housing. Due to affordability challenges or reluctance from landlords to rent to individuals, participants are sometimes released from these programs and forced to return to the shelter system.

Northview Residential leases 15% of its units to public housing programs, including Housing First, the YWCA NWT, and other support organizations. Northview expressed its challenges with offering public housing. In some buildings, non-tenants are forcing entry into buildings, loitering in stairwells, damaging common areas, and breaking and entering units. Some buildings have created makeshift shelter spaces for individuals who have been removed from the shelter system. As a result of increased criminal activity, Northview had to invest significantly in security incurring a financial loss. Because of these security and property damage concerns, nearly 2% of Northview’s market units (approximately 25 units) have been deemed unrentable to market tenants.

Committee heard that housing affordability remains a critical concern across the NWT. In non-market communities, the cost to construct a modest three-bedroom home can exceed $1 million, while the resale value of that same home may be less than $200,000. This stark disparity between construction costs and market value presents a major barrier to private sector involvement and undermines the financial viability of new housing development. The lack of return on investment discourages developers from building in communities where housing need is most acute, further deepening the gap in available housing options.

Additionally, Committee learned that the cost of living in non-market communities remains high, while income opportunities are limited. As a result, many residents struggle to afford both housing and basic living expenses. Committee heard that individuals are spending 40–50% of their income on shelter, and thus, families are reliant on food banks to survive. The cost of housing in the North remains disproportionately high compared to the economic opportunities available to residents. This imbalance continues to strain the system and limit access to stable housing.

To direct its study, Committee first established a clear definition of what the right to housing is. Committee relied on the definition established through international human rights law and subsequently met with key stakeholders to help further define, learn about, and apply the right to adequate housing in the territory.

The right to adequate housing is “about the progressive realization of housing, and the right to housing that flows to the individuals, whatever their current housing situation is”, as highlighted to Committee by the National Right to Housing Network.Fundamentally, the right to housing means that everyone in the NWT is equally entitled to live in dignity and in a safe, adequate and secure home. It was relayed to Committee that having a safe, dignified place to call home is one of the most basic human needs, and that it is connected to many other human rights, including the right to education, physical and mental health, political participation, and the right to life. Committee understands that the right to housing encompasses many dimensions and dynamics and believes in the establishment of safeguards and policies that will allow for the realization of the right to housing.

Committee learned of the importance of a rights-based approach to housing and recognizes that historically, focus has been on the construction of homes. It was articulated that:

Without a rights-based approach [and] without the human rights framework, the focus on building housing becomes for the accumulation of capital [and] the accumulation of wealth. So why in that case would you not prioritize those who are the most marginalized [and] those who are most in need?

National Right to Housing Network

While Committee understands there should be important emphasis on building homes and putting “doors in ground” in the NWT, this needs to be balanced with establishing human rights-based mechanisms so that those who are most vulnerable are supported throughout the housing continuum. Committee feels it is necessary to find solutions to the systemic barriers people are facing to secure their housing – and that cannot happen without mechanisms in place to meaningfully address those barriers.

Notably, Dr. Christensen emphasized that recognizing housing as a human right requires an understanding of how housing needs vary across the lifespan. For instance, the 2018 Auditor General’s report on Child and Family Services in the NWT observes that housing plays a critical role in the removal of children from their families, securing of foster family placements, as well as in the ability of parents to regain custody of their children. Housing also affects education by impacting the recruitment and retention of teachers in small communities and providing safe and secure home learning foundations for children. It plays a vital role in food security, aging in place for elders, and ensuring safety for survivors of intimate partner violence. In considering housing as a human right, Dr. Christensen underscored that the ways in which the right is recognized will differ across the lifespan and life circumstances.

The Right to Adequate Housing under International Human Rights Law

In the history of recognizing rights – there is always a moment where we have to decide that we have to prioritize people and their dignity. There is a moment in time where folks decide to make the commitment.

National Right to Housing Network

Committee heard from a number of witnesses who explained how the right to adequate housing is recognized under both Canadian and international law. A central focus of the study is to critically assess how this right is defined in legal frameworks and how those principles can be applied at the local and territorial levels.

The right to adequate housing was recognized as part of the right to an adequate standard of living in the 1948 Universal Declaration of Human Rights and in the 1966 International Covenant on Economic, Social and Cultural Rights. The United Nations Committee on Economic, Social and Cultural Rights (CESCR) has underlined that the right to adequate housing should be seen as the “right to live somewhere in security, peace and dignity.” Seven elements of the right to adequate housing are clarified in CESCR’s General Comments No. 4 (1991):

CESCR defines these seven elements to provide guidance to governments in clearly defining the right to adequate housing. Moreover, international law recognizes that governments must implement reasonable policies and programs to ensure that everyone has access to adequate housing, as can be achieved within available resources.

In its meeting with the Federal Housing Advocate, Committee learned that governments play an essential role in upholding the right to adequate housing. This right does not imply that every individual will be directly provided with a home by the government. Rather, it requires that governments establish and prioritize mechanisms that make the right to adequate housing real and enforceable. Committee considers this distinction crucial to the purpose of its study: to advocate for systems that go beyond physical infrastructure and instead promote meaningful accountability. These systems must ensure that all residents of the NWT have ongoing access to adequate, safe and secure housing, along with wrap-around services, where appropriate, to ensure long lasting security of tenure.

Committee learned that under international human rights law, the right to adequate housing requires governments to take a range of actions beyond the physical construction of homes. These actions include, for example:

Protecting the right to adequate housing through appropriate legislation and regulation;

Implementing housing policies and programs focused on those most in need as well as on progressively ensuring access to housing for all;

Fulfilling the right to housing over time through rights-based housing strategies and programs;

Protecting affordable housing and ensure security of tenure, including protection from unreasonable rent increases; and

Ensuring that any upgrades of existing housing or new developments are administered with meaningful participation of existing residents in their design and planning, ensuring that they are able to remain in, or return to their communities, and are ensured access to adequate housing during any necessary relocation.

Committee heard that a rights-based approach to housing also requires that housing decisions, policies and investments are rooted in the meaningful engagement with affected communities, with human rights experts, advocates and civil society. Witnesses such as the National Right to Housing Network, the YWCA NWT, and the Salvation Army – Yellowknife also noted to Committee the importance of meaningful consultation with affected communities, including residents and representation from the population who are most affected by the homelessness crisis.

In September 2024, Committee heard from the Federal Housing Advocate and the National Right to Housing Network to inform its study. These presentations, along with Committee’s literature review, highlighted that both international human rights law and Canadian legislation set out a standard for how the right to housing can be achieved.

The federal National Housing Strategy Act (NHSA), which received assent in 2019, recognizes “that the right to adequate housing is a fundamental human right affirmed in international law.” It also commits Canada to further the “progressive realization” of the right to adequate housing. This principle means taking steps to progressively achieve fulfillment of the right and acknowledges that addressing housing challenges requires sustained, incremental action. This obligates Canada to allocate the “maximum available resources” towards housing, prioritize housing for those in greatest need, and create the conditions to achieve the goal of adequate housing for all.

Committee received background on Canada’s legislative approach to recognizing housing as a human right through a presentation by the National Right to Housing Network.presentation framed this development as a “story of advocacy,” highlighting the efforts of individuals and organizations who have worked to make the right to housing tangible and enforceable.

A key example presented was the charter litigation case Tanudjaja v. Canada (Attorney General).The case was brought forward by individuals who had experienced homelessness and inadequate housing, arguing that the federal and provincial governments’ failure to implement a housing strategy violated their rights under the Canadian Charter of Rights and Freedoms. However, before the case could proceed to trial, both governments filed a motion to dismiss, claiming the challenge lacked a legal foundation and had no reasonable chance of success. The Ontario Superior Court agreed, dismissing the case without a trial. The Court of Appeal upheld this decision, stating that the matter was “not a question that can be resolved by application of law, but rather it engages the accountability of the legislatures. Issues of broad economic policy and priorities are unsuited to judicial review.” Although the litigants were unsuccessful, the National Right to Housing Network highlighted that this case shows a history of advocates across the country having a “deeper hunger to see the right to housing as something that is tangible and meaningfully accessible”.

As presented to Committee by the National Right to Housing Network, the NHSA intends to provide a foundation for advancing the right to housing through practical mechanisms so that the voices of rights-holders are heard and upheld. Examples of these mechanisms include the establishment of a National Housing Strategy, a National Housing Council, a Federal Housing Advocate, and a Review Panel that holds hearings on systemic issues to submit findings and recommendations to the federal Minister of Housing, Infrastructure, and Communities.

These mechanisms are paralleled in international human rights law, as shown in Figure 5 from the National Right to Housing Network. For example, the National Housing Council is established in parallel to the United Nation’s CESCR. Similar to the CESCR, the purpose of the National Housing Council is to further rights-based housing policy and the National Housing Strategy by: 1) providing advice to the Minister, on its own initiative or at the request of the Minister, including, among other things, on the effectiveness of the National Housing Strategy; and 2) undertaking any other activity that the Minister specifies.

Committee heard from Dr. Christensen who emphasized the importance of maintaining a critical lens on the NHSA, particularly as NWT housing levels of Core Housing Need continue to fall short of the national average, despite federal commitments through the legislation:

We can call into question the real significance in the National Housing Strategy Act when funding for Northern housing continues to fall far short of where it must be to bring NWT Housing levels of Core Housing Need down to even the national average.

Dr. Julia Christensen, Queens University

Committee also examined the structural limitations of the NHSA. As noted by

Dr. Christensen, the Act lacks enforcement mechanisms and does not provide individuals or groups with a legal pathway to claim violations of their right to housing. This absence of enforceability undermines the practical impact of the legislation and raises concerns for Committee about its effectiveness in addressing systemic housing inequities in the North.

Through this study, Committee seeks to understand which mechanisms should and could be established at the territorial level. The following section outlines Committee’s recommendations to apply to right to adequate housing to the law of the NWT.

Witnesses from the National Right to Housing Network, the Canadian Centre for Housing Rights and the Federal Housing Advocate urged Committee to recommend that the GNWT create their own legislation, like the National Housing Strategy Act, that recognizes the right to adequate housing as it is articulated in international human rights law.

Committee acknowledges the importance of formally recognizing adequate housing as a human right in the NWT. Establishing this right in legislation is a necessary step toward creating the systems and structures required to support its full realization. Committee believes that legislative recognition must be accompanied by clear mechanisms for accountability, implementation, and enforcement to ensure that all residents have access to safe, adequate, and secure housing. As noted by the National Right to Housing Network, the NWT could “be one of the first jurisdictions to make the right to housing infrastructure real”. It is important to note that although Canada has adopted federal legislation that enshrines housing as a human right, no jurisdictions have followed suit with their own legislation to ratify international law and the right to housing.

The Gwich’in Tribal Council (GTC) presented to Committee on October 23, 2024.

The GTC emphasized that legislation recognizing housing as a human right in the NWT should underscore that for Indigenous groups, housing is not just a legal right but also a cultural necessity that supports traditional ways of life, reduces poverty, and answers to community wellbeing. By creating this piece of legislation, Committee aims for the voices of Indigenous people to be upheld and that swift, impactful actions to addressing housing need will follow. The GTC highlighted to Committee that advocating for housing, and related social programs is not just a need, but a fundamental human right. As a nation, they continuously advocate for culturally appropriate housing solutions for their residents, including advocating to the Government to develop housing strategies and policies that include Gwich’in and Indigenous values and Gwich’in self determination. In establishing legislation that recognizes the right to housing in the NWT, Committee believes this piece of legislation will create clear avenues for Indigenous governments such as the GTC to advocate for their residents, and for housing programs and policies that are rooted in community wellbeing and are community-led solutions.

Committee therefore presents its first recommendation, to recognize housing rights through legislation, mirror mechanisms created through the National Housing Strategy Act, and most importantly, ratify the right to adequate housing as articulated in international human rights law. Committee heard clearly from witnesses throughout this project: the establishment and creation of legislation is the key to underpin housing as a human right, and it needs to be done urgently.

Dr. Christensen outlined critical resources within the territory that can support a

rights-based approach to housing. The critical resources she listed include an incredible community knowledge base, innovation and capacity built from generations of self-determination, a diverse array of Indigenous and non-profit community-led housing initiatives that are responsive to the cultural and contextual needs of northern communities, HNWT with strong leadership and a desire to promote homemaking for all northerns, and strong leadership and vision from Indigenous Governments and Indigenous Organizations.

Committee believes the most important asset in the territory is Indigenous Governments and Indigenous Organizations, and there is opportunity to use the principles in the United Nations Declaration on the Rights of Indigenous Peoples (UNDRIP) to guide housing policy change, integrate Indigenous perspectives, and uphold the right to self-determination. As suggested by the GTC, the GNWT is encouraged to integrate Indigenous values into housing policy and ensure policies are aligned with national and international commitments. Many communities across the NWT are developing their own housing programs and policies, and therefore collaborating with Indigenous Governments and Indigenous Organizations is crucial to ensure culturally appropriate housing solutions.

Efforts to grapple with and dismantle the colonial history of housing in the Territory need to also be situated within the overall struggle for the recognition of Indigenous rights.

Dr. Julia Christensen, Queens University

As highlighted by Dr. Christensen, the struggle of Indigenous rights to land and sovereignty is recognized in the territory’s United Nations Declaration on the Rights of Indigenous Peoples Implementation Act (UNDRIPIA). She emphasized that affirming housing as a human right within the NWT is to recognize that it cannot be separated from the other essential dimensions of Indigenous home.

Further, the Final Report of the National Inquiry into Missing and Murdered Indigenous Women and Girls calls on all governments to ensure that equitable access to basic rights such as housing is recognized as a fundamental means of protecting Indigenous and human rights. Committee underscores the critical link between the right to adequate housing and the prevention of gender-based violence, particularly in relation to missing and murdered Indigenous women and girls. Access to safe and secure housing has been identified as a key protective factor. Survivors of domestic violence often rely on safe housing and shelter access as a means of escaping abuse and rebuilding their lives. Ensuring adequate housing is essential to advancing both public safety and human rights.

By using our resources and working closely with Indigenous governments, Committee urges the territorial government to publicly recognize the colonial legacies that have influenced housing policy and enact solutions that are guided by national and international commitments. Committee presents the following recommendation:

The NHSA lead to the creation of a Federal Housing Advocate, described as a federal watchdog who ensures that the voices of people in Canada are heard by decision makers at the highest level. Based at the Canadian Human Rights Commission, the Office of the Federal Housing Advocate is independent and non-partisan. The role of the Advocate is to hold all levels of government to account for their human rights obligations.

The NHSA stipulates that the Advocate must work on systemic housing issues.

This means that the Advocate makes recommendations to governments to improve laws, policies, and programs to uphold the right to housing and improve outcomes for people in Canada. Some aspects of this role include conducting research, reviewing systemic issues, engaging with rights holders and civil society, monitoring the housing situation in Canada and raising concerns to the federal Minister Responsible for Housing. The Advocate herself noted that she is a connector of governments – not a resource mechanism for individual complaints.

The recommendations from the Federal Housing Advocate as well as the National Right to Housing Network were clear: for the GNWT to create an independent Territorial Housing Advocate who can help realize the right to housing in the territory.

Committee believes that a Territorial Housing Advocate can help address systemic policy barriers to housing. If and when the GNWT recognizes the right to housing, having an advocate with territorial jurisdiction will drive progress. Committee believes the Territory needs a “housing watchdog”. A Territorial Housing Advocate could review policies and programs at HNWT to ensure the Government of the Northwest Territories is developing policies and programs with meaningful engagement from communities and stakeholders and is using maximum available resources for housing the most vulnerable people.

Additionally, a recommendation from Janine Harvey, a researcher in the field of housing in the north, is to establish Indigenous local housing advocate positions. She described this as an actionable solution that would assist people in dealing with lack of access to housing and support services, debt reductions, and health and safety issues. It was also brought forward to Committee the importance of involving Dene, Inuit and Métis with lived experience of being unhoused into decision-making positions related to housing and support services, program design, implementation and evaluation.

Committee believes that establishing a Territorial Housing Advocate is an important tool to uphold the right to housing. Being the first jurisdiction to create a Housing Advocate would be a unique opportunity for the Territory, and an important step forward for advocacy and holding the Government accountable for the progressive realization of the right to housing. Committee notes this important step and recommends the following:

On December 4, 2024, Committee heard from the Canadian Centre for Housing Rights, one of the leading organizations working to advance the right to adequate housing.

The organization outlined key ways in which the GNWT can use a right to housing framework for the NWT to help analyze where existing laws, policies and government approaches are currently experiencing gaps. They also urged Committee to look at how other jurisdictions, both nationally and internationally have used a right-based framework for housing and have incorporated community engagement and advocacy as well as how to address legal challenges or litigations to the right to housing.

Committee acknowledges that the current model of the NHSA does not allow for litigation or the ability for groups to make legal claims on violations to the right to housing. Notably, Committee heard from Dr. Christensen and the YWCA NWT on this matter. Dr. Christensen noted the option to enshrine the right to housing in the NWT’s Human Rights Act. This strategy would give the “legal teeth” necessary to be able to litigate against the government for failing to provide adequate resources. Furthermore, she notes that this could provide stronger advocacy behind a demand for increased funding and make it an enforceable right. Committee therefore presents this Recommendation:

Dr. Sarah Buhler of the University of Saskatchewan College of Law shared her research with Committee on evictions and the right to housing. First, she reiterated that the experience of losing one’s home is deeply tied to human dignity and human rights. She states the importance of looking at broader systemic issues when analyzing the intersections of housing as a human right and evictions, such as:

Ensuring that housing is affordable;

Ensuring that tenants have enough resources to pay for housing;

Establishing mechanisms to prevent evictions (i.e. legal aid and legal assistance); and

Working towards a society where everyone has affordable and adequate housing to meet the needs of their families and to feel secure.

Often, evictions can play out in an extremely uneven field, with tenants who are most vulnerable to eviction already facing multiple and intersecting forms of oppression. Evictions can occur formally and informally, and Dr. Buhler highlighted that the research shows that most evictions may be more informal in nature. Evictions can have an intense impact on an individual as well as the broader community and neighbourhoods, which strongly points to the need for a fair and open formal eviction system which can largely influence informal evictions.

One of the primary reasons for evictions in the NWT is due to rental arrears, even those living in public housing. Dr. Buhler states:

This means that people are struggling for different reasons to pay their rent and there are underlining issues in terms of just making it possible for people to afford their rent and have security of tenure.

Dr. Sarah Buhler, University of Saskatchewan, College of Law

Notably, the GTC highlighted that housing is a cultural necessity for its members, in that it supports their traditional ways of life, reduces poverty, and fosters community wellbeing. Thus, in contemplating the eviction framework, the GTC advocated for the inclusion of local knowledge to inform the most appropriate approaches for eviction.

The Canadian Centre for Housing Rights outlined the need for policies that promote long term stability in housing, using evictions as a last resort, and stronger protections for those facing domestic violence. In Dr. Buhler’s presentation, Committee learned about the proportionality framework to evictions in international human rights law. Under this framework, evictions should be treated as a last resort, with all reasonable alternatives considered. An eviction is only justified if:

The eviction has a legitimate objective;

There is no reasonable alternative to eviction; and

The consequences of eviction are proportionate to the objective.

Decision makers must also consider the full context of each case, which might include considerations such as the interests of any child or elders in the household, individuals with disabilities, or those requiring medical or social supports.

In her review of eviction jurisprudence in the NWT, Dr. Buhler observed that adjudicators generally do not treat eviction as a first resort. In many cases, alternatives such as payment plans are considered before proceeding with termination. However, Committee notes that there is no explicit requirement for decision-makers to apply a proportionality framework or to assess the broader circumstances of the tenant.

This absence of formal guidance can limit the consistency and fairness of eviction decisions, particularly in cases involving vulnerable individuals or complex household situations. Committee therefore recommends:

Housing NWT also has its own evictions policy for tenants in public housing. The policy outlines the legal and procedural framework for evicting tenants from public housing after a tenancy has been terminated, aiming to strike a balance between supporting tenants and ensuring fair housing allocation. Committee commends that this policy intends to emphasize tenant support, equitable housing access, and the protection of tenant rights to community safety.

However, Committee is concerned that some public housing tenants may face eviction following the passing of their elderly parents. Committee believes that multi-generational living arrangements should be considered before any eviction decisions are made. To avoid destabilizing families, the Committee recommends that the Evictions from Public Housing Policy be reviewed accordingly:

Even in a system that applies the proportionality framework, Committee recognizes that evictions, while a last resort, may be necessary in certain circumstances. Evictions inevitably impact an individual’s right to adequate housing. To mitigate these impacts, Committee emphasizes the importance of increasing the availability and accessibility of transitional housing. Doing so would ensure that those evicted still have housing options, thereby upholding their right to adequate housing and the dignity of the individual. Committee therefore recommends:

Access to Justice

Access to justice is also a crucial component to tackling evictions. Dr. Buhler made suggestions to Committee on promoting the right to adequate housing through enhanced legal assistance. Access to justice for evictions can often be contradicted as “non-complex” law, although research has shown there is no lesser form of legal need. There is often a visible (or invisible) power differential between a landlord and a tenant. It is difficult to receive access to legal help or representation for tenants across Canada, and this struggle often means that tenants do not have coverage when facing eviction. Experiences for tenants navigating the legal system are described by

Dr. Buhler as confusing and intimidating. Notably, the Legal Aid Regulations expressly excludes matters arising under the Residential Tenancies Act as services for which legal aid is provided.

Dr. Buhler highlighted the need to assess what further legal assistance could be provided to tenants facing eviction. Committee has learned of the federal Blueprint for a Renter’s Bill of Rights, which aims to build a national consensus on principles to protect renters’ rights. It includes the principles of fairness and transparency, specifically in respect of ensuring the protection and enforcement of existing tenant rights.

Committee heard about the need for culturally appropriate advocacy in housing and support services. Janine Harvey and Lisa Allikamik, Inuit housing researchers, emphasized that a commitment to decolonization and the development of culturally safe tools would benefit housing providers across the spectrum. They recommended that Dene, Inuit, and Métis individuals with lived experience of homelessness be meaningfully involved in decision-making positions related to the design, implementation, and evaluation of housing and support service programs.

Harvey and Allikamik emphasized that non-Indigenous service providers, including government agencies, must demonstrate efforts to become culturally proficient. In their research, they found that when it came to signing documents and lease agreements, there was no culturally appropriate legal or advocacy support to clarify what tenants were signing. Further, they advocated for dedicated culturally appropriate advocacy workers to support tenants and individuals experiencing homelessness with tasks such as completing applications, managing paperwork, accessing funding, and attending hearings. These supports must be delivered in culturally appropriate ways, with materials and services available in Indigenous languages.

Committee recognizes that culturally appropriate advocacy is essential to ensuring equitable access to housing and support services. Therefore, Committee recommends the following:

The YWCA NWT recommended that the principle of housing as a human right be enshrined in the NWT Human Rights Act and that it be a general rule within the NWT’s Residential Tenancies Act (RTA). Committee believes amending the RTA to align with the principles of the right to housing would support Committee’s recommendation on the establishment of a new piece of legislation on the right to adequate housing in the NWT.

A number of suggestions on improvements to the RTA were provided by Midwest Property Management and Northview. Some of these improvements include:

Including a process for emergency filing for evictions to take immediate action against those that are endangering life and health of other residents, property or safety systems;

Standardizing or modernizing the current process for rental officers when determining or evaluating contractor rates and market conditions;

Expedited hearings involving repeat offenders;

The removal of the provision for the expiration of eviction orders;

Including guidance in the RTA that allows for a landlord to remove a resident once an order is received from the Rental Officer;

Including clear guidelines for evidence submissions including timelines to ensure consistency and fairness;

Including a process to enable the ability to change locks once an eviction order is received to enforce the order; and

In terms of the responsibility for damages and the burden of repairs, it is recommended to include in the RTA a process for reimbursement relative to the evidence provided.

Midwest and Northview advised the Committee that several proposed amendments to the Residential Tenancies Act (RTA) could lead to increased operating costs, primarily due to ongoing property damage, which is often reflected in higher rental rates for tenants. To address this concern, both organizations recommended establishing a standardized process for assessing contractor rates and prevailing market conditions when evaluating evidence-based property damage. They emphasized the need for significant improvements to the RTA to streamline cost recovery procedures, including clearer provisions for contractor testimony and repair invoices. As a potential model, they referenced British Columbia’s residential tenancy legislation, which incorporates structured assessment protocols, ensures fair compensation, and helps prevent inflated claims.

Committee emphasizes that changes to the RTA must be made to align with principles of the right to adequate housing, especially consideration for the potential of the development of legislation that mirrors the NHSA. Committee believes the right to adequate housing is applicable to everybody in the territory, but that the onus should be on the Government to establish programs and mechanisms that provide supports to those facing eviction or housing insecurity. Committee therefore recommends:

We are a colonial government. And to change housing policies in the NWT, we have to fundamentally change the model.

Salvation Army – Yellowknife

It is essential to invest in all levels of the housing continuum. This is especially important for non-market communities, where there are few options for residents outside of public housing. Highlighted by Derkowski through her presentation to Committee, the housing continuum should involve stages that move someone from a state of homelessness to self-sufficiency and a better housing situation. Throughout its research, Committee has learned that investments in the housing continuum must be made in a multitude of areas including affordable and accessible social housing, approachable homeownership programs, and wrap-around supports for those experiencing homelessness.

In addition to targeted investments along the housing continuum, it is essential to support the broader foundational elements that contribute to a meaningful sense of home. Dr. Christensen emphasizes that housing must be understood in connection with key social systems such as health, child and family services, education, and justice, which collectively shape the lived experience of home. She notes that housing governance is frequently siloed from other areas of territorial and federal policy, which limits the effectiveness of housing initiatives. Reframing housing policy to integrate these systems is critical to rebuilding and sustaining a sense of home for all northerners.

On a similar note, in their presentation, the YWCA NWT recommended an acknowledgement from the GNWT on the full scope of housing insecurity in the North and that needs differ from individual to individual and community to community. Committee believes a rights-based approach to expanding the northern housing continuum should be centered around policy and program changes that are multi-faceted and target and prioritize those in greatest need.

In fact, housing policy today really privileges the Canada Mortgage Housing Corporation’s Housing Continuum.

Dr. Julia Christensen, Queen’s University

Committee maintains the strong need to expand options along the housing continuum and especially in non-market communities across the NWT. As it stands today, housing policy and the way that housing programs are funded is due to the CMHC’s conceptualization of the housing continuum. Dr. Christensen also noted to Committee that northern partners in the housing sector have often advocated that CHMC’s housing continuum cannot be universalized, and that northern housing should promote independence, safety, self-determination, and a sense of homeownership regardless of the housing type and tenure. It was made clear to Committee: “a sense of homeownership and autonomy is critical as the end goal of the northern housing continuum”, but it will need to be achieved differently from other Canadian jurisdictions.

The following sections delve deeper into some of the needed shifts, success stories, supports, and findings to filling gaps in the Northern housing continuum.

What does homeownership look like in the context of a northern community where a housing market as it exists in southern Canada doesn’t necessarily exist?

Dr. Julia Christensen, Associate Professor, Queen’s University

Committee emphasizes that it is essential that the Government work with communities on homeownership models that make sense for the non-market community context. Committee understands that homeownership is often the goal for many northerners in non-market communities. Committee believes a shift to establishing more accessible homeownership opportunities is crucial for individuals and families across the NWT, and for the future of a sustainable northern housing sector. Habitat for Humanity NWT shared the historical and existing barriers to homeownership in the NWT with Committee in a public briefing. These barriers include:

Saving for a down payment;

High purchase costs and high build costs;

High debt to income ratios making it hard to qualify for traditional bank mortgage;

Increasing interest rates;

Feeling overwhelmed with the process and requirements to own a home;

Land tenure and availability;

A lack of market communities.

In her presentation to Committee and in her research, Derkowski proposes a “Northern Transitional Homeownership Model” for northern, non-market communities (see Figure 6, next page). The model balances individual and community responsibilities. The innermost circle outlines household-level recommendations. The middle ring addresses housing provider-level actions, applicable across programs and households. The outer ring includes community-wide recommendations, requiring collaboration between Indigenous and community governments, often in partnership with regional and territorial agencies. These broader measures are essential to the sustainable implementation of community-led housing models. The approach emphasizes shared responsibility, avoiding placing the full burden of homeownership on individuals, and ensures that programs are guided by priorities that focus on both the physical homes and the support required by individual households and housing providers.

Recognizing that homeownership may need to be addressed strategically or differently in non-market communities, Committee remains strong advocates to developing innovative homeownership programs that meet the needs of residents and boost economic opportunity.

Implementing the Northern Transitional Homeownership Model

In many ways, the Gwich’in Tribal Council (GTC) is creating housing programs that emulate elements of Derkowski’s Northern Transitional Homeownership Model. For example, the Gwich’in Homeownership Program offers two avenues to homeownership: purchasing a home from the GTC, or rent-to-own, whereby the participant purchases the home within five years. The GTC provides the downpayment for a home at a forgivable loan, and the home is sold to participants at a reduced cost. Committee also learned about the GTC’s Tiny Home Project, set to open in Fall of 2025, which is designed to provide transitional housing and supports to women and children fleeing family violence.

Another example of an affordable homeownership initiative in the Northwest Territories is Habitat for Humanity. The territory’s affiliate was established in 2012, and by 2019, the organization had delivered three new homes in Yellowknife. This number grew to eight by 2020, with an additional three homes expected to be completed in 2025. Habitat for Humanity’s homeownership model requires participating households to contribute 500 volunteer hours before moving into their new home, including training programs related to homeownership. The traditional downpayment is replaced by this in-kind contribution of volunteer hours. Homeowners then enter into a mortgage agreement with Habitat for Humanity for 75% of the home’s fair market value, with monthly payments capped at no more than 30% of their gross household income.

Committee is particularly interested in positioning housing as an opportunity for economic development in northern communities. A historical example of this alignment is Fort Good Hope’s initiative in the 1970s, when the community declined further public housing units and instead proposed to the territorial government a locally administered home construction program. This shift aimed to reduce reliance on public housing and reintroduce pathways to homeownership, ultimately leading to the creation of the Homeownership Assistance Program (HAP).

HAP, operated from 1983 to 1992 and is widely recognized as a successful model which produced high-quality housing, stimulated community development and local economic activity, and restored community control over housing delivery.

In its initial phase, the program provided funding to the Dene Band Council of Fort Good Hope. Eligible residents received a housing materials package and a cash grant to cover transportation, site preparation, and electrical installation. Financial assistance was structured as a forgivable loan, with 20% forgiven annually over five years, contingent on continued residency. Upon completion, homeowners gained full ownership. HAP participants contributed “labour credits” through volunteer hours toward the construction of their homes, including hands-on construction and training in foundational building skills.

The program resulted in the creation of over 1,500 housing units, an increase of approximately 31% over the existing public housing stock. A study conducted between 1988 and 1990 identified several key benefits stemming from the program’s design and community-led delivery

Improved housing quality: homes were tailored to local needs rather than relying on southern prefabricated models.

Skill development: Residents gained construction skills, enabling them to participate in homebuilding and pursue employment in the trades, while also enhancing community capacity for maintenance and repairs.

Enhanced housing conditions: Homeowners demonstrated greater care for their properties compared to rental tenants.

Incentives for employment: Ownership also incentivized self-sufficiency, as rent-geared-to-income models could discourage employment with rising income.

Social benefits: Residents reported that homeownership contributed to increased self-respect, personal well-being, and stronger family relationships.

Community empowerment: Local control over housing delivery fostered community pride and enabled responsive, context-specific program delivery.

Overall, the program aligned with broader goals of self-governance and greater community self-sufficiency. The study concluded that Fort Good Hope’s self-management of HAP improved both the quantity and quality of housing while contributing meaningfully to community pride, independence, and self-esteem. It remains a compelling example of how local control can lead to superior program outcomes and address broader social and economic challenges.

Throughout her research, Derkowski continues to highlight the Rádeyı̨lı̨ Kǫ Housing Society and the Fort Good Hope Construction Centre as innovative examples of community-led housing initiatives, producing not only homes but also jobs in the communities. The Yamoga Land Corporation (responsible for managing the Rádeyı̨lı̨ Kǫ́, or Fort Good Hope, community’s land claims funds and resources) established the Ne’Rahten Development Ltd (NDL) Construction Crew to provide maintenance and repair services for local homeowners. The team includes a Senior Foreman and Foreman hired from within the community, an interim Construction Manager based in Yellowknife who works in Fort Good Hope on a rotational basis, and six skilled pre-apprentices who are all community members.

The NDL Construction Crew delivers emergency repairs and maintenance projects to community homeowners, and in some cases, undertakes larger projects such as full renovations. Prior to the Construction Crew’s formation, contractors had to be hired from outside Fort Good Hope. The cost to import skilled labour was substantial, as were the wait times. A 2021 article highlighted that 80% of work orders were completed by the crew in under three hours, compared with previous timelines where “residents waited months.” In addition to reducing costs and delays, hiring locally ensured that financial resources remained within the community.

Several years after establishing the Construction Crew, the community proposed the creation of a Fort Good Hope Construction Centre, where modular homes would be built year-round by the NDL Construction Crew. The project aims to simultaneously address housing inadequacy and insufficiency, high unemployment, and unstable income access. This initiative represents a significant step toward community housing resilience. As Dr. Christensen notes, the program is “supporting an economy that is in demand.” Derkowski emphasizes that these initiatives actively counteract the deep-rooted vulnerabilities imposed by top-down housing systems.

Supporting Indigenous government-led housing programs can stimulate local economies while addressing extreme housing needs in northern non-market communities. Committee believes long-term investment in such initiatives is essential. Strategies like Derkowski’s northern transitional homeownership model offer alternatives to public housing, recognizing that market-based models are not viable in non-market contexts. Reinstating or adapting programs like the 1980s HAP is a necessary step toward sustainable housing solutions.

Committee therefore presents the following three recommendations:

The HAP and the Fort Good Hope Construction Centre serve as examples of successful initiatives that have, or could, improve housing construction outcomes in the territory. However, Committee also heard about persistent barriers to building homes in the North. Meetings with landlords and developers revealed concerns about the right to housing and the challenges of northern development. The YWCA NWT recommended that the GNWT collaborate with private landlords to expand housing availability. Midwest Property Management emphasized that limited development is a key driver of the housing crisis, echoing concerns from other witnesses that without more housing options, rents will continue to rise.

In Yellowknife, market housing makes up 92% of the housing stock and supports approximately 70% of residents across the Northwest Territories. Despite its dominance, new market housing development faces significant barriers. Financing is difficult to secure, especially for speculative projects in smaller or non-traditional markets. Rising costs for building materials further challenge project viability. Market housing requires a return on investment, and long-term commitments are essential to attract capital.

Committee heard from one presenter that increasing the supply of market housing across the housing continuum can improve affordability through vacancy chains. When new units are added, residents move between housing types, freeing up non-market and public housing for those who need it most. This approach reduces pressure on government-supported housing and supports a more balanced system.

Policy changes are needed to enable market housing growth. Committee also heard that the Building Act can either support or hinder development depending on how it is applied. Access to titled land in all communities is essential to facilitate private investment. Aligning territorial policies with other jurisdictions and encouraging creative solutions will help attract developers and unlock new housing options.

Expanding affordable market housing is a practical and necessary step to address the housing crisis. It supports economic development, reduces reliance on public housing, and creates a more resilient housing system for northern communities. Taking these facts into consideration, Committee therefore recommends the following:

In her research, Derkowski identifies the increasing complexity of national building codes as one of the most significant barriers to implementing a program like the HAP in the present day. As one HNWT manager remarked to her, “there’s just no possible way that a layperson could put a house together that would stand up to the codes that are required today.”

The NWT does not have its own territorial building code and instead relies on the National Building Code of Canada, which outlines technical requirements for the design and construction of buildings. However, Derkowski notes that the prescriptive application of these national standards, developed primarily for southern, market-based communities, often fails to reflect the realities of remote northern regions. She emphasizes that the National Building Code is built on assumptions that may not be applicable in northern communities. For instance, the fire code assumes the presence of fire crews capable of timely emergency response. In communities like Fort Good Hope, however, no such services exist. Similarly, the construction methodologies and building systems prescribed by the National Building Code often assume access to established supply chains and certified training programs, which are limited or unavailable in remote areas.

These misaligned assumptions create regulatory barriers to housing development and contribute to higher construction costs, as well as ongoing challenges in operations and maintenance. Derkowski questioned the applicability and practicality of the National Building Code in the northern housing context.

Committee therefore recommends:

Committee has learned that a significant barrier to both the construction of new housing and the maintenance of existing units in the Northwest Territories is the limited capacity in local housing trades. Committee heard from witnesses about the critical importance of investing in trades training to build local capacity and strengthen the housing sector. Derkowski notes that among the obstacles to reinstating programs like the HAP is the need for certified labour to oversee or participate in construction, a difficult resource to find in many northern communities.

One witness emphasized the difficulty of maintaining housing units in the territory, where tradespeople are scarce and emergency repairs are particularly expensive. Committee learned about how the shortage of skilled tradespeople in the territory inflates construction and maintenance costs. When tradespeople must be flown into communities, the cost of travel and accommodation for that person must be built into the contract price. As Derkowski approximated, per-square-metre construction costs in Yellowknife are double those in a southern urban centre such as Edmonton. In Fort Good Hope, those costs are estimated to be twice as high again compared to Yellowknife. As a result, the cost to build a modest home in a community like Fort Good Hope can reach one million dollars.

This gap is being addressed through initiatives such as the proposed Fort Good Hope Construction Centre, which aims to build long-term capacity in the trades by creating permanent employment opportunities and connecting residents with training. Additionally, one witness recommended that the Government take a more proactive role in training local individuals and establishing a coordinated system of tradespeople, such as a cooperative, network, or agency. This system should be reliable, responsive to community needs, and supported by subsidies to offset travel costs to remote areas.

Committee recognizes the urgent need to address the shortage of skilled tradespeople in the territory and affirms that increasing the availability of skilled workers within communities is essential to improving housing development, maintenance, and affordability.

Therefore, Committee recommends the following:

A recurring issue raised was the lack of available land, which significantly hinders new construction and development. In her research, Derkowski states that the land tenure system “is a serious impediment” to housing development for individuals and community initiatives. Derkowski notes that if there is tenure, in some cases, the land is still under lease from the Commissioner. The absence of land tenure makes homes uninsurable and ineligible for a conventional mortgage.

Derkowski’s research identifies land administration as a barrier to community housing initiatives. To access land within municipal boundaries, communities must apply to the Department of Environment and Climate Change (ECC) for a lease or title transfer and meet requirements from both ECC and the Department of Municipal and Community Affairs (MACA). These include land surveying, clearing, and proper zoning. These steps are often hindered by a shortage of certified surveyors and planners in the territory, high service costs, and limited municipal funding. Aimee Pugsley’s 2023 thesis on housing self-determination, using Fort Good Hope as a case study, highlights the cost-prohibitive nature of survey requirements, noting that bringing a surveyor into the community can cost several thousand dollars. She recommends easing access to land tenure, including subsidizing survey costs, to support community housing development.

Other witnesses noted that other aspects of “red tape” at the municipal level, such as the permitting process, zoning rules, and behaviour of building department officials, are disincentives for market-driven new construction. One witness emphasized that the extreme lack of available fee simple land across the Northwest Territories remains a challenge. The struggles related to building and development in the North are cause for concern for Committee and a barrier to realizing the right to adequate housing.

Committee presents the following recommendations to address these barriers:

Committee heard from a number of witnesses on the importance of ensuring there are wrap-around supports for individuals in community and transitional housing, particularly for those who are vulnerable. As noted by the Federal Housing Advocate, there has often been a jurisdictional issue or struggle over who is responsible for what area of support. As mentioned previously, needs differ from individual to individual and community to community, which underlines the importance of an all-of-government approach to housing – including Ministers and Government departments not solely focused on housing, but also health, mental health, and justice.

Janine Harvey and Lisa Allikamik conducted research whereby they interviewed tenants across the Beaufort Delta region about their experiences with housing.

The need for increased protections for tenants in transitional housing, missing personal freedom, providing notices and reasons before evictions occur, and appropriate addictions and mental health treatment are some examples of their findings. The researchers recommended legislating protections for tenants in transitional housing under current landlord tenant legislation, and that forced programming should not be a requirement for housing.

Northview Residential and Midwest Property Management both noted that market housing providers or companies should not be responsible for providing social service supports to tenants that require it. Committee reiterates that it is fundamental that the Government provide wrap-around services and establish mechanisms that will uphold the right to adequate housing and make it clear that those in the market housing space are not expected to provide social services to residents.

In addition to other support programs, the Yellowknives Dene First Nation (YKDFN) emphasized the importance of equipping tenants with practical skills such as courses on basic cleaning, maintenance, and repairs skills to help them thrive in their living spaces. YKDFN noted that many tenants do not take responsibility for maintenance and repair such as replacing tissue roll dispensers, changing light bulbs, or addressing minor pest issues. They recommend that offering maintenance workshops could help tenants feel empowered and responsible for basic upkeep.

Dr. Christensen recommended that public housing tenants be granted greater autonomy to carry out their own repairs, rather than waiting on lengthy service lists. She submitted that empowering tenants to address minor maintenance issues themselves could improve housing conditions, reduce delays, and foster a sense of ownership and dignity.

Northview is drowning in this crisis. In 2022 – the downtown buildings in Yellowknife result in a Net Operating Income of negative $630,000.

Northview Residential

Committee acknowledges the financial strain faced by landlords operating in the Northwest Territories, particularly those providing public and affordable housing. Northview Residential, for example, reported a net operating loss of $630,000 in 2022 from its downtown public housing units, largely due to high operating costs.

The company highlighted a 450% increase in tenant-related damages over four years, along with rising security expenses, ten buildings incurred over $500,000 in security costs in 2024 alone. Unpaid rent further compounds these pressures; Northview noted that the NWT has the highest rate of unpaid rent in Canada, exceeding the national industry standard by 300%.

Furthermore, a striking example emerged during the 2023 wildfire evacuation. With buildings vacant for over three weeks, Northview saw a 105% increase in income due to reduced operating costs. This underscores a troubling reality: under current conditions, it can be more financially viable to leave units empty than to absorb the costs of renting them out.

Northview Residential and Midwest Property Management also raised the question of who shoulders the expense of non-payment of rent and the associated eviction process, particularly in light of ongoing and substantial operational costs. Committee acknowledges that some housing development depends on financially viable landlords. Without adequate support, landlords may be unable or unwilling to invest in new housing developments, exacerbating the territory’s housing shortage.

Every year, we need to find funding to do the same thing. Homelessness is not a one- or two-year problem.

YWCA Northwest Territories

Committee heard that a lack of continuous, multi-year funding remains a major barrier to addressing the homelessness crisis in the NWT. Non-profit and charitable organizations require stable, year-over-year funding to retain qualified staff and deliver wrap-around supports for individuals experiencing homelessness. Dr. Julia Christensen emphasized the importance of reliable funding for Indigenous Governments, community organizations, and non-profits to develop and sustain housing programs. The YWCA further noted that program costs have increased significantly while funding levels have remained stagnant. Committee recognizes that these organizations are essential to resolving the housing crisis and require consistent annual investment to maintain and expand their critical services.

As described by the Salvation Army – Yellowknife; a lack of stable funding does not set up their programs for success. Like the YWCA NWT, they require stable and appropriate funding to provide them with trained and qualified staffing. Committee understands that organizations that operate shelters in Yellowknife and the NWT are desperate to move on from band-aid solutions. Salvation Army noted to Committee: “We need to collectively include the shelter population in a much larger housing puzzle – and stop using shelter as simply a place to dump people”.

The YWCA NWT also noted the difficulties in finding options for clients after their attendance at safe homes or domestic violence shelters, especially in smaller communities such as the Mackenzie Delta or Tłı̨chǫ Region which may not have shelters. They recommend an investment in short-term and long-term transitional housing, to bring more options along the housing continuum in smaller communities. They stated numerous times in their presentation to Committee, families are coming to larger centres, such as Yellowknife because of the resources available and this problem needs to be solved in the smaller communities. They also highlighted a key statistic: that 80% of YWCA’s clients are from communities outside of Yellowknife.

Indigenous governments are key to broadening the options available across the northern housing continuum and have long reported on innovative and creative solutions to housing stock and housing inadequacy. Committee was presented with the recommendation to provide funds and other resources for transitional housing and other housing initiatives directly to Dene, Inuit and Métis organizations and communities. These resources could include staff training to increase capacity to design and deliver services such as on-the-land camps.

The Salvation Army – Yellowknife suggested that the new proposed wellness centre being constructed in Yellowknife should be a 24-hour shelter to be able to meaningfully reach clients and offer a continuum of services without the worry of a restrictive operating hours. The Salvation Army emphasized the importance to “start by focusing on those who are chronically homeless”, further recommending that if their shelter was 24-hours, that shelter uses would have the opportunity to access supports such as counsellors and nurses. Committee believes this is an extremely crucial piece to helping move individuals along the housing continuum, and fill gaps in the housing continuum. The GTC also highlighted the need to focus on vulnerable populations, including targeting policies to support low-income families, Elders, and those in

climate-affected areas.

Committee is deeply concerned about the state of the shelter system in the NWT and believes that emergency and homelessness shelters are a crucial piece of the housing continuum. Considering this, Committee presents the following recommendations:

Committee heard that the Yellowknife Women’s Society proposed a dedicated building for Housing First to Northview Residential in 2023. The intent was to consolidate Housing First units into a single location, allowing the Yellowknife Women’s Society to maintain the building and offer wrap-around supports to residents. However, Northview Residential declined the proposal, citing a 3% vacancy rate across Housing First units and safety concerns about current residents.

Committee supports the principle of co-location and believes that both the current Housing First program and any future initiatives should be designed to centralize residents. This approach would enable service providers to deliver support services more effectively and foster a more stable and supportive housing environment.

Committee heard concerns from YWCA NWT regarding the escalating cost of insurance and the impact on non-profit housing organizations. The YWCA NWT noted that they previously managed approximately 60 units to house families that were unable to acquire a rental unit of their own. Unfortunately, and primarily due to the rising cost of insurance, the YWCA NWT no longer operates many of these units. These rising costs are crucial to address to ensure the longevity of non-profit and charitable housing programs in the territory.

Committee therefore presents the following recommendation:

As discussed throughout this report, Committee acknowledges the presence of encampments in the territory and recognizes them as a complex outcome of homelessness. In some cases, barriers that prevent individuals from accessing emergency shelter services, including concerns about safety, overcrowding, lack of culturally appropriate supports, and restrictive shelter policies. Committee is also aware of encampments raising public safety concerns.

Notably, in 2024, the Federal Housing Advocate published a review of homeless encampments in the context of upholding dignity and human rights. The federal government committed $250 million in Budget 2024 for human-rights based community encampment response plans. This funding will be distributed to the provinces and territories, who must cost-match the funding, to address the urgent issue of encampments and unsheltered homelessness by opening more shelter spaces and transitional homes and services.

Committee encourages all levels of government to collaborate in enhancing the safety of individuals and therefore recommends:

Committee heard from a number of witnesses on what it would mean to review rental scales, rental regulations, or instill rent control into the territory’s legislation. Some witnesses, including Habitat for Humanity NWT, raised concerns about the lack of rent control regulations and emphasized the need for safeguards to protect renters. The Canadian Centre for Housing Rights recommended that rent increases follow a set guideline percentage, with above-guideline increases permitted only in rare circumstances and subject to approval by the Rental Office.

Other witnesses expressed the view that rent prices are driven by supply and demand, and that increasing housing supply would naturally lower rent prices. They cautioned that rent control measures could discourage new rental housing development. One witness, referencing Yellowknife’s rental market, noted that the primary issue to high rental costs is a shortage of supply. He stated that in his experience, rent controls have significantly contributed to the difficulty of building new apartment buildings across Canada.

Committee notes that these issues are contentious and complex and would emphasize that consideration of these matters should be dealt with in any future reviews of the RTA.

Advocating for Public Housing Funding at the Federal Level

A number of witnesses brought forward the decline of federal support to operate, maintain and build public housing. Dr. Christensen noted that this has been happening since the 1990s and is a trend across Canada. The goal of this decline is to reach zero federal funding support for public housing by 2036. This will mean a significant funding deficit for social and public housing, and because non-market communities have little options along the housing continuum beyond public housing, this funding trend is crucial to address.

The Federal Housing Advocate also spoke to this trend and mentioned to Committee that since the early 1980s and 1990s, the federal government stepped away from building non-market housing. She noted that this had an incredible impact on the housing sector, putting more pressure on the private sector to fill the gap and is the primary cause of the affordability issue we see today. Her first call to government was to reverse this trend. This has a unique impact in remote areas such as the NWT, and she called on Committee for general advocacy on non-market housing, including public housing, co-operative housing, and housing programs within the non-profit and charitable sector. The Federal Housing Advocate made it clear to Committee: It is still important that we develop and maintain public and social housing. Derkowski also reiterated in her presentation that the public housing system may be difficult to fully dismantle. And, repeating similar sentiments as the Federal Housing Advocate, Derkowski underlined that there needs to be a resolve about the source of funding for social housing. This resolve will require advocacy to the federal government with the GNWT working in partnership with Indigenous Governments and Indigenous Organizations.

Funding programs such as the federal Urban, Rural and Northern Indigenous Housing Strategy are an example of a promotion for innovation in the housing sector, and the encouragement to develop housing programs that are appropriate and adequate for small communities. However, Dr. Christensen notes a limitation of the Strategy that it provides funding to Indigenous governments that have settled land claims or setting self-government agreements. She concluded to Committee that this creates disparity between regions where there may be a settled land claim or self-government in operation, or regions that are still in the negotiation process.

Considering the decline of federal funding to public and social housing and in advocating for the public housing system, Committee believes in the redirection of attention to developing local housing programs that seek to expand options along the housing continuum, particularly in non-market communities. Committee also reiterates its sentiments that investments into the public and social housing sector remain an important advocacy piece for the GNWT. Committee therefore presents the following recommendation, to refocus funding and investments to build capacity for Indigenous Governments to develop local housing solutions:

In recognizing the right to adequate housing as a human right, the GNWT should take all possible measures to progressively realize this right, regardless of reductions in federal funding. While Committee acknowledges that federal support remains a critical component of housing in the North, the GNWT must also demonstrate accountability in addressing housing needs across the territory. Committee emphasizes that the territorial government cannot rely solely on federal contributions, and to ensure transparency and accountability in this regard, and to support public confidence in the GNWT’s commitment to housing, Committee recommends:

In relation to federal funding, Committee learned greater detail about the NWT Housing Forum. The NWT Housing Forum arose in 2023 from the Housing NWT Renewal Strategy and replaced the Council of Leaders Housing Working Group. It is composed of Housing NWT and Indigenous Governments, with Housing NWT co-chairing alongside Yellowknives Dene First Nation. The Forum acts as a guiding body to share information, discuss and advocate for improvements to the NWT housing system, allow members to share their own housing-related plans, and find opportunities for collaboration. Committee has learned that the Housing Forum holds discussions around the allocation of federal dollars and directly engages with the Federal Government to advocate for funding based on the unique needs of the territorial and Indigenous Governments.

Committee commends the objectives of the NWT Housing Forum, particularly its commitment to ensuring that Indigenous Governments have a meaningful voice in addressing the housing needs of their communities. However, concerns were raised regarding the transparency of new direct federal funding to Indigenous Governments, known as distinction-based funding. Specifically, it is unclear how funding is allocated to communities and how decisions are made about which communities are in greatest need.

Committee recognizes that each Indigenous Government faces unique housing challenges. It is essential that funding be distributed to communities experiencing the most significant need. Committee therefore recommends:

As part of the project scope of work, Committee underwent a review of HNWT’s policies. In its review, Committee applied learnings from presentations and submissions received throughout the study and reviewed each policy currently housed at HNWT. Through the HNWT policy review, Committee used principles learned during its presentation from the Canadian Centre for Housing Rights (CCHR). The CCHR provided guidance that reasonable policy development, from a human rights standpoint, starts by considering the dignity and rights of those who need housing. Furthermore, they emphasized that government policy and response to housing must be made in a way that is reasonable and proportional. As suggested by CCHR, Committee used the following guiding question when reviewing policies at HNWT: Are programs and policies consistent with a commitment to realize the right to adequate housing for all, in the shortest possible time?

Committee recognizes this important lens to a policy review and believes there is more work to be done beyond this initial review of HNWT policies to evaluate their alignment to human rights priorities within available resources. Committee understands that a rights-based approach to HNWT policies will take time to address and implement, and therefore Committee believes the policy review will also be a key role for the appointed Territorial Housing Advocate. Committee believes incorporating local and on-the-ground knowledge is crucial to further its policy review.

Home Purchase Program & Homeownership Initiative Policies

The HNWT offers two programs designed to support residents in becoming homeowners: the Home Purchase Program and the Homeownership Initiative.

The Home Purchase Program assists first-time home buyers in purchasing a modest home by providing a forgivable loan used towards a portion of the down payment. To be eligible, applicants must be at least 19 years of age, have lived in the NWT for three years, and have resided in the community where they are applying for at least one continuous year. An applicant must also meet specific income and debt-service thresholds, demonstrate satisfactory credit, and must not currently own a home or have received homeownership program assistance within the past 10 years. Individuals with outstanding rental or mortgage arrears under any HNWT program are ineligible.

Complete loan forgiveness is granted after one to three years, subject to the amount of the loan and provided the resident remains in compliance with certain conditions. For instance, sale of the home before the loan is forgiven or defaulting on the mortgage or program agreement triggers repayment of the remaining loan balance. The Home Purchase Program is only available in Zone A communities (Yellowknife, Hay River, Fort Smith, Inuvik, Norman Wells, and Fort Simpson). Residents in Zone B and C communities may pursue homeownership through the Homeownership Initiative.

The Homeownership Initiative intends to provide eligible public housing tenants living in detached units in rural and remote communities with the opportunity to purchase their units to become homeowners, if they have sufficient income to pay for the operating and maintenance costs. Applicants must be at least 19 years of age and have lived in the HELP unit or Public Housing unit for three years. The applicant must also meet specific income and debt-service thresholds (i.e. have sufficient income required to pay shelter costs), demonstrate satisfactory credit, and must not currently own a home or have received homeownership program assistance within the past 10 years. Individuals with outstanding rental arrears owed to HNWT or LHOs are ineligible.

Complete loan forgiveness is granted after three to five years, subject to the value of the home and the participant’s compliance with the loan agreement. The loan agreement requires that the home be used as a primary residence and maintained at the participant’s expense. Failure to abide by these conditions, or sale of the home before the loan is forgiven, triggers repayment of the remaining loan balance.

Committee heard concerns with the age and condition of the houses available for purchase through the program. Derkowski’s research showed that while some public housing clients met eligibility requirements and applied, they were ultimately not interested in purchasing older units. A representative from Housing NWT iterated to her:

the only way that [applicants] would be interested is if they had a newer unit. These were applicants that were living in, probably, homes that were 50-plus years old. And really, in the communities [the units are] probably not in that great of a shape. And so they were not interested in becoming homeowners of these older units. And of course we want to get rid of the older units, so that we can build newer ones for our public housing stock. But we certainly don’t want to saddle a new homeowner with an old unit either.

Derkowski found that HNWT had no viable possible option to provide newer homes for purchase, as any newer units that did exist were already occupied. While the program addresses affordability through mortgage support, its impact is constrained by the persistent inadequacy of the territory’s housing stock.

Committee presents the following two recommendations that are designed to help improve access to homeownership opportunities in the NWT:

Committee believes HNWT’s Appeal Policy requires review to align with a rights-based approach, as well significantly reduce the burden placed on staff of Local Housing Organizations and HNWT staff. Applicants, tenants, and clients of HNWT’s Public Housing Program and Homeownership Programs may appeal certain decisions made by HNWT or Local Housing Organizations (LHO). The appeal mechanism is designed to address how HNWT policies are applied to individual circumstances. For example, individuals may appeal decisions related to eligibility, rental payment calculations, or the level of assistance provided. However, appeals cannot be made against the policies themselves, nor can they address matters governed by the Residential Tenancies Act or decisions rendered by a Rental Officer.

There are two appeal processes, depending on the housing program.

Applicants or tenants of Public Housing or Market Housing may appeal a decision made by a LHO to the LHO’s Board of Directors. In communities without an LHO, appeals may be submitted directly to the HNWT District Director. If an applicant or tenant disagrees with the outcome of an appeal reviewed by the LHO Board of Directors, they may escalate the appeal to the District Director. If they remain dissatisfied with the District Director’s decision, a final appeal may be submitted to the Housing Appeal Committee.

Applicants or clients of the Homeownership Program who wish to appeal a decision made by HNWT must submit their appeal to the HNWT District Director. If they disagree with the District Director’s decision, they may escalate the appeal to the Housing Appeal Committee.

The Housing Appeal Committee reviews appeals to ensure procedural fairness, and may recommend corrective actions or propose policy changes to enhance consistency and accountability across HNWT programs. The Committee is composed of senior government employees from various GNWT departments, along with members from the general public.

Committee reviewed the Framework for Assessing if an Applicant is Eligible for Social Factor Points, which determines whether a public housing applicant qualifies for social factor points based on homelessness, using a structured set of criteria aligned with national standards. Social factor points are used to prioritize public housing applicants based on need.

Committee emphasizes that the core issue is the limited supply of housing units. While the points rating system helps prioritize those most in need, it does not uphold the right to adequate housing for all. To truly realize this right, the policy must be paired with efforts to expand the range and availability of housing options. Committee appreciates the work that was done by HNWT in 2023 to update and modernize the social points rating system. Committee believes the Framework can be further improved, especially to reflect needs in smaller communities and the different needs of individuals across the housing continuum.

The Public Housing Tenant Eligibility Policy defines the conditions under which an individual is deemed ineligible for public housing and the process for review and appeal. Under the policy, applicants are deemed ineligible who have:

A history of rental arrears without a repayment plan in place.

A record of unsuitable upkeep or damage to a unit that is the subject of a Rental Officer Order.

A history of disturbing other tenants’ right to “quiet enjoyment” and other complains that are subject to a Rental Officer Order.

Criminal or otherwise illegal convictions from activities on LHO premises that are subject to a Rental Officer Order.

Where an applicant is deemed ineligible, the application is referred to the LHO Board of Directors for review. If an applicant is confirmed to be ineligible by the Board, the LHO Manager must notify the applicant in writing and include suggestions to the applicant to address their ineligibility. Ineligible applicants are not placed on the waiting list for housing until meeting the eligibility criteria.

The Board must review ineligible cases at least every six months or on the applicant’s request, if the Board is satisfied that the applicant has taken steps to address the issues, such as completing the transitional housing program or programming to address social well-being factors, paying arrears in full, or following a repayment plan. Applicants determined ineligible by the Board may appeal through the HNWT Appeal Policy.

Community Housing Plan

HNWT’s Community Housing Plan policy supports Indigenous and community governments in developing Community Housing Plans that reflect local housing goals, needs, and priorities. It is understood that each plan includes a housing needs assessment that identifies existing condition, infrastructure gaps, and demographic trends, to align housing development with short-to-medium term priorities. Committee believes in the importance of developing Community Housing Plans but also recognizes that each community has varying levels of capacity to implement these plans.

HNWT’s Small Community Homelessness Fund is available to support projects that address homelessness in NWT communities, excluding Yellowknife. Committee highlights that this funding is available to non-governmental organizations, Indigenous Governments, and community governments for initiatives that directly assist individuals experiencing homelessness. Committee reiterates the importance of creating more options along the housing continuum than is currently available in communities and moving people along that housing continuum.

HNWT provides repair funding programs for homeowners and seniors, including the Seniors Home Repair Program Policy, Seniors Aging in Place Policy, Home Repair Program Policy, and Preventative Maintenance Policy. These programs provide forgivable loans of various amounts for essential home repairs. The dwelling being repaired must be located within municipal boundaries, have access to a continuous supply of electricity, potable water and heat, and have a functional sewage containment system. For the Seniors Home Repair Program Policy, Seniors Aging in Place Policy, and Home Repair Program Policy, applicants whose household income is $60,000 or over must co-pay 10% of the repair costs.

In light of rising inflation and costs of living, and the realities of northern housing, Committee presents the following two recommendations:

The Disposal of Residential Property Policy specifies that HNWT will dispose of residential property owned by HNWT in a manner that encourages and enables people to be self-reliant through homeownership and maximizes public benefits. Disposing of a property may consist of sale, donation, negotiation, or demolition.

Existing tenants and approved housing program applicants are given priority to purchase the property, with access to subsidies through HNWT, before sale is offered to GNWT Departments, public processes, or otherwise. If the property is unsuccessfully sold through a public process, the property may be donated, negotiated, or sold to Community Governments, Indigenous Governments or Organizations, or non-profits. Net gains from the property disposal are reinvested in housing projects.

The Community Housing Support Initiative provides funding to community organizations for the purpose of improving community housing. These funds are in the form of grants, grants-in-kind, or contributions.

Projects are funded on a case-by-case basis, and evaluated based on alignment with HNWT’s principles, including promoting community prosperity, supporting the health and wellbeing of residents, developing and managing independent housing projects that deliver community benefits, and creating affordable housing that is adequate, suitable, and culturally appropriate. Funded projects are evaluated for performance within three years after completion, with a focus on their impact in advancing HNWT’s principles. Committee therefore recommends:

The Verification of Income policy specifies the way applicants demonstrate their financial eligibility for assistance and ensures that all applicants’ income is verified accurately and consistently across the NWT.

Income is verified through Canada Revenue Agency (CRA) records, employer verification forms, and other relevant documentation depending on the applicant’s employment type. Sources of income that are considered include salaries and wages, government benefits, Impact Benefit Agreement income, investment and rental income, land claim settlements, treaty entitlements, and specific educational and retirement benefits. However, treaty-related income as defined by the CRA can improperly inflate an individual’s income and thus make them less eligible for assistance, or eligible for less assistance, which is inequitable.

To uphold treaty obligations, Committee presents the following recommendation:

The Collections Policy establishes a standardized process for collecting rent, mortgage payments, and arrears across HNWT programs. For tenants with rent overdue by two months, the LHOs may file applications to the Rental Officer for arrears payments or termination of the tenancy. The LHOs must file these applications to the Rental Officer where rent is overdue by four months. For arrears, the Collections Section files Orders to Pay with the Territorial Court to obtain a judgment. If a favourable judgement is given, the Collections Section commences collection. To terminate the tenancy, the Programs and District Operations Division files an application for an Eviction Order with the Rental Officer. For participants of the Homeownership Programs, the District Offices are obligated to file a claim in Territorial Court for those with mortgage payments overdue by four months.

Given the significant hardship that evictions can cause to individuals and families in a climate where housing availability is limited, Committee presents the following recommendations:

The right to adequate housing in the Northwest Territories is a clear and needed path to meaningful address the ongoing housing crisis. It was made clear to Committee – The Northwest Territories needs mechanisms in place to address systemic issues to accessible, culturally appropriate, and adequate housing for residents.

Committee is grateful to all the witnesses who provided extensive information on implementing the right to housing in the Territory.

Member from Monfwi.

Mr. Speaker, I move, seconded by the Member for Range Lake, that Committee Report 29-20(1), Standing Committee on Social Development's Report on Housing as Human Right, be received by the Assembly and referred to the Committee of the Whole. Thank you, Mr. Speaker.

Thank you, member from Monfwi. To the motion.

Question.

Question has been called. All those in favour? Opposed? Abstentions? Motion has been carried.

---Carried

Reports of Standing and Special Committees. Returns to oral questions. Acknowledgements. Member from Thebacha.

Thank you, Mr. Speaker. Mr. Speaker, I seek unanimous consent to move item 14, tabling of documents, up in the order paper to number 9. Thank you, Mr. Speaker.

Thank you, Mr. Speaker. Mr. Speaker, I wish to table the following document: Legal Aid Commission of the Northwest Territories Annual Report 2024-2025. Thank you, Mr. Speaker.

Thank you, Minister of Justice. Tabling of documents.

Colleagues, in accordance with section 41 of the Northwest Territories Act, I wish to table the Report of Auditor General of Canada to the Northwest Territories Legislative Assembly on Housing in the Northwest Territories.

Tabling of documents. Colleagues, being in recognition of the time, and I know oral questions are going to be an hour, so we are going to take a short recess to give the translators a time to have a break. Thank you.

---SHORT RECESS

Thank you, Mr. Speaker. Mr. Speaker, my questions are for the Minister of Environment and Climate Change.

Mr. Speaker, can the Minister explain whether or not our NWT boreal forest is still acting as a carbon sink. Thank you, Mr. Speaker.

Thank you, Member from Great Slave. Minister of ECC.

Thank you, Mr. Speaker. Mr. Speaker, historically, the Northwest Territories boreal forest has acted as a strong carbon sink, absorbing more carbon dioxide than it releases. Over recent research, combined with the effects of drought, wildfire, and permafrost thaw, it's weakening things and, you know, research was presented recently at the landscape carbon workshop in February of 2025 and, you know, as things move forward the cumulative effects of these recent fire seasons, particularly 2023 as the most severe season in our history, have shifted some areas of the boreal landscape from carbon sink to net carbon source. Thank you, Mr. Speaker.

Thank you, Mr. Speaker. So that is a tipping point for us. Does the Minister know how much more greenhouse gases we are emitting annually as compared to prior to our 2023 wildfire season and continued permafrost melt? Thank you, Mr. Speaker.

Thank you, Mr. Speaker. Mr. Speaker, it's very challenging to quantify and compare carbon landscape emissions over time in the NWT and in Canada and worldwide for that matter. Canada and Canadian jurisdictions use methods developed by the United Nations to report on their emissions, and this message does not account for natural variations, carbon levels associated with, for example, wildfires or permafrost thaw. It really only captures the human-made emissions component of that data. And, you know, we also know that there are knowledge gaps in these emissions, and it is currently difficult to tell the difference between natural emission cycles and emissions due to climate change. We're advancing work to better understand and potentially manage the landscape carbon. Thank you, Mr. Speaker.

Thank you, Minister of ECC. Final supplementary. Member from Great Slave.