NWT Association of Municipalities Workshop Report

"Community Priorities: Establishing the Framework"
Fort Simpson, NWT,   May 27^th, 2000

I INTRODUCTION

This report details the discussion that took place on May 27^th, 2000. Representatives from across the NWT attended an afternoon workshop to discuss the Canadian Rural Partnership initiative in the NWT, and the eleven priorities identified in the 1998 Canadian Rural Partnership Dialogue.

The purpose of the discussion was fourfold:

• To provide an overview of the NWT Partnership Team for the members of the NWT Association of Municipalities representatives;
• To encourage participation in the NWT Partnership Team;
• To begin a planning process that would select northern priorities from the priorities identified by the partnership;
• To develop action plans for the various levels of government related to the selected northern priorities.

The event was facilitated by Elaine Stewart. The small groups were facilitated by Chuck Brumwell, Linda Hayden, Nathanael Olson, Sandra Turner and Elaine Stewart. A list of participants is included in Appendix A.

The partnership is a cross-departmental initiative of the federal government which encompasses the social, economic, cultural and environmental priorities. The two objectives of the Canadian Rural Partnership are:

• build strong rural and remote communities, and

• connect with rural and remote citizens.

These 11 priorities are:

• access to programs and services
• access to financial resources
• targeted opportunities -programs and services - for youth and Aboriginal youth
• strengthen community capacity building, leadership and skill development
• develop and maintain community infrastructure
• connect rural and remote Canadians to the knowledge-based economy and help them acquire necessary skills
• strengthen economic diversification through targeted assistance
• access to health care
• learning and literacy (access to education)

• fostering strategic partnerships to facilitate community development

• promote and recognize the value of rural and remote Canada

The Canadian Rural Partnership teams in each province and territory have been identifying their own items from the list of 11 priorities.

Canadian Rural Partnership Team – NWT History

The Canadian Rural Partnership Team in the NWT was formed in 1998 and includes members from the federal and territorial departments and representatives from the Northwest Territories Association of Municipalities. The NWT Partnership Team is co-chaired by Environment Canada and Municipal and Community Affairs. The team has been exploring how the government can support community development in an enhanced collaborative approach.

The NWT Partnership Team’s accomplishments to date include:

1998/1999

• Production of a document summarizing 12 consultations on community issues in the NWT. This document was developed for the 1998 National Rural Conference and was used to develop the 11 Canadian Rural Partnership priorities;
• Participation in the 1998 Rural Dialogue Process and 1998 National Rural Conference;
• Coordination of two 1998-1999 Canadian Rural Partnership pilot projects — "More than dogs, ditches & dumps," Councillor orientation, CD-Rom and the Kivalliq Planning Project;
• Hosting the December 7, 1999 information session and planning retreat in Yellowknife;
• Organization of monthly NWT Partnership Team meetings;

1999/2000

• Involvement in the selection of the four 1999-2000 Canadian Rural Partnership pilot projects, including: NWT Literacy Council—"A participatory framework for enhancing community involvement within the volunteer and ‘not-for-profit’ sectors;" Town of Hay River – Hay River Community Economic Development Authority; Inuvik Community Garden project; Western Arctic Handbook project;

2000/2001

• Involvement in the selection of the 2000-2001 CRP pilot projects;
• Sponsorship of the Service Canada Pilot Project resulting in the creation of Service Canada sites in Rae Edzo, Fort Providence, Fort McPherson and Fort Simpson;
• Involvement in the 2000 National Rural Conference (April 27–30, 2000). The Canadian Rural Partnership organized a presentation session for the NWT delegates, manned the NWT exhibit and coordinated the NWT resident involvement in the event;
• Hosting a Rural Dialogue event with community leaders during the NWT Annual Meeting of the NWT Association of Municipalities in Fort Simpson, May 27, 2000;
• Hosting monthly NWT Partnership Team meetings.

III. AGENDA FOR THE MAY 27^TH WORKSHOP

• Welcome and overview of workshop

• Overview of the Canadian Rural Partnership and the11 priorities

• "Dot Democracy" to determine the top priorities for northern communities

• Small group workshops to discuss northern priorities and respond to the following questions:

• Why is this an issue?
• What actions need to be undertaken by the various levels of government in order to address these issues?
• How should the communication process continue between communities and the NWT Partnership Team?

• Small groups present their ideas to the large group

• Evaluations and closure

IV. PROCEEDINGS

The following are the five (of the eleven) national priorities that emerged as a result of the dot democracy exercise. (Please note that the numbers refer to the numbering system of the eleven national priorities, and do not reflect ranking.)

#2. Improve access to financial resources for business and community development.

#3. Provide more targeted opportunities, programs and services for youth.

#4. Strengthen community capacity building, leadership and skill development.

#5. Maintain and develop community infrastructure.

#8. Improve access to health care.

The following document reports small group responses to the discussion questions. Each report includes a list of desired actions for various levels of government.

V. Priority Area #2

The participants complained that revenue from resources extracted from the north does not remain in the north to help develop capacity and infrastructure or benefit northern citizens, the NWT government, First Nations or northern communities. Currently, there is no link between policies related to resource extraction and policies related to how the funds are reinvested into the north through federal transfer payments. The participants wanted the federal government to provide a more integrated or holistic policy.

The participants stated that it is difficult to develop self-sufficiency when the part of the wealth related to resources does not come back to the communities — when there are no royalties or local ownership. What we need, the participants said, are long-term resource agreements that would help resource-based development and promote sustainability.

Actions that need to be taken by various levels of government

Federal – the federal government must ensure that northerners benefit from northern resource development, e.g. revenue sharing, royalties etc.

Federal/Territorial/First Nation – the federal, territorial and First Nations partners need to negotiate a revenue sharing formula, e.g. royalties.

Territorial – the territorial government needs to deal with ‘fly in - fly out’ employees by developing a flat tax on wages as opposed to a percentage of federal tax (to create an incentive to live in the north).

First Nations – First Nations need to complete land-use plans and then decide on development and revenue sharing.

Federal/Territorial – the federal and territorial governments need to provide expertise and data to complete land-use plans.

Communities – northern communities need to be aware of land-use plans and any future development plans so they can prepare and plan for this development, e.g. strategies for skills, infrastructure etc. (Note - also tied to actions in theme #2)

The participants thought that the federal government should help them inventory community resources and assets. Apart from financial gain, this would promote and create greater awareness of community resources and assets (labour skills, community infrastructure and businesses, etc).

The participants addressed the need for better access to financial tools and resources. They said that local businesses and communities need to know about the government and private financial resources that are available to them.

The participants thought that it was necessary for community leaders and residents to develop the capacity and business skills to manage community resources and make good business decisions and to encourage financial investment within their communities. The participants further suggested that there is a need for a "Business Skills 101" program and wanted the government to encourage sustainable business development.

Actions that need to be taken by the various levels of government

Federal – The federal government needs to develop and fund policies that fit the realities of northern communities. These communities should not have to change their strategies and priorities because the government’s economic policies and programs do not reflect the communities’ realities.

Federal/Territorial – The federal and territorial governments need to understand good business and financial practices in the north in order to develop better policies and programs.

Territorial – To help build the financial and business capacity of community leaders, the territorial government needs to fund a ‘School of Community Government.’ This would help the leaders to manage resources, develop good local business environment and make good investment decisions.

Municipal/First Nations – The municipal and First Nations governments must take the lead to develop community profiles and data-bases of resources (natural, human, social, leaders, community groups, financial, physical, business). The databases would be used by communities, governments, private businesses and financial institutions.

Federal/Territorial – The federal and territorial governments must support the municipal and First Nations governments in the development of community profiles and data-bases of resources by creating and sharing appropriate data and information.

Municipal/First Nations – The municipal and First Nations governments should provide northern communities with information about their resources. This would help potential businesses make informed investment decisions.

Federal/Territorial – The federal and territorial governments should support northern communities by providing programs with technical assistance and detailed information regarding community resources.

Municipal/First Nations/Territorial/Federal – All levels of government should actively encourage northern youth to stay in school (secondary and post-secondary), and help build community capacity and skills related to finance and business.

Municipal/First Nations – The municipal and First Nations leaders need more financial, business and administrative management training and workshops to develop decision-making capacity, understand good business and investment practices and feel comfortable with the jargon.

All levels of government should cooperate to build data and information sharing systems and expand the existing IT infrastructure, in order to create greater awareness of community resources.

The participants agreed that there is a need for an agency similar to the Canada Mortgage and Housing Corporation to provide seed capital and insurance for loans. They complained that there are no broad economic development programs relating to business development, and that the existing program criteria are often too restrictive.

They also mentioned that federal policy analysts do not understand the north and therefore do not develop good policies and programs. For example, financial programs are developed from a government’s perspective rather than from a community’s perspective. Adhering to inadequate government criteria forces communities to compromise their own needs and priorities.

The participants also complained that the federal government encourages dependency instead of self-sufficiency in northern communities. Providing social housing instead of loans or other incentives that create ownership was one of the examples given.

Actions that need to be taken by the various levels of government

Federal/Territorial – The federal and territorial governments need to do a better job of talking to communities in plain, concise English.

Federal/Territorial – The federal and territorial governments need to develop programs that fit community needs, strategies or action plans, rather then having communities fit into program criteria that are not relevant to the community’s reality.

Federal/Territorial – The federal and territorial governments (the Canadian Mortgage and Housing Corporation) need a way to mitigate some risk for banks to encourage them to invest in small northern communities (e.g. guarantees on the front end of loans.)

Federal/Territorial – Both the federal and territorial governments need a program that would encourage home ownership.

Federal – The federal government’s policy and program decision-makers are too remote and removed from northern issues and realities.

Municipal/First Nations – The municipal and First Nations governments need to meet with government politicians and officials to discuss community realities, conditions and development expectations.

First Nations – First Nations need to create greater awareness of their business development programs in communities.

The participants addressed the fact that the Banking and Financial Organizations (B&FOs) require higher down-payments in the north. They complained that the B&FOs are ignorant of community resources and do not make informed investment decisions. For example, northerners require a 50% down payment for the purchase of a commercial property. The participants were also unhappy that the B&FOs refuse to operate out of small or remote communities.

Actions that need to be taken by the various levels of government

Municipal/First Nations – The municipal and First Nations representatives need to meet with banking officials and discuss community realities, conditions and development expectations.

Actions that need to be taken by various levels of government

The group felt that the individual communities must determine what is required to address the local issues. Once the community has completed the assessment and established priorities for action(s), it should ask the various levels of government to act as facilitators. The key to success is the communities’ initiative to take ownership of the issues and move to address them.

Community Assessment

The participants wanted the government’s support for this community-based initiative. They requested however, that the federal government postpone any direct involvement until such involvement is formally requested by the community.

The communities, according to the participants, will identify issues, establish priorities and develop an Action Plan on their own. The federal government’s support will be required in locating funding sources and establishing a cooperative approach to solutions.

Further support may be required in establishing education/skill development projects, but as the participants remarked, "don’t train someone for non-existent jobs." The participants also mentioned that northern youth should be represented on the various community boards, i.e. School Board, Municipal Council, Territorial and federal forums.

The participants felt that there are few support systems for those pursuing education or receiving health care away from their home community, and said that dealing with homesickness can be hard.

The participants discussed what constitutes a good support system. Access to elders, well-organized social services and good communication were some of their ideas. They also remarked that school counsellors should be more sensitive to the Aboriginal youth’s needs.

The participants also wanted the federal government to create a way for the community to have input into income support programs, and ensure that the programs are delivered in the communities. For example, completing a specified number of community service hours each month could be a requirement for receiving income support payments.

Finally, the participants discussed the changing role of family in the community. They said that children must be a number one priority for parents. They also talked about parents setting a good example and providing a leadership role for their children. To provide these values, parents must learn to recognize the rights and responsibilities of all family and community members, and participate in children’s activities. They must also take time to learn and understand cultural and traditional activities and recognize the role of spirituality in their family’s life.

The concerns originating within (and pertaining to) the community were the first theme related to this priority. These concerns included unrealistic expectations with regard to federal government programs, unwillingness of capable people to get involved and widespread apathy.

The second theme within this priority related to government’s role in community capacity building, leadership and skill development. Here, the participants were concerned with a conflict of priorities, responsibility, the lack of tools and financial resources and overly complicated government rules and policies. They also complained about the government’s habit of giving the same responses over and over, whether or not the information is relevant to the inquiry.

Actions that need to be taken by the various levels of government

The participants agreed that they need a new approach. This new approach must begin with the communities’ and First Nations’ members creating a vision together and aligning the available resources to achieve it. All too often, the participants complained, the First Nations groups communicate with the federal government and northern communities communicate with the territorial government.

The participants agreed that if there were a commonly held vision among the First Nations and other northern communities, common priorities would be easier to establish. They said that such a common vision is possible, and once established, could be pursued in a coordinated manner and with collaboration of the federal and territorial governments.

The participants called for better organization and streamlining of the territorial and federal programs, especially the ones that are aimed to achieve the same goals. Both governments need to pay attention to the community’s request for simplification of governments policies. In addition, both governments need to make the tools and financial resources more available to help the community implement the changes.

Federal – The participants addressed the federal government by saying "Just plain listen!" A population-based funding formula doesn’t work. Such a formula must be revised and based on the unique needs of rural and northern communities. The participants also wanted the federal government to align its programs with the territorial government’s programs.

Territorial – The participants addressed the territorial government with a similar request — work with the federal government to align programs that are relevant to rural and remote Canadians. The participants wanted the territorial government to provide financial resources and give rural residents time for preparation and training for new responsibilities. They also requested a change in the approach and delivery of programs and services.

Municipal and First Nations – the participants wanted the municipal and First Nations leaders to take more control over their communities’ future. The participants wanted their leaders to speak to and challenge their superiors, and create a vision for the communities. The participants also mentioned that a more collective approach to accepting and utilizing programs, services and financial resources would be helpful.

The participants named a number of issues related to the development of community infrastructure, roads in particular. They complained that the roads are in bad shape, that more roads are needed (some communities have winter road access only), and that many people experience health problems due to dusty, unpaved roads.

The participants also addressed the problems related to the technological and quality of life infrastructures in the north. They complained that getting connected to the Internet is still a problem in many communities. In fact, the participants said that many small communities are at a disadvantage when compared to the bigger ones. Great distances, high costs and government red tape all contribute to this problem. The participants wanted the government’s help in establishing a process that would allow northern communities to control their own growth.

The following theme areas emerged from the discussion:

• Funding
• Roads (municipal and territorial)
• Environment
• Water and sewer (community infrastructure)
• Technology infrastructure
• Quality of life infrastructure

The participants determined that funding is the most significant issue and developed three potential solutions to address it.

Actions that need to be taken to address this theme area:

Federal level —The participants agreed that the federal government’s community infrastructure program is good. The program needs to be continued, but improved (made more flexible—not ‘use it or lose it’). The participants wanted a two- to five-year timeline for the use of funds.

Territorial level — The territorial government must continue its funding for emergency situations (Municipal and Community Affairs.) The NWT government must set aside funds for the Federal Infrastructure Program (apply the 33% of funds for this program.)

Community level/First Nations level – The participants were worried that some communities may not have the 33% to contribute to the development of the infrastructure.

Territorial level/First Nations level – The participants wanted the territorial government and First Nations to continue to work on an arrangement around the Northern Accord and the money available for community infrastructure improvement. The participants said that talks between these two levels must continue as the federal government is watching and waiting.

Community level/First Nations level – The participants agreed that the community leaders must meet with the First Nations groups to discuss working together. The community participants said that the First Nations have money to invest in community infrastructure projects (joint ventures) and that some communities should perhaps borrow money from them. The First Nations representatives, on the other hand, wanted to play a larger role (ownership and visibility) in community infrastructure (create joint use agreements).

Lack of resources

The participants were concerned about the outdated and inadequate facilities. They said that hospitals lack the capacity to administer many treatments and that mental health, in particular, is under-funded.

Attraction, retention and training of professionals and paraprofessionals

The participants complained about the lack of health professionals in the north, and discussed ways of attracting and retaining these professionals in the future. They thought that a good way of addressing this problem would be to provide the education and training opportunities for northern communities to develop their own professionals and paraprofessionals.

The participants were also concerned about the effect large distances between the communities have on the efficiency of health care. They said that emergency services were inadequate and federal funding insufficient (not "keyed" to population). They also addressed the problem of rotations of medical visits in northern communities (too infrequent).

Improved planning process is needed to better address prevention

The participants were concerned that the Fetal Alcohol Syndrome and Fetal Alcohol Effect are having a huge impact on many communities, and expressed a need for more drug and alcohol counselling.

They were also concerned that elders in many communities need more personal care and added that that there is not enough preventative health care in general.

The participants also mentioned the need for better planning in allocating resources.

Actions that need to be taken by the various levels of government

Federal – The federal government needs to coordinate funding with the requirements of the Canada Health Act (apply for an increase in funding). The participants wanted to lobby the government for resource revenue sharing, better elder care facilities and exploring a co-insurance potential.

Territorial – The participants wanted the territorial government to provide adequate and affordable housing for health professionals. They also agreed to work with the Aurora College to develop programs for training more northerners for health-related work, and provide more infrastructure to help with that training (e.g. child care).

The participants requested that the government improve basic education (focussing it on the needs of northerners), so that the youth leave school with adequate entry-level skills to be able to enter health professions.

Finally, the participants wanted to explore best practices and look at the use of resources, and requested more money for community and cultural orientation for incoming health care staff.

Municipal/Regional

The participants wanted the municipal and regional representatives to develop plans for welcoming and orienting new health care staff. The participants also talked about improving strategies for optimal delivery of programs within communities and addressed the need for childcare for potential students in health care programs. They also mentioned improving delivery of training programs to meet the needs of those who desire training.

First Nations

The participants wanted help with exploring the most effective ways to deliver prevention programs, especially to the elderly. The First Nations representatives expressed a desire to work with communities to improve cultural orientation of new staff and to provide input with regard to plans for the best positioning of resources.

Finally, the participants wanted to work with the territorial government to highlight the Aboriginal role models in health care professions.

To pursue an effective, two-way communication with northern communities the participants recommended that the NWT Partnership Team should:

• Create an information centre to provide information on what programs and services are available.

• Set up four meetings a year, in which the municipalities and First Nations could link by conference call. The purpose of the meetings would be to report on actions and accomplishments, and provide information on new programming.

• Send out notices about new information by e-mail or fax.

• Develop a reporting system on new actions and initiatives.

• Develop a Web page or set up a community bulletin board where the federal, territorial, municipal and First Nations information can be shared. The NWT Partnership Team would also report on its accomplishments and share information on this site.

• Create an executive summary (one pager) on individual issues – send it to all communities. Make the summary interactive – ask questions so that the report recipients can respond and provide input on an ongoing basis.

• Share good news regarding effective collaborations.

XI. EVALUATION SUMMARY

Overall, the participants felt that the workshop was a worthwhile opportunity to discuss important issues of mutual concern. They also felt that the process was effective and enjoyable, and allowed all people to participate and share their knowledge and questions.

The most beneficial aspects of the workshop:

• Small group discussions—they keep the participants more focussed on a specific issue. It’s amazing how much information people actually have!
• Working with other participants who identified different issues and ways of dealing with them
• Being able to discuss youth-related issues—especially education
• Working in a small group (x10)
• Discussing common issues with other leaders
• Validating the sources of problems and proposing possible solutions
• All the issues were very good
• Hearing reports from small groups was very good (x4)
• Grass roots consultation—not government leaders

The least interesting and beneficial aspects:

• No response (x8)
• History of Canadian Rural Partnership at the start of the meeting (x5)
• The frustration of not having adequate solutions (x2)
• An overview of the presentation from groups

Recommendations made by participants to the NWT Partnership Team:

• Work with the communities—"teach us and we can teach you"
• More meetings on a regular basis i.e. small packages that arrive quarterly.
• Dollars are needed to achieve our goals
• More communication
• More federal support in terms of manpower and financial resources
• Try to resolve one priority rather than all 11
• Keep doing what you are doing—you’re doing a good job
• Keep in touch! Set up lines of communication and have timely delivery of information
• Ensure that these recommendations aren’t ‘lost in the shuffle’ in Ottawa
• Listen to the concerns and work together to develop solutions
• Obtain copies of community consultation surveys already completed by the NWT government. "The North has been surveyed to death! This may be a chance to finally put these costly surveys to good use!"
• More feedback from and to the communities
• Feedback from youth on the draft report on Youth Programs

Additional comments

The participants wanted to ensure that there is a team in place that can assist communities in putting proposals together for various initiatives. The person representing the Enterprise Settlement Council asked if the NWT Partnership Team would assist the local community in requesting more funding from the federal government. He also wanted to know if the community would get a report from the NWT Association of Municipalities annual meeting workshop, and expressed an opinion that the results from this workshop should be implemented in the near future.

Finally, the participants suggested that a 1.5-day meeting would allow them to discuss the issues in more detail, and praised the NWT Partnership Team for organizing a great workshop.

APPENDIX "A"
NWT Annual General Meeting 2000
List of Registered Delegates