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1. 1.0 Introduction
1. 1.1 Purpose of Research
2. 1.2 Research Methodology

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1.0 INTRODUCTION 

1.1 Purpose of Research 

Between 2001 and 2002, the Policy Centre for Victim Issues and the Research and Statistics Division of the Department of Justice Canada began research into the circumstances, statistics, resources and needs of victims of crime in the three Territories. The project began by focusing on Nunavut. The impetus for the research was to gather information necessary to assist in the development of effective and appropriate victim services programs and policy in this new territory. Specifically the research requirements included:

• the development of a comprehensive inventory of services currently available to victims of crime in Nunavut;^[1]
• the identification of best practices in victim service delivery in other, non-northern, remote Aboriginal jurisdictions;
• the provision of an understanding of current informal, as well as traditional (both formal and informal), ways of dealing with victims; and
• hallenges and resulting recommendations regarding appropriate victim services, and service delivery.^[2]

Following the completion of this research in Nunavut, similar research was undertaken in the Northwest and Yukon Territories. The research for all three territories was completed in October 2002.^[3]

The goals for the Northwest Territories and Yukon were the same with the exception of the work on best practices in victim service delivery in other remote Aboriginal jurisdictions. It was determined that the best practices identified through the Nunavut focused work are relevant for the two other territories as well.

The defining feature of victimization in Canada’s three northern territories is its endemic nature. This situation is described in detail throughout this paper. But in general one can say that all three territories have very high rates of suicide, spousal assault, sexual assault, child abuse, sexually transmitted disease, teen pregnancy, addictions and other problems indicative of a traumatized population. This problem is exacerbated by the remoteness and isolation of most northern communities. With minimal road systems, long distances, harsh weather and limited budgets,^[4] service delivery of any kind is difficult and inconsistent.

Despite these difficulties, and the many others described in each chapter of this paper, service providers in each and every community have been doing their best to address the needs of victims in their town. This is especially noteworthy as the vast majority of service providers in small remote communities (volunteer caregivers, nurses, teachers, RCMP) do not have a mandate, let alone the resources and funding, to offer specialized services to victimized individuals. Their insights and recommendations in terms of this situation were gathered during an extensive consultation process and have provided the basic framework for this research.

In the North, responsibility for program and policy development cross the jurisdictions and mandates of all levels of government. At the same time, research and consultations have made it clear that there are no “quick fixes” in the Northern Territories given economic and geographic conditions. As such, a holistic approach to understanding the context of victimization and victim services in the three territories is required, one that looks at a wide spectrum of influences, that turns its focus to the broad challenges northern victims and victim service providers operate within, as well as the various forms of resources available in each community.

In response, this research project is meant to provide a comprehensive discussion of the context within which victimization and victim services operate in the North. The report is meant to inform many audiences and is seen as an opportunity to take stock. This report will assist community members, victim service providers, human service providers, policy makers, program managers, as well as those who work in the criminal justice system to identify the resources available, the key challenges and best practices identified by the key respondents in the North.

It is hoped that this research will increase dialogue among stakeholders and facilitate an improved understanding of the context and complexity of victimization and victim services in the three territories, as well as provide a place for all those involved in the North to begin exploring better ways to understand and meet the needs of Northern victims of crime and the communities they live in.

1.2 Research Methodology 

While widespread victimization is a Northern reality, the particular circumstances for victimized individuals in each territory varies, as do the resources and services available to assist them. For this reason, the inventory of services, and overall research methodology, was adapted for each territory. The general methodology used in all three territories is described below. The methodological adjustments made to suit the realities of each territory are described in the chapter which focuses on that territory.

As one of the main goals of this research was to ascertain the circumstances, needs and resources of victimized people in all three territories, an extensive series of interviews was conducted across northern Canada. Service providers in every community in all three territories, a total of 75 communities, were contacted either in person, or by phone, fax or email. This pan-territorial survey resulted in a total of 308 interviews. In addition, 43 interviews were conducted with victim service providers in other remote Aboriginal jurisdictions within Canada and Alaska, and 12 victims of crime were interviewed. In total, 363 respondents were interviewed.^[5] In each territory, key service providers were identified for in-depth interviews and ongoing participation in the research process. They reviewed drafts of the research findings, gave extensive input into analyzing best practices in victim services and provided detailed recommendations for victim service delivery in northern Canada. The names of these key service providers are listed by territory in Appendix A. Appendix B includes all community-based territorial services surveyed. Victims of crime were also interviewed. Their stories do not appear in this publication to respect their confidentiality, however, their stories are in keeping with the experiences of victims in the North.^[6]

A standard questionnaire was developed and used in all interviews and is included here in Appendix D. Respondents had the opportunity to describe the situation regarding victimization in their community, outline their particular service and offer recommendations for improvements to victim service delivery in their community and territory. They also reported what they knew about traditional and informal methods of assisting and dealing with victimized individuals.

As there are very limited services dedicated to victims in Nunavut and Northwest Territories the decision was made to contact all those services which offer any type of human service program.^[7] The Yukon Territory has more comprehensive victim service programming, and, therefore, only those services were interviewed whose mandate focuses on victims of crime.

In order to ascertain best practices in victim service delivery in other non-northern, remote Aboriginal locations a series of interviews were conducted with service providers in Alaska, British Columbia, Alberta, Saskatchewan, Manitoba, Quebec, Labrador and Newfoundland. The names and locations of these programs, along with the interviewee’s name, are in Appendix A.

The research process also involved an examination, in each territory, of the existing health and crime statistics, victim focused research literature, demographics, social conditions, historical considerations, and Inuit and First Nations political/cultural status. This documentation is cited in the Bibliography.

The chapter on Nunavut is laid out as follows:

• Considerations in Victim Service Delivery in Nunavut
• Traditional and Existing Informal Victim Services in Nunavut
• Formal Services Available in Nunavut Communities
• Review of Programs in Other (Non-Nunavut) Remote Aboriginal Communities
• Recommendations for Victim Services in Nunavut
• Summary: Victim Services in Nunavut, Needs and Recommendations

The chapter on the Northwest Territories follows a similar pattern:

• Considerations in Victim Service Delivery in the North West Territories
• Services Available in Northwest Territories Communities
• Recommendations for Victim Services in the Northwest Territories
• Summary of Needs and Recommendations

The chapter on Yukon is similar as follows:

• Considerations in Victim Service Delivery in the Yukon Territories
• Culture and Social Norms: Background Information
• Services Available in Yukon Communities
• Recommendations for Victim Services in Territory Yukon
• Summary of Needs and Recommendations

Grounded in a trauma recovery model, the conclusion speaks to the need for understanding the various ways individuals and communities heal from personal and collective trauma. The concluding section also summarizes the key recommendations made by respondents regarding the types of supports, programs, funds, legislation and resources needed to respond to the endemic victimization that Northern community members are working together to get under control.

^[1] The service providers surveyed are listed in Appendix B. A complete and full description of all services are provided in a companion document to this report, Victim Services in the Territories: A Compilation of Contacts and Resources, Mary Beth Levan, Ottawa: Policy Centre for Victim Issues and Research and Statistics Division, Department of Justice Canada, 2002.

^[2] The survey questionnaires used in the Northwest Territories and Yukon also asked respondents to describe those areas where they were experiencing some success in victim service delivery.

^[3] The service providers surveyed in the Northwest and Yukon Territories are listed in Appendix B. The complete and full description of all services in these two territories also are provided in the companion document noted in footnote 13 above.

^[4] Transfer payments from the federal government to the territorial government are made on a per capita basis, and all three territories have relatively small populations compared to other regions of Canada.

^[5] This figure doesn’t reflect the fact that most key service providers in each territory were interviewed more than once.

^[6] See Untold Stories of Battered Women, Part 2, NWT Status of Women Council, Yellowknife, NWT, 2002.

^[7] The very high levels of victimization in Nunavut and Northwest Territories has resulted in populations where traumatic reactions are virtually universal and have, in some respects, become social norms. For this reason, service providers in all areas of human service delivery in these two territories are offering services to victims, and they were therefore interviewed.

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