Halifax developing code of conduct for people living at designated encampment sites

Halifax is in the process of creating a code of conduct for people living at the city's six designated encampments as concerns about safety from the people living in and around the sites persist.

There have been issues at some homeless encampments since more people have started living outside amid an affordable housing crunch in the city. For example, a man died at an encampment site that used to be in front of Halifax city hall in December 2023. There have also been fires, and people living near the sites havecomplained about physical altercations, drug use and harassment.

A staff recommendation on the code of conduct was supported by Halifax regional council at its June 4 meeting.

The report noted the challenge with any rules or guidelines is the need for enforcement measures when someone doesn't adhere to the code.

"Municipal staff, if the resources to support it are available, can develop a code of conduct within a reasonably short period of time," the report noted, though it's not clear when it would be ready.

Brandon LeBlanc said a man from the encampment on University Avenue pushed him out of his wheelchair on July 19. (Danielle Arsenault)

A spokesperson for Halifax Regional Municipality told CBC News that staff are still working to develop the code of conduct and are not able to provide further details.

Brandon LeBlanc, a patient at the Nova Scotia Rehabilitation Centre who has limited mobility, had a violent encounter last month with someone living at the nearby encampment on University Avenue that's surrounded by health-care facilities.

LeBlanc said he and a few other patients and visitors were outside for a smoke break on July 19 when a man from the encampment approached them asking for a cigarette. When they said no, LeBlanc said the man began spitting on them.

"When he spit on my mom, that's when I really got mad and started pushing him back with my wheelchair," said LeBlanc.

"I pushed him back probably 50 feet … telling him to get out of here and he turned around and pushed me and I went over the curb and landed face-first on the ground."

LeBlanc was taken to the emergency department with an injured shoulder. His wheelchair was also damaged.

Fellow rehab centre patient Arnold Mombourquette witnessed what happened to LeBlanc. He said there needs to be better security at the rehab centre with the encampment in such close proximity.

Arnold Mombourquette (left) and Brandon LeBlanc (right) are patients at the Nova Scotia Rehabilitation Centre. They said a man from the encampment approached them on July 19 asking for a cigarette and when they said no, he began spitting at them. (Anjuli Patil/CBC)

Both LeBlanc and Mombourquette acknowledged their concerns don't apply to everybody living at the University Avenue encampment, a site that has been a municipally designated outdoor sheltering location since October 2023.

"Some of them are all right, but you don't know which ones. They're all over the place and there's so many of them … I don't see how they can live like that," Mombourquette said.

Jeff Karabanow, an associate professor with Dalhousie University's school of social work, said a code of conduct created by the city for people living at encampments could be a useful tool — something like "a contract that can provide mutual agreements around behaviour and actions."

Karabanow said research, including some of his own, suggests people living on the streets tend to be victims of crime more often than they are perpetrators.

"A lot of folks living in these particular places [encampments] want them to be open to the public because they feel that's a much safer space for them to survive," he said.

Jeff Karabanow is a professor at Dalhousie University and the co-director of the school of social work's community clinic. (Paul Légère/Radio-Canada)

He said what happened to the patients at the rehab centre is upsetting.

"There is a small element like in any population that is, you know, the word is that they can be exploitative. They can kind of make these encampments unsafe for the vast majority of people. And I think maybe a lot of the street workers are kind of seeing that element sometimes as well," he said.

Karabanow, who has worked for decades with people living on the streets, said most people living in encampments are simply trying to survive and would leave if there were affordable or supportive housing with wrap-around services available.

"They are not safe, dignified places to live. So what we're seeing is an outcrop of a lot of frustration and a lot of stressors that come with really unhealthy living," Karabanow said.

The encampment on University Avenue in Halifax has been a designated outdoor sheltering location since October 2023. (Paul Légère/Radio Canada)

"We know that encampments are just not safe spaces. And it's very difficult for people living in encampments, for neighbourhoods and communities."

A report in February for the federal housing advocate noted an estimated 20 to 25 per cent of homeless people across the country live in tent encampments. The report, titled Upholding Dignity and Human Rights, calls for a national response plan that ensures people in encampments have access to basic necessities by Aug. 31.

Nova Scotia Health told CBC News in an email it is aware of what happened to LeBlanc and is "saddened by this distressing event."

The Nova Scotia Rehabilitation Centre on Aug. 1, 2024. (Anjuli Patil/CBC)

"We prioritize the safety and security of our patients, visitors, and staff," the statement said.

"Our healthcare facilities are designed to be welcoming for all who need care. Staff are trained to treat everyone within our facilities with the utmost respect and dignity so that patients and visitors can feel safe within our walls. We are committed to providing a safe environment and are continuously working to enhance our security measures."

Nova Scotia Health said outside of the incident near the rehab centre, there have been a few incidents lately in and near some of its buildings in which safety was compromised.

IWK steps up security

A move was recently made to begin controlled access in the evenings for all Nova Scotia Health sites, Nova Scotia Health told CBC News in an email on Thursday.

"This should provide a level of comfort to staff, patients and visitors coming to our facilities after hours. During the day our security teams are focused on providing a safe environment for all who enter. Security officers are also available to escort patients, staff and visitors to and from the building if requested," The email read.

Tents are also across the street from the IWK Health Centre's main campus on University Avenue.

A spokesperson for the IWK says they've heard concerns about the encampment from patients and staff "regarding the presence of individuals panhandling on, or around, IWK property."

In response, IWK Health has increased security on its property.

"We recognize that these challenges are complex and that finding effective solutions requires collaboration, compassion and time," said a statement from IWK Health.

IWK Health's main campus faces University Avenue. A spokesperson told CBC News it has stepped up security in response to concerns from staff and patients about the encampment. (Shaina Luck/CBC)

"IWK is committed to playing an active role in the community and working together with local agencies, advocacy groups and interest holders to address the broader issues contributing to homelessness."

Halifax Regional Police told CBC News they did respond to a report of an assault outside the rehab centre on July 19 at approximately 4:30 p.m. They said a man assaulted two people who were not known to him and then left the area on foot.

"The suspect is believed to be identified and the investigation remains ongoing," police said in an email.

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