Inuit Nunangat Policy Network
Northern Canadian policies within a circumpolar ecosystem
Funding Home as Territory: A blueprint for community-driven housing produc;on in Nunavik has received support and funding from the Canada Mortgage and Housing Corpora;on as part of the Northern Access Round 3: Supply Chain Solu;ons for Northern and Remote Housing that supports innova;ve solu;ons that remove barriers to increase Canada's housing supply.
Project Home as Territory: A Blueprint for Community-driven Housing Produc<on in Nunavik aims to foster Inuit autonomy and to invent new forms of engagement between North and South when it comes to meaningful dwelling places.
The Blueprint promotes rich and open intercultural understanding and exchanges by tackling three interdependent “chan;ers” [Building Autonomy • Building Capacity • Building Houses]. Flexible and open to complex ideas, the Blueprint provides paths or i;neraries for inven;ng Stories (or Shared visions), as opportuni;es for greater empowerment
Stories take shape from a chan;er, and are built around a selec;on of promising Mo;va;ons, Assets, and Tools, such as this booklet: Tool 5 • Inuit Nunangat Policy Network.
Chan2er [Building Autonomy] Promo;ng regional governance and collabora;on, mobilizing Inuit tradi;onal and ecological knowledge and ingenuity, and designing inclusive decision-making processes.
Research Habiter le Nord québécois École d’architecture, Université Laval, Québec
Wri6en by
Edited by Samuel Boudreault and CharloZe Audifax Gauthier
Samuel Boudreault
Inuit are a people. Though Inuit live across a far-reaching circumpolar region, we are united as a single people. Our sense of unity is fostered and celebrated by the Inuit Circumpolar Council (ICC), which represents the Inuit of Denmark/Greenland, Canada, USA and Russia. As a people, we enjoy the rights of all peoples. These include the rights recognized in and by various internaJonal instruments and insJtuJons.
Inuit Circumpolar Council, A Circumpolar Inuit Declara:on on Sovereignty in the Arc:c (2009) iccalaska.org/wp-icc/wp-content/uploads/2016/01/Signed-Inuit-Sovereignty-Declara:on-11x17.pdf
Inves*ga*ng the different poli*cal organiza*ons ac*ve in the Arc*c (missions, roles, and rela*onships) provides a beLer understanding of the policy network that shape the Inuit homeland in Canada (Inuit Nunangat). The following pages outline this network at four levels of Inuit representa*on that may shape their journey towards self-determina*on, along with housing-related policies – suppor*ng the main chan*er [Building Autonomy] of the Home as Territory research project: Regional Arc*c policy: Provincial and territorial organiza*ons of Canada, Na*onal Arc*c policy: Pan-Canadian organiza*ons and commiLees of Inuit Nunangat, Circumpolar Arc*c policy: Arc*c Na*ons organiza*ons of Inuit Nunaat, and Interna*onal Arc*c policy: United Na*ons Organiza*on.
1. The Inuit homeland: a defini1on
Inuit Nunangat designates the Inuit homeland in Canada (figure 1).
From Nunavik (northern Quebec) to Nunatsiavut (northern Labrador), Nunavut, and Inuvialuktun (Northwest Territories and Yukon), this cultural network extends far beyond Canadian borders.
The arc*c territory presents various geopoli*cs interests, and its borders are hard to define precisely. Various organiza*ons (figure 2) ensure the representa*on of these interests at different levels, each with their own poli*cal agenda.
Beyond these borders, Inuit Nunaat is used to designate the en*re geographical area tradi*onally inhabited by the Inuit. In the broader sense of Inuit homeland, it refers to all Inuit lands across the circumpolar Arc*c. This includes Canada, Greenland, the United States of America (Alaska) and Russia (Chukotka).
2. Regional policy: Provincial and territorial organiza1ons of Canada
At the regional level (figure 3), Inuit governance typically operates across two fields of ac*on: public administra*on and poli*cal representa*on. The structure and balance of these roles vary across Inuit regions, as detailed in the following sec*on, which also highlights Nunavik’s unique rela*onship with its provincial counterpart, the Government of Quebec.
2.1. Inuit and non-Inuit public administra5on
Star*ng from the most local scale, throughout the different Inuit territories, regional governments with various structures provide public services and administra*on to its popula*on. These are:
• Ka5vik Regional Government (Nunavik): Created under the James Bay and Northern Quebec Agreement, the Ka*vik Regional Government is a non-ethnic public organiza*on offering municipal services, such as water, transporta*on, childcare services, civil security, employment and more, to the villages of Nunavik. It answers directly to the Québec Government.
• Nunatsiavut Government: Created under its land-claim agreement, the Nunatsiavut Government is an autonomous self-government responsible for its territory and its people. It serves the double purpose of public administra*on and poli*cal representa*on.
• Nunavut Government: The Nunavut Legisla*ve Assembly is a non-par*san consensus-based government gaining jurisdic*on through the devolu*on of powers from the federal government. It offers public services to the people of Nunavut.
About housing, this government is developing Nunavut 3000 (2022) a large-scale ini*a*ve based on the Blueprint for Housing Ac@on (2016), which aims at building 3000 housing units in Nunavut by 2030. Planning for housing in all parts of a “Nunavut-specific con*nuum of care”, it focuses on five key strategies to achieve their objec*ves:
- Inves*ng for scale efficiency,
- Op*mizing and standardizing housing design,
- Leveraging exper*se, resources, and funding through partnerships,
Home as territory: A blueprint for community-driven housing produc:on in Nunavik
- Working with municipali*es and the Nunavut Safety Services Division to streamline development processes, - Implemen*ng procurement innova*ons that support supply chain op*ons and enhance the resiliency and compe**veness of the local housing market
• Northwest Territories Government and Yukon Government (Inuvialuktun): The Inuvialuit SeLlement Region is managed by two governing structures as well as its land-claim agreement. Both governments func*on similarly to the Nunavut Government within the Canadian Cons*tu*on.
2.2. Inuit poli5cal representa5on
Four regional en**es were created to nego*ate, administer and manage land-claim agreements, also referred to as Inuit-Crown Trea@es, across Nunangat. They ensure regional poli*cal representa*on for the Inuit occupying said territory. These agreements seLle legal rights of their respec*ve beneficiary within the Canadian legal system. These are:
• Makivvik (Nunavik): Signed on November 11, 1975, the James Bay and Northern Quebec Agreement cons*tute the first comprehensive land-claim agreement in Canada, establishing a milestone for Indigenous people elsewhere. The conven*on paves the way for the construc*on of massive hydroelectric infrastructure over tradi*onal hun*ng and fishing lands. In exchange, financial compensa*ons are agreed on, indigenous rights are defined, and ins*tu*ons, including a regional government (Ka*vik Regional Government), are set up, providing a direct communica*on canal between Québec and Inuit and Crees authori*es.
• Nunatsiavut Government: The Labrador Inuit Land Claims Agreement came into effect on December 1, 2005, amer decades of nego*a*ons, officializing the Labrador Inuit Cons*tu*on and Nunatsiavut self-government.
• Nunavut Tunnagavik Incorpora5on: The Nunavut Land Claim Agreement was signed on May 25, 1993, and created the Nunavut territory out of the Northwest Territories. The treaty was effec*ve as of April 1, 1999, via the Nunavut Act. Along with the crea*on of a regional government, the agreement touches on a wide range of poli*cal, environmental and cultural rights, allowing for par*al land and resource management.
• Inuvialuit Regional Corpora5on: Signed on June 5, 1984, the Inuvialuit Final Agreement is a landclaim agreement s*pula*ng on the rights and benefits of the Inuvialuit in exchange for “the ex*nguishment of their interests based upon tradi*onal use occupancy,” including “lands, financial compensa*on, wildlife management, economic and social development measures.”
2.3. Government of Québec (Province)
The Inuit of Nunavik live under Québec’s jurisdic*on, which is responsible for the well-being of the popula*on, the enforcement of the JBNQA and the management of most of the territory. The provincial government does not dispose of an official Arc*c Policy, although 2011 Plan Nord generally serves as a reference for economic development in the region.
In response to the Plan Nord, Inuit have issued the Plan Nunavik and the consulta*on report Parnasimau@k (2013) which outlines Inuit priori*es and concerns about economic development of the
territory, providing a possible structure for an arc*c policy at the provincial level. Broader in scope, Parnasimau@k addresses many subjects including culture, food security, educa*on, health and social services, jus*ce, housing, employment, families as well as territorial and economic development.
Regarding housing, the social component of which is the responsibility of the Société d’habita*on du Québec, the Quebec government has implemented the Stratégie québécoise en habita@on (2024), led by the Ministère des Affaires municipales et de l'Habita*on. This strategy is structured around two priori*es:
• Support diverse and sustainable housing development (variety of housing types, long-term durability, adap*ve reuse)
• Support household based on their needs (social/affordable housing, renters’ protec*on)
Regional policy in Canada reflects evolving governance models. While each region operates within distinct frameworks, they are united by a shared commitment to Inuit self-determination. The case of Nunavik further illustrates the complexity of intergovernmental relationships, highlighting the need for coherent and inclusive policy approaches.
3. Na1onal policy: Pan-Canadian organiza1ons and commiEees of Inuit Nunangat
At the na*onal level, Inuit geopoli*cs and advocacy are coordinated by two major organiza*ons: Inuit Circumpolar Council (ICC) and Inuit Tapiriit Kanatami (ITK), each with dis*nct missions (figure 4). In recent years, they have developed several policy frameworks in close collabora*on with the government, demonstra*ng a growing commitment to partnership and co-development.
3.1 Inuit poli5cal representa5on
In matters of self-determination and improvement of socio-economic conditions in Inuit Nunangat, the interests of the Inuit are represented and structured as follows:
Home as territory: A blueprint for community-driven housing produc:on in Nunavik Tool 5: Inuit Nunangat
• Inuit Circumpolar Council – Canada: The Inuit Circumpolar Council (ICC) is a non-governmental interregional Inuit organiza*on. Composed of representa*ves from regional organiza*ons, ICC Canada is the most ac*ve branch of the interna*onal organiza*on. At the na*onal level, it provides geopoli*cal representa*on for Canada’s Inuit while fulfilling ICC ’s overall mandate
• Inuit Tapiriit Kanatami: Inuit Tapiriit Kanatami (ITK) is a na*onal non-governmental organiza*on dedicated to improving the quality of life of Inuit in Nunangat. Composed of representa*ves from regional Inuit organiza*ons as well as representa*ves of ICC Canada, it represents Inuit interests in federal poli*cs, and promote inclusion in legisla*on, Inuit unity, educa*on, research, and awareness of Inuit issues. Together with ICC Canada, federal government members and some*mes Inuit-Crown organiza*on members, it forms the Inuit-Crown Partnership CommiLee.
• Inuit-Crown Partnership CommiMee: Founded in 2017, the Inuit-Crown Partnership CommiLee brings together the Government of Canada and elected Inuit officials around a shared commitment to renewing the Inuit-Crown rela*onship. CommiLed to crea*ng a more prosperous Inuit Nunangat, the commiLee is dedicated to improving socio-economic outcomes through its ongoing bilateral mechanism.
In April 2022, the committee presented its Inuit Nunangat Policy, designed for federal departments and agencies, advising them in the design, development and delivery of federal services, policies, projects, and programs applicable in Inuit Nunangat. Aimed at ensuring socioeconomic and cultural equity for Inuit with other Canadians, this policy represents a joint collaborative effort between the parties, recognizing the use Inuktut as essential, supporting selfdetermination and self-government, and reviewing the terms and conditions for allocating funding and recipients. The policy emphasizes the implementation of an approach tailored to Inuit Nunangat, with the aim of improving access to federal programs. Engaging Inuit representatives from the early stages of project development is a key measure to improve the impact of initiatives in Nunangat.
3.2. Government of Canada
In Canada, Indigenous rights are recognized by sec*on 35 of the Cons@tu@on Act of 1982, “Rights of the Aboriginal Peoples of Canada”. More specific rights are detailed in trea*es between Indigenous and the Crown. Canadian measures regarding the Arc*c have only recently included Nunavik. Previously, they only covered Nunavut, the Northwest Territories and Yukon.
Canada’s Arc*c Policies are primarily developed by two en**es: Crown-Indigenous Rela*ons and Northern Affairs Canada (CIRNAC), which focuses on indigenous socio-economic issues, and Global Affairs Canada (GAC), which focuses on geopoli*cs and interna*onal affairs. Because Arc*c territory is essen*al to interna*onal rela*ons, its management falls under the jurisdic*on of GAC, despite Canada’s sovereignty.
• Crown-Indigenous Rela5ons and Northern Affairs Canada (CIRNAC): In 2019, CIRNAC released Canada’s Arc@c and Northern Policy Framework, a document that aims to guide federal investments and ac*vi*es in the North un*l 2030. Through its innova*ve approach to collabora*on and co-development with Indigenous peoples, the government aims to ini*ate a shim towards genuine reconcilia*on. The Framework sets out eight objec*ves for federal ac*ons in the North:
- Indigenous peoples in Canada’s Arc*c and North are resilient and healthy.
- Strengthened infrastructure bridges gaps with other regions of Canada.
as territory: A blueprint for community-driven housing produc:on in Nunavik
- Local and regional economies are strong, sustainable, diverse, and inclusive
- Knowledge and understanding guide decision-making
- Ecosystems in Canada’s Arc*c and North are healthy and resilient
- The rules-based interna*onal order in the Arc*c responds effec*vely to emerging challenges and opportuni*es
- Canada’s Arc*c and North and its people are secure and well-defended
- Reconcilia*on supports self-determina*on and fosters mutually respectul rela*onships between Indigenous and non-Indigenous peoples.
• Global Affairs Canada: In 2024, Global Affairs Canada released a reviewed version of Canada’s Arc@c Foreign Policy which emphasizes:
- Recogni*on of all Inuit as a united people
- Inuit as an indigenous people of the Arc*c and ci*zens of the Arc*c states
- Defining the Arc*c as a way of life rather than geographic demarca*on
- A cri*cal and progressive understanding of the no*on of sovereignty
- Openness and crea*vity in shared territory management
- Territorial sovereignty and the Inuit
- Asser*ng Canada’s sovereignty (diplomacy, governance, inclusiveness)
This latest measure s*pulates that “Arc*c diplomacy should be informed by and benefit Arc*c and northern Indigenous peoples and other northerners.” Guided by the United Na@ons Declara@on of the Rights of Indigenous Peoples, the government seeks to make a genuine commitment to reconcilia*on with its renewed policy, with measures such as the appointment of an Indigenous Arc*c ambassador, the inclusion of subna*onal governments in Arc*c discussions, improving Indigenous representa*on in Global Affairs, and incorpora*ng Indigenous knowledge into research, among others.
In support of the Na*onal Housing Strategy (2024), led by Canada Mortgage and Housing Corpora*on (CMHC), the Northern Housing Policy Recommenda*ons (2019) outlined four key direc*ons to guide the development of a regional housing policy:
• Sustainable housing (culturally appropriate design, cost effec*veness, construc*on methods, and capacity building)
• Suppor*ve housing (partnership assessment, local mul*disciplinary support team)
• Capacity (community-based skills development programs, homeownership awareness, long-termfunding, special youth programs)
• Housing con*nuum (types, tenure and financing op*ons, such as coopera*ves, co-housing, purchase support programs, and public-private partnerships).
Na*onal frameworks and partnerships established in recent years inform and strengthen Inuit par*cipa*on in circumpolar policies, while co-governance models con*nue to move towards selfdetermina*on.
4. Circumpolar policy: Arc1c Na1ons organiza1ons of Inuit Nunaat
Circumpolarly, the voices and territories of Inuit Nunaat are united (figure 5). Each year, a rota*ng forum brings together Arc*c Indigenous organiza*ons and na*ons to address common challenges, fostering mutual understanding and strengthening diploma*c *es in the region.
• Inuit Circumpolar Council: The Inuit Circumpolar Council is composed of four regional chapters (Canada, Alaska, Greenland, and Chutotka), each with its own board of directors. Its mission is to represent Inuit interests interna*onally, promote Inuit unity, protect and sustainably manage the territory, and promote economic development.
Regarding territory, the ICC released its Circumpolar Inuit Declara@on on Sovereignty in the Arc@c. Key points of this declara*on include:
- Recogni*on of all Inuit as a united people
- Inuit as an indigenous people of the Arc*c and ci*zens of the Arc*c states
- Defini*on of the Arc*c as a way of life rather than geographical demarca*on
- Cri*cal and progressive understanding of the concept of sovereignty
- Openness and crea*vity in shared territory management
- Territorial sovereignty and Inuit self-determina*on as intertwined concepts.
• Arc5c Council: The Arc*c Council is an intergovernmental forum composed of the eight arc*c countries with sovereignty over Nunaat territory (Canada, the USA, Denmark, Sweden, Russia, Norway, Iceland, and Finland), and six indigenous organiza*ons occupying the territory (Aleut Interna*onal Associa*on, Arc*c Athabaskan Council, Gwich’in Council Interna*onal, Inuit Circumpolar Council, Russian Associa*on of Indigenous Peoples of the North, and the Saami Council). Many non-Arc*c states and interna*onal organiza*ons have observer status. Regular vo*ng members each discuss their own interests regarding the territory’s administra*on and interna*onal policy within the group. Six working groups are ac*ve on a wide range of topics concerning the management and preserva*on of the territory, its wildlife, and its socio-economic development. The Sustainable Development Working Group supports sustainable, communityinformed investment in Arc*c infrastructure through independent and coordinated efforts.
5. Interna1onal policy: United Na1ons
At the interna*onal level, United Na*ons (UN) exercises som power by shaping interna*onal norms and encouraging na*onal governments to recognize and support Inuit self-determina*on, including through their advocacy for Indigenous rights (figure 6).
In 2007, the UN adopted the Declara@on on the Rights of Indigenous Peoples (UNDRIP), recognizing indigenous peoples worldwide as having special status on various issues, including land rights, cultural expression, iden*ty, language, educa*on, and health. The Declara@on is a comprehensive universal instrument for Indigenous peoples and their rights. Rejected at the *me by Canada, the document was ra*fied in 2016 and is currently being implemented through various measures. It is not yet recognized by the Government of Québec.
With regard to housing, the key aspects of this declara*on include:
• the Right to Adequate Housing and Living Condi*ons (ar*cle 21)
• the Right to Determine Development Priori*es (ar*cle 23)
• the Right to Lands, Territories, and Resources (ar*cle 26)
• Free, Prior, and Informed Consent (ar*cle 32)
These condi*ons ensure that Indigenous communi*es are not only protected from harmful development, but also empowered to lead and shape infrastructure projects consistent with their values and long-term needs.
Conclusion
The policy network shaping Inuit Nunangat, from the regional to the interna*onal level, forms a dynamic ecosystem where local strategies intertwine with the global advocacy efforts. While interna*onal tools like UNDRIP reinforce the right to culturally sustainable development, housing emerges as a founda*on for autonomy, cultural con*nuity, and territorial affirma*on.
References
Canada Mortgage and Housing Corpora*on (2022) Na*onal Housing Strategy. cmhc-schl.gc.ca/nhs
Gouvernement du Québec (2011) Plan Nord à l’horizon 2035 : un projet exemplaire de développement nordique durable mrif.gouv.qc.ca/Content/Documents/fr/FLIP_Plan_Nord_FR.pdf
Gouvernement du Québec (2024) Stratégie québécoise en habita@on du ministère des Affaires municipales et de l'Habita@on. quebec.ca/gouvernement/ministeres-organismes/affairesmunicipales/publica*ons/strategie-quebecoise-habita*on
Government of Canada (1982) Cons@tu@on Act. laws-lois.jus*ce.gc.ca/eng/const/page-1.html
Government of Canada (2019) Canada’s Arc@c and Northern Policy Framework, Crown-Indigenous Rela*ons and Northern Affairs Canada. rcaanc-cirnac.gc.ca/eng/1560523306861/1560523330587
Government of Canada (2022) Inuit Nunangat Policy, Inuit-Crown Partnership CommiLee. rcaanccirnac.gc.ca/eng/1650556354784/1650556491509
Government of Canada (2024) Canada’s Arc@c Foreign Policy, Global Affairs Canada. interna*onal.gc.ca/gac-amc/publica*ons/transparency-transparence/arc*c-arc*que/arc*c-policypoli*que-arc*que.aspx
Government of Canada and CommiLee for Original Peoples’ En*tlement (1984) Inuvialuit Final Agreement irc.inuvialuit.com/about-irc/inuvialuit-final-agreement
Government of Canada and Labrador Inuit Associa*on (2005) Labrador Inuit Land Claims Agreement Act gov.nl.ca/exec/iar/overview/land-claims/labrador-and-inuit-land-claims-agreement-document
Government of Canada and Tunngavik Federa*on of Nunavut (1993) Nunavut Land Claims Agreement Act nlca.tunngavik.com
Government of Nunavut (2016) Blueprint for Ac@on on Housing. Nunavut Housing Corpora*on. blueprintorac*on.ca
Government of Nunavut (2022) Nunavut 3000. Nunavut Housing Corpora*on. nunavuthousing.ca/igluliuqa*giingniq/goals-and-objec*ves
Grand Council of the Crees, Northern Quebec Inuit Associa*on, Government of Quebec and Government of Canada (1975) James Bay and Northern Quebec Agreement (JBNQA) publica*onsduquebec.gouv.qc.ca/produits-en-ligne/conven*ons/lois/james-bay-and-northernquebec-agreement-and-complementary-agreements
Inuit Circumpolar Council (2022) A Circumpolar Inuit Declara@on on Sovereignty in the Arc@c. inuitcircumpolar.com/icc-interna*onal/circumpolar-inuit-declara*on-on-arc*c-sovereignty
Inuit of Nunavik (2010) Plan Nunavik: Past, Present and Future. parnasimau*k.com/fr/plan-nunavik-pastpresent-and-future
Inuit of Nunavik (2013) Consulta@on report Parnasimau@k. parnasimau*k.com/fr/2014-consulta*onreport
Northern Housing Forum Par*cipants, Stratos Inc. and Polar Knowledge Canada (2019) Northern Housing Policy Recommenda@ons. canada.ca/content/dam/polar-polaire/documents/publica*ons/northernhousing-forum/NHF%20-%20Policy%20recommenda*ons%20-%20EN%20-%20FINAL.pdf
United Na*ons (2007) Declara@on on the Rights of Indigenous People social.desa.un.org/issues/indigenous-peoples/united-na*ons-declara*on-on-the-rights-ofindigenous-peoples
Home as territory: A blueprint for community-driven housing produc:on in Nunavik Tool 5: Inuit Nunangat Policy Network
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