INNOVATIONS IN COMMUNITY HEALTH AND WELLNESS Qarmaapik House: A multi-use and safe place for families in Kangiqsualujjuaq

Maggie Emudluk

armaapik House, located in Kangiqsualujjuaq, munity by air and an annual summer sealift, making Q Nunavik, was established as a non-profit orga- the cost of living extremely high. For example, the nization with a mission to have a place where parents cost of food is close to 50% higher than elsewhere in or guardians are supported to meet their children’s Quebec. Roughly 44% of annual income is directed needs better, to improve the bond within their fami- to food by Nunavik households, compared with 12% ly, and to instill traditional Inuit family values in the elsewhere in Quebec. Meanwhile the cost of house- community. Qarmaapik House is one of this year’s hold items is 97% higher than elsewhere in Quebec. recipients of the prestigious Arctic Inspiration Prize, Locally, people depend on snowmobiles, ATVs an annual award dedicated to supporting innovative and motorboats for their hunting, fishing and trapping community projects in the Canadian Arctic. activities. Considering the very high unemployment The community of Kangiqsualujjuaq (formerly and the high cost of goods, the essential equipment George River) began as a small village in the ear- required for these important land based activities and ly 1960s after the first cooperative was established travel is not easily accessible to most families. by Inuit of the area. Prior to the 1975 signing of These social and economic stresses and the his- the James Bay and Northern Quebec Agreement (JBNQA), torical context of the 20th century has ruptured the life for Nunavik Inuit consisted mainly of hunting, ability of many Inuit to transmit their own model fishing and trapping pursuits. Like many Northern for the proper education, protection and support of communities, Kangiqsualujjuaq lacked all but the their children. Psychosocial problems, coupled with most rudimentary services. In 1980, the village was post-traumatic stress, depression, addiction and even legally established as a municipality. The people incarceration, prevent some parents from appropri- had to adapt to a modern way of life and, within ately fulfilling their role vis-à-vis their children. a very short span of time, to an expanded wage- In many Nunavik communities, Youth Protec- based economy. Today the population of Kangiq- tion is thoroughly overwhelmed by the number, se- sualujjuaq is close to 1,000 people. The community verity, and scope of the cases being reported. At the faces many of the same challenges experienced by same time, there is an enduring mistrust of outside other Nunavik communities as a result of these rap- institutions – a legacy of negative historical experi- id changes to social and economic life. ences. As a result, Youth Protection has been unable Generally speaking, Nunavik’s population is to deliver appropriate services and programs to par- young, with close to 60% of people under the age of ents, families, and youth in difficulty. Staff turnover 30. Teen pregnancy is four times higher among girls is high among both Inuit and non-Inuit personnel, aged 14-17 than in other parts of Quebec, and life which does not help with building trusting relation- expectancy for both men and women is much lower. ships between social workers and community mem- Unemployment rates are high in Nunavik. Close to bers. It is feared that the repercussions of the large 70% of Nunavik households (2,450 families) earn number of interventions by Youth Protection, and less than $32,480 annually, and 37.5% of Nuna- the temporary or longer-term placement rates for vik Inuit households live in poverty. Overcrowding youth in difficulty will be as severe for Inuit society in Nunavik homes has reached an alarming rate of as were residential schools. 68%, and recent statistics show that there is close to a 90% drop-out rate between kindergarten and high Qarmaapik House: A Community-Based school graduation. Alternative There are no roads linking the region’s commu- The idea for Qarmaapik House developed out of nities to one another, or with southern Quebec. Food several events over a five-year period. and other consumer goods are transported to com- The first was the 2007 report by the Commission Northern Public Affairs, July 2017 37 Photo credit: MaggiePhoto credit: Emudluk Qarmaapik House.

des droits de la personne et des droits de la jeunesse du Quebec children in the region. At the time of the conference, detailing an investigation into Quebec’s youth pro- an alarming number of 27 children from Kangiqsua- tection services. This report noted that Nunavik Inu- lujjuaq (population 900 at the time) were reported to it face an identity crisis reflected in the scope of their be under the care of Youth Protection Services. Nan- social problems. The report highlighted that family cy Etok, then Student Councilor and now Vice-Prin- violence is 10 times higher in Nunavik than in the cipal of Ulluriaq School of Kangiqsualujjuaq, gave rest of Canada, and that Nunavik has the highest her impressions: “These numbers clearly mean we suicide rate in the country. Lack of sufficient and are facing an almost impossible mission. We must adequate housing and high rates of poverty do not absolutely try something new. They also show that provide families with optimal conditions for exercis- police services and the Youth Protection will not be ing their role, and children are often the first victims. able to solve these problems on their own.” Follow- The Commission included a statement from judg- ing this conference, Nancy Etok and Hilda Snowball, es of the Court of Quebec who noted that: “most then a community wellness worker and now Mayor of the files brought before them include neglect of Kangiqsualujjuaq, were determined to find alter- as a factor, connected to chronic alcohol and drug natives to address this dilemma and its causes. abuse” (Commission, 2007, p.17). The Commission Shortly afterwards, a series of consultations made an urgent call for front-line and preventative known as Regional Parnasimautik1 took place in services in Nunavik. It is important to note that for each Nunavik community to identify the elements many years Nunavimmiut had clearly voiced their of a comprehensive vision for regional development concerns about the existing youth protection system. according to Inuit culture, identity, language and The 2007 report shares many of these concerns. traditional way of life. Following the consultations, The second event was a three-day crime preven- it was expected that each community would contin- tion conference “Inuusitta Makijjuumigiaqaqninga” ue discussions amongst themselves. Starting in June (Take our lives into our hands), that took place in 2013, the community of Kangiqsualujjuaq began Kuujjuaq, Nunavik in October 2012. Local front line to host local Parnasimautik gatherings four times a workers and community leaders from all 14 commu- year. These three four-day workshops focus on the nities participated in this event. The conference high- fundamental issues affecting the daily lives of its resi- lighted the actual situation of the more than 400 foster dents. Discussions are broadcast live on the local FM 38 Northern Public Affairs, July 2017 radio so that everyone can express their views. This Protection (DYP) and its CLSC Social Services, and open and inclusive process provides stakeholders the Nunavik Regional Board of Health and Social with accessible and concrete opportunities to discuss Services.3 The Collaboration Agreement is currently community issues and to collaborate in the search operating as a pilot project. It will be reviewed in for solutions. It also empowers and gives responsi- June 2018. Representatives from each organization bility to the local organizations and participants. meet monthly to make sure things are running as During the initial community discussions, youth pro- planned. There are two components to the Collabo- tection was raised as a main issue, and community ration Agreement: Prevention and Safe House. The members clearly expressed and identified the need prevention component runs during regular working to find a real solution and a community-driven ser- hours (9am to 5pm) and the safe house component vice with culturally-appropriate support for families is a 24-hour service. and youth. Through these discussions, the concept Since 2013, the Qarmaapik team has grown of the Qarmaapik House was developed: significantly. Current Board members include:- Al ice Unatweenuk, Francine Emudluk, Roddy Stew- We have decided to build a Family House for our art, Johnny Sam Annanack, Nancy Etok, Maggie community. When it is up and running, we want to Emudluk and Alice Baron. The organization now support families who are in crisis. We want to have has 15 employees, consisting of a coordinator, assis- teen discussions and we want to provide counseling tant coordinator, counsellor, assistant counsellor, sec- for the families in order for them to keep their chil- retary, cook, baby book coordinator, drop in daycare dren in the community. The house will allow us to staff, two janitors and six security guards. teach our young parents the correct way of bringing Qarmaapik is a much-needed alternative for up our kids. We, as a community will need to work children aged 0 to 17 who find themselves in crisis together in order for the project to be successful.2 situations that would normally require the interven- tion of the provincial youth protection system. How- Qarmaapik’s first Board of Directors was elect- ever, solely offering this alternative form of shelter ed locally in 2013 consisting of seven members, fol- and support only remedies situations for brief peri- lowed by the hiring of a coordinator. These found- ods of time, and may create the impression for some ing Board members – Jobie Annanack, Sophie Mary people that things are being taken care of. There- Annanack, Alice Unatweenuk, Alice Baron, Nor- fore, Qarmaapik aims to go further to assist fami- man Snowball and Tommy George Etok – stayed on lies in learning and improving their capacity to be for four years to ensure that Qarmaapik had a strong responsible and capable parents. Programming will start as a non-profit organization. Over the course help parents to learn the fundamentals of handling of their term, the Board sought funding to renovate and responding to crisis situations without major a building, which took almost two years; established conflict or violence, and to avoid having no choice Board protocols and procedures; set up training and but falling into the social services system. Parents workshops for employees; secured funding for oper- must understand that only they can bring peace to ations from the Nunavik Regional Board of Health their home and to their own children, and that insti- & Social Services; and successfully negotiated a Col- tutions will never be able to replace them. laboration Agreement between Ungava Tullatavik In addition, Qarmaapik House will work with Health Centre Hospital (UTHC)’s Youth Protec- a multidisciplinary team (health services, social ser- tion, its CLSC (the local community health centre) vices, Director of Youth Protection [DYP], CLSC Social Services and the Nunavik Regional Board of – local community services centres, the parents, Health & Social Services, signed in January 2017. Elders, Kativik Regional Police Force, Ulluriaq The Qarmaapik Board believed it was essential School, and Nunavik Child and Wellness Network) to have a written understanding with the Youth Pro- to address the underlying causes of family conflict tection Services and the Social Services so that all and family breakdown. parties would understand and work with the same Qarmaapik offers prevention support services protocols and procedures. There has never been a for parents, children and youth, a drop-in centre and formal collaboration agreement or memorandum temporary lodging for families, as well as on-the- of understanding between an Inuit community land excursions and cultural activities. There is also driven organization like the Qarmaapik House and space for a pediatrician to provide medical check- the Youth Protection in the past. It took almost a ups, vaccinations, and perinatal services to 0-5 year year to develop and negotiate the collaboration old. Counselling services will be offered to parents, agreement between the three parties: Qarmaapik, youth and families; and a public health/wellness co- Ungava Tullatavik Health Centre (UTHC)’s Youth ordinator will organize awareness and prevention Northern Public Affairs, July 2017 39 Photo credit: Ellasie Annanack Photo credit: The Qarmaapik House logo. activities for the public. the remaining amount needed to implement its full Qarmaapik has started offering courses in cook- mandate and mission to offer a space where- par ing, fetal alcohol spectrum disorder, sexual abuse, ents or guardians are supported to better meet their traditional skills with the local cultural committee children’s needs, to improve the bond within their and Elders, both on-site and during excursions for on family, and to instill traditional Inuit family values the land after school activities. In time, Qarmaapik in the community. The funding received through will also offer more training programs for parents, the AIP will assist the community in taking the next women, men, youth/children such as: parenting steps to put in place historic and innovative services courses based on traditional Inuit values, conflict for Kangiqsualujjuaq. This AIP Award also serves resolution, family budgeting, early childhood devel- as seed money for Qarmaapik’s future. The orga- opment, dealing with adolescents, baby book mak- nization will be able to use the AIP award to secure ing, time management, employment support, and a other funds to continue its work, and will ensure that young parents play group. It will also offer a men’s current funders remain onboard. program in collaboration with the local men’s group The community is responding very well to the to strengthen father-son relationships and awareness services, and the collaboration between families workshops to educate the community about topics and Qarmaapik is showing positive results. Families such as youth protection and procedures, the court have been willing to take the steps needed to reach systems and services of the justice committee. a healthier and more positive lifestyle. Qarmaapik is Qarmaapik’s main goal is to prevent children ensuring that the parties to the Collaboration Agree- from being placed in foster families and/or sent to ment are respectful and committed to their obliga- another community by the Youth Protection Ser- tions. Qarmaapik is committed and will work very vices. It aims to empower families with concrete hard to help families in need of support and assis- tools and support, to empower community members tance in a culturally appropriate manner. ◉ and strengthen the link between them, to strengthen traditional knowledge and Inuit values as well as the Maggie Emudluk is a board member of Qarmaapik House role and use of Elders, to break the cycle of child and a municipal councilor in Kangiqsualujjuaq, Nunavik. maltreatment, and to enhance parents’ skills and ca- pacity to be responsible and capable parents. Endnotes In December 2016 Qarmaapik House won a 1 For more information, see: http://www.makivik.org/parnasi- mautik/ prestigious Arctic Inspiration Prize Award (AIP) of 2 An excerpt from the June 2013 local Parnasimautik workshop. $700,000! The community is very honoured and 3 In addition to the three parties to the Agreement, the Kativik proud of its Qarmaapik House to receive such an Regional Police Force (KRPF) and the Ulluriaq School acted award. With the AIP, Qarmaapik House has secured as interveners. 40 Northern Public Affairs, July 2017