Intersections between Precarious Housing and Residential Tenancy Law: A Review of A Complex Exile and Recent Legal Scholarship on Residential Tenancies

Authors

Anna Lund, Faculty of Law, University of Alberta

Document Type

Article

English Abstract

This review essay challenges siloed thinking about housing precarity by bringing a sociological account of emergency shelters in Ottawa, Canada–Erin Dej’s book A Complex Exile–into conversation with recent scholarship from Canadian academics on residential tenancy law.3 One intuition underlying this essay is that we need to think about these disparate legal regimes as comprising a bigger system of housing law. Bringing these areas of law into conversation with one another allows us to identify common themes and these may inform statutory reform initiatives, changes to practice, and advocacy on related social issues. Promising innovations in one area of housing law may be relevant to the regimes that govern other shelter arrangements. Looking at housing law more holistically also enables us to identify how the different regimes leave gaps, create conflicts, and otherwise prove challenging for the individuals who navigate amongst them.

Citation Information

Lund, Anna. "Intersections between Precarious Housing and Residential Tenancy Law: A Review of A Complex Exile and Recent Legal Scholarship on Residential Tenancies." Journal of Law and Social Policy 36. (2023): 44-63.
DOI: https://doi.org/10.60082/0829-3929.1451
https://digitalcommons.osgoode.yorku.ca/jlsp/vol36/iss1/4

References

1 See e.g. Vancouver Fraser Port Authority v Brett, 2020 BCSC 876.

2 Terry Skolnik, "Rethinking Homeless People's Punishments" (2019) 22:1 New Crim L Rev 73 at 77-78 https://doi.org/10.1525/nclr.2019.22.1.73 Student Legal Services of Edmonton, "No Fixed Address: How Transit Peace Officers and Edmonton Police Services prohibited and penalized homelessness in 2018" (December 2019), online (pdf): [https://static1.squarespace.com/static/5b19871eee1759f2bea0f69b/t/5de31e7536172f0b2fbfc1da/1575165560055/No+Fixed+Address.pdf] [perma.cc/ZYS2-5HY4].

3 Erin Dej, A Complex Exile: Homelessness and Social Exclusion in Canada (Vancouver: UBC Press, 2020).

4 Ibid at 51.

5 Ibid at 4-8 (describing her methods).

6 Ibid at 117.

7 In Chapter 2, Dej synthesizes the literature on the disproportionate prevalence of mental illness and addiction amongst the homelessness population. Ibid.

8 Ibid at 168. Terry Skolnik characterizes this pressure to comply as a form of domination, whereby homeless individuals are not truly free because they must submit to the dictates of relatively powerful actors to avoid being subject to more direct interference. See Skolnik, "Freedom and Access to Housing: Three Conceptions" (2018) 35 Windsor YB Access Just 226 at 240. https://doi.org/10.22329/wyaj.v35i0.5690

9 Dej, ibid at 119.

10 Ibid at 131.

11 Ibid at 132.

12 Ibid at 161, see also 132.

13 Buhler & Tang, "Navigating Power and Claiming Justice: Tenant Experiences at Saskatchewan's Housing Law Tribunal" (2019) 36 Windsor YB Access Just 210. https://doi.org/10.22329/wyaj.v36i0.6421

14 Buhler & Catriona Kaiser-Derrick, "Home, Precarious Home: A Year of Housing Law Advocacy at a Saskatoon Legal Clinic" (2020) 32 J L & Soc Pol'y 45. https://doi.org/10.60082/0829-3929.1377

15 Emily Paradis similarly concluded that tenants benefit when offered legal services in matters before Ontario's Landlord and Tenant Board, Emily Paradis, "Access to Justice: The Case for Ontario Tenants" (October 2016) at 11, online (pdf): Advocacy Centre for Tenants Ontario [https://www.acto.ca/production/wp-content/uploads/2017/07/TDCP_Report_2016.pdf] [perma.cc/445D-AM2Y].

16 Wiseman, "Paralegals and Access to Justice for Tenants: A Case Study" in Trevor CW Farrow & Lesley A Jacobs, eds, The Justice Crisis: The Cost and Value of Accessing Justice (Vancouver, BC: UBC Press, 2020) at 173-191. https://doi.org/10.59962/9780774863599-013

17 Rafferty Baker, "Expo 86 evictions: remembering the fair's dark side" (4 May 2016), online: CBC News [https://www.cbc.ca/news/canada/british-columbia/expo-86-evictions-remembered-1.3566844] [perma.cc/FE7R-547V] "Terminal City" (26 May 2021) at 00h:24m:44s, online (podcast): Canadaland Commons [www.canadaland.com/podcast/real-estate-3-terminal-city/] [perma.cc/YYX7-4VAW].

18 Sarah Zell & Scott McCullough, "Housing Research Report: Evictions and Eviction Prevention in Canada" (May 2020), online (pdf): University of Winnipeg Institute of Urban Studies [https://eppdscrmssa01.blob.core.windows.net/cmhcprodcontainer/sf/project/archive/research_6/evictions-and-eviction-prevention-in-canada.pdf] [perma.cc/PKV8-BLLN].

19 Ibid at 59 (describing interview sample).

20 Ibid at 9 (mass evictions).

21 Ibid at 3, 26-30. Redevelopment pressures were also a common cause of mobile home park closures in Canada, see Anna Lund, "Tenant Protections in Mobile Home Park Closures" (2021) 53:3 UBC L Rev 753 at 817-30. On the tactics used by financialized landlords to increase profits from multi-family rental properties, see Martine August, "The Financialization of Canadian Muti-Family Rental Housing: From Trailer to Tower" (2020) 42:7 J of Urban Affairs 975 at 985-89.

22 Zell & McCullough, ibid at 8.

23 Ibid at 33, 54.

24 Lund, supra note 21.

25 Esther Sullivan, Manufactured Insecurity: Mobile Home Parks and Americans' Tenuous Right to Place (Oakland: University of California Press, 2018). https://doi.org/10.1525/9780520968356

26 Hamilton, "Reforming Residential Tenancy Law for Victims of Domestic Violence" (2019) 8 Annual Rev of Interdisciplinary Justice Research 245. See also the three reports that Lois Gander authored for the Centre for Public Legal Education Alberta on the intersections between domestic violence and residential tenancy law: Lois Gander & Rochelle Johannson, "The Hidden Homeless: Residential Tenancies Issues of Victims of Domestic Violence" (June 2014) at 6, online (pdf): Centre for Public Legal Education Alberta & University of Alberta [https://www.cplea.ca/wp-content/uploads/2015/01/FINAL-Report-The-Hidden-Homeless.2014Jun05.pdf] [perma.cc/VX4C-GT4V] (examining how "the law, legal process, and policies of housing and legal services agencies are implicated in what can quickly become a downward slide into homelessness for victims of domestic violence."); Lois Gander, "Domestic Violence: Roles of Landlords and Property Managers" (February 2017), online (pdf): Centre for Public Legal Education Alberta [https://www.cplea.ca/wp-content/uploads/2017/04/HTE-DV-Roles-LL-and-PM-FinalReportFEB2017.pdf] [perma.cc/Z37R-MKDM] (exploring the role that property managers and landlords can play in helping tenants who are experiencing domestic violence); and Lois Gander & Megan Siu, "Domestic Violence Resources for Landlords and Property Managers" (July 2018), online (pdf): Centre for Public Legal Education Alberta [https://www.cplea.ca/wp-content/uploads/DVresources-for-LLandPMsFinalJuly2018.pdf] [perma.cc/4UN2-G8WT] (reporting on efforts to support landlords in their work with victims of domestic violence). Following the publication of the first Gander report, Jennifer Koshan and Jonnette Watson-Hamilton wrote a series of posts dealing with the legal issues raised by Gander. These posts have been collected into an e-book: Jennifer Koshan and Jonnette Watson Hamilton, "Landlords, Tenants and Domestic Violence: An ebook collection of ABlawg posts concerning residential tenancies and victims of domestic violence" (6 December 2017), online (pdf): ABlawg [https://ablawg.ca/wp-content/uploads/2017/12/DV_Law_Ebook.pdf] [perma.cc/8ZA3-ZFA8].

27 Watson Hamilton, "Reforming Residential Tenancy Law", ibid at 262.

28 Koshan, "Mapping Domestic Violence Law and Policy in Alberta: Intersections and Access to Justice" (2021) 58:3 Alta L Rev 521 https://doi.org/10.29173/alr2640 Residential Tenancies Act, SA 2004, c R-17.1. This article was written as part of a bigger, multi-jurisdictional mapping project, see Jennifer Koshan, Janet Mosher and Wanda Wiegers, Domestic Violence and Access to Justice: A Mapping of Relevant Laws, Policies and Justice System Components Across Canada, 2020 CanLIIDocs 3160.

29 Koshan, supra note 28 at 524.

30 Koshan, ibid at 526, 539, 545; Protection Against Family Violence Act, RSA 2000, c P-27.

31 Leilani Farha & Katilin Schwan, "The Front Line of Defence: Housing and Human Rights in the Time of COVID-19" in Colleen M Flood et al, eds, Vulnerable: The Law, Policy and Ethics of COVID-19 (Ottawa: University of Ottawa Press, 2020) at 357.

32 Ibid at 355-366.

33 Ibid at 361-62.

34 Ibid at 363-64.

35 Buhler, "Pandemic Evictions: An Analysis of the 202 Eviction Decisions of Saskatchewan's Office of Residential Tenancies" (2021) 35 JL & Soc Pol'y 68. Reporting on Alberta's eviction moratorium, see Jonnette Watson Hamilton, "Residential Tenancies in Alberta: Evictions for Non-Payment of Rent No Longer Suspended" (30 April 2020), online (blog): ABlawg [https://ablawg.ca/2020/04/30/residential-tenancies-in-alberta-evictions-for-non-payment-of-rent-no-longer-suspended/] [perma.cc/3545-5CAA]. https://doi.org/10.60082/0829-3929.1424

36 Detailing eviction moratoriums in Canada's provinces and territories, see "COVID-19: eviction bans and suspensions to support renters" (25 March 2020), Canadian Mortgage and Housing Corporation online: [www.cmhc-schl.gc.ca/en/consumers/renting-a-home/covid-19-eviction-bans-and-suspensions-to-support-renters] [perma.cc/6KBM-T6Z5].

37 Bulher, supra, note 35 at 85-86.

38 Predicting that the spike may still be coming, see Ricardo Tranjan, "With more than 250,000 households in arrears, it's time for rent forgiveness" (20 March 2021) Policy Options online: [policyoptions.irpp.org/magazines/march-2021/with-more-than-250000-households-in-arrears-its-time-for-rent-forgiveness/]

39 Following the end of the eviction moratorium in Alberta, the government imposed a duty on landlords to attempt to negotiate a payment plan with tenants before evicting them, see Jonnette Watson Hamilton, "Can an Alberta Landlord's Duty to Make Reasonable Efforts to Negotiate a Meaningful Payment Plan with Residential Tenants before Evicting Tenants be Enforced?" (25 May 2020), online (blog): ABlawg [https://ablawg.ca/2020/05/25/can-an-alberta-landlords-duty-to-make-reasonable-efforts-to-negotiate-a-meaningful-payment-plan-with-residential-tenants-before-evicting-tenants-be-enforced/] [perma.cc/X7R9-BVFV].

40 Bulher, supra, note 35 at 81. But see "Digital Evictions: The Landlord and Tenant Board's experiment in Online Hearings" (June 2021), online (pdf): Advocacy Centre for Tenants Ontario & Tenant Duty Counsel Program [https://www.acto.ca/production/wp-content/uploads/2021/06/Digital-Evictions-ACTO.pdf] [perma.cc/M3CG-RCSX] (raising concerns about the impact of digital hearings on tenants living with low-income, and those who are illiterate, English as a second language, or suffering from mental health issues) Omar Ha-Redeye, "Bad Faith Abounds at Landlord Tenants Tribunal" (11 July 2021), online (blog): Slaw [http://www.slaw.ca/2021/07/11/bad-faith-abounds-at-landlord-tenants-tribunal/] [perma.cc/H3BX-VA9U] (raising similar concerns). In June 2022, the Advocacy Centre for Tenant's Ontario filed a human rights complaint on behalf of an elderly tenant who had difficulty accessing the online system, Tyler Griffin, "Landlord and Tenant Board's 'digital first' system harms vulnerable renters, advocacy group says" CBC (29 June 2022) online: [www.cbc.ca/news/canada/toronto/landlord-tenant-board-digital-first-vulnerable-residents-1.6505433] [perma.cc/UQ87-YY92].

41 Parisotto, "Expanding the Constitutional Right to State-Funded Legal Counsel to Address British Columbia's Housing Crisis" (2019) 24 Appeal 79.

42 Ibid at 91; analogizing from New Brunswick (Minister of Health and Community Services) v G(J), [1999] 3 SCR 46, 1999 CarswellNB 305.

43 Matthew Dylag, "Informal Justice: An Examination of Why Ontarians Do Not Seek Legal Advice" (2018) 35:1 Windsor YB Access Just 363. https://doi.org/10.22329/wyaj.v35i0.5786

44 Ibid at 369.

45 Ibid at 375-76. But see Zell & McCullough, supra note 18 at 72, reporting that many tenants do not see eviction as a legal issue.

46 Zemans & Amaral, "A Current Assessment of Legal Aid in Ontario" (2018) 29 J L & Soc Pol'y 1. https://doi.org/10.60082/0829-3929.1310

47 Ibid at 23, citing Melina Buckly, "Moving Forward on Legal Aid: Research on Needs and Innovative Approaches" (June 2010), online (pdf): The Canadian Bar Association [http://www.cba.org/CBAMediaLibrary/cba_na/images/Equal%20Justice%20-%20Microsite/PDFs/Moving-Forward-on-Legal-Aid.pdf] [perma.cc/2L57-PGGJ] at 9.

48 Anne Levesque, "Les Cliniques Juridiques Communautaires de L'Ontario et L'Accèss à la Justice en Français" (2020) 98:2 Can Bar Rev 211.

49 Levesque, ibid at 235 (translated from French: "…la plus grande menace au travail d'ordre systémique des cliniques est le sous-financement.").

50 Buhler & Michelle C Korpan, "Measuring the Impacts of Representation in Legal Aid & Community Legal Services Settings: Considerations for Canadian Research" (2019) 56 Alta L Rev 1117. https://doi.org/10.29173/alr2546

51 Ibid at 1119.

52 Farha & Schwan, supra note 31 at 358.

53 Buhler & Tang, supra note 13 at 218.

54 Thistle, Definition of Indigenous Homelessness in Canada (Toronto, ON: Canadian Observatory on Homelessness Press, 2017) at 6, cited in Dej, supra note 3 at at 29.

55 Dej, supra note 3 at 62.

56 Ibid at 90.

57 Ibid at 99-100.

58 Mark Zion, "Making Time for Critique: Canadian 'Right to Shelter' Debates in a Chrono-Political Frame" (2020) 37:1 Windsor YB Access Just 88 at 98. https://doi.org/10.22329/wyaj.v37i0.6563

59 Evicted: Poverty and Profit in the American City (New York: Broadway Books, 2017) at 70, 296.

60 Sullivan, supra note 25 at 78, 102, 119-22.

61 Lund, supra note 21 at 774 (70% of residents in Midfield were seniors).

62 Zell & McCullough, supra note 18 at 68.

63 Gander, "Domestic Violence", supra note 26 at 40.

64 Dej notes that the idea of precarious housing includes shelters that are deemed "unsafe", Dej, supra note 3 at at 100. 65 Buhler & Tang, supra note 13 at 219-220; The Residential Tenancies Act, 2006, SS 2006, c 22.0001, s 45 (prescribing the conditions under which landlords can enter a rental unit), 49 (setting out the landlord's obligation to repair and maintain the rental unit). See also Paradis, supra note 15 at 46.

66 Zell & McCullough, supra note 18 at 31.

67 Buhler & Tang, supra note 13 at 221; Paradis, supra note 15 at 46.

68 Dej, supra note 3 at at 138 citing CK Baker et al, "Domestic Violence, Housing Instability and Homelessness: A Review of Housing Policies and Program Practices for Meeting the Needs of Survivors" (2010) 15:6 Aggression and Violent Behavior 430; see also Watson Hamilton, "Reforming Residential Tenancy Law", supra note 26 at 245. https://doi.org/10.1016/j.avb.2010.07.005

69 Watson Hamilton, "Reforming Residential Tenancy Law", ibid at 258.

70 Ibid at 262-264. Other shortcomings she points to include the variation and uncertainty around who qualifies as a "tenant" and the inability in most jurisdictions to terminate the tenancy for one co-tenant, but not the other, ibid at 259-62.

71 Buhler & Tang, supra note 13 at 219; see also Zell & McCullough, supra note 18 at 24.

72 Koshan, "Mapping Domestic Violence Law", supra note 28 at 540.

73 Watson Hamilton, "Reforming Residential Tenancy Law", supra note 26 at 265.

74 Dej, supra note 3 at 67.

75 Watson Hamilton, "Reforming Residential Tenancy Law", supra note 26 at 256-57.

76 Zell & McCullough, supra note 18 at 32. https://doi.org/10.18773/austprescr.2009.007

77 Gander & Johannson, supra note 26 at 7.

78 Skolnik, "Freedom and Access to Housing: Three Conceptions" (2018) 35 Windsor YB Access Just 226 at 236. 79 Arguing a tent is a home, despite a court finding otherwise for the purposes of applying section 8 of the Charter, see Sarah Ferencz, Nicholas Blomely, Alexandra Flynn & Marie-Eve Sylvestre, "Are Tents a 'Home'? Extending Section 8 Privacy Rights for the Precariously Housed" (2022) [forthcoming in McGill L J] (discussing R v Picard, 2018 BCPC 344, appeal quashed 2020 BCCA 107).

80 Lund, supra note 21 at 795-97.

81 Radin, "Property and Personhood" (1982) 34 Stan L Rev 957 at 959-61. https://doi.org/10.2307/1228541

82 R v Picard (PC), supra note 79 at para 15.

83 Ferencz et al, supra note 79 at 7 citing City of Vancouver, City Land Regulation By-law No. 8417, online: [https://bylaws.vancouver.ca/8417c.pdf] [perma.cc/DVQ6-BW4Q].

84 Abbotsford (City) v Shantz, 2015 BCSC 190 at para 107-115, aff'd 2015 BCCA 142.

85 See e.g. Slowski v Dorval, 2021 SKORT 972 at paras 22-23, where the tenant discarded food, clothes, shoes and bedding which had been damaged by mice.

86 See e.g. BA v K&S Enterprises Ltd, 2017 SKORT 211 at para 7, where the tenant claimed for damage to personal goods caused by the exterminator's chemical spray.

87 Zell & McCullough, supra note 18 at 77.

88 See e.g. Civil Enforcement Act, RSA 2000, c C-15, s 104 The Residential Tenancies Act, 2006, SS 2006, c 22.0001, s 12 (seizure requires a court order unless goods are worth less than $1500).

89 Wilderdijk-Streutker v Zhao, 2017 ABPC 24 at para 50 (landlord pays new tenants to dispose of old tenants' personal property) Krueger v Jaipaul, 2013 ABQB 650 at para 20 (landlord hires agent to dispose of old tenant's personal property).

90 The Residential Tenancies Act, 2006, SS 2006, c 22.0001, s 85 as amended by the Residential Tenancies Amendment Act, SS 2018 c 33, s 7.

91 Buhler & Kaiser-Derrick, supra note 14 at 66.

92 See e.g. SWT-84577-16 (Re), 2016 CanLII 44316 (ON LTB) (tenants move goods into self-storage facility after leaving premises due to habitability issues).

93 Desmond, supra note 59 at 132.

94 Zell & McCullough, supra note 18 at 25.

95 Dej, supra note 3 at 190.

96 Buhler & Korpan, supra note 50 at 1129; Wiseman supra note 16 at 187.

97 Zell & McCullough, supra note 18 at 73.

98 Buhler & Tang, supra note 13 at 216.

99 Ibid at 225.

100 Supra note 18 at 75.

101 Supra note 16 at 186.

102 Ibid at 187.

103 Supra note 15 at 72.

104 Supra note 50 at 1119-20.

105 Supra note 3 at 18, 186.

106 Buhler & Kaiser-Derrick, supra note 14 at 66. Sarah Hamill points to the exclusion of tenant voices from Canadian social housing policy as a fundamental weakness of the sector, see Sarah E Hamill, "Caught between Deference and Indifference: The Right to Housing in Canada" (2018) 7 Can J Hum Rts 67 at 84.

107 Supra note 3 at 194.

108 Supra note 48 at 233.

109 Supra note 18 at 89.

110 Supra note 14 at 65; see also Zell & McCullough, ibid at 96.

111 Paradis, supra note 15 at 24; Zemans & Amaral, supra note 46 at 6.

112 Paradis, ibid at 19.

113 Supra note 50 at 1133.

114 Supra note 46 at 23-25.

115 Supra note 16 at 188.

116 Lund, supra note 21 at 806-07; Zell & McCullough, supra note 18 at 93.

117 Supra note 50 at 1121.

118 Supra note 18 at 98, 106. They provide a list of topics they believe require further research starting, ibid at 107. See also Paradis, supra note 15 at 18-22 (recommending that the tenant duty counsel program, Landlord and Tenant Board and Legal Aid Ontario all collect data).

119 Buhler, supra note 35 at 73; Zell & McCullough, ibid at 106.

120 Supra note 3 at 58.

121 Discussing Alberta's mental health review panels see Erin Nelson, "Alberta's Mental Health Review Panels: Accountable, Transparent Adjudication" (2022) 59:3 Alta L Rev 563 at 576-78. https://doi.org/10.29173/alr2686

122 Watson Hamilton, "Reforming Residential Tenancy Law", supra note 26 at 250. 123 For a complete list of Dej's recommendations, see Dej, supra note 3 at 194-195. 124 Supra note 14 at 62.

125 Ibid at 65.

126 Supra note 50 at 1132.

127 Buhler & Kaiser-Derrick, supra note 14 at 66.

128 Supra note 46 at 23; Levesque, supra note 48 at 235.

129 Supra note 14 at 66.

130 Lund, supra note 21 at 803, 806; Zell & McCullough, supra note 18 at 90.

131 "Reforming Residential Tenancy Law", supra note 26 at 266-67.

132 Supra note 28 at 545. Koshan makes this observation with respect to legislation impacting survivors of domestic violence in Alberta, including that province's Residential Tenancies Act, RSA 2000 c R-17; however, it is advice that has broader application.

133 On needed mental health law reforms, see Nelson, supra note 122 at 583-86.

134 Chris Chacon, "Loitering tickets will no longer be handed out at Edmonton transit facilities" (8 July 2021) online: Global News: [https://globalnews.ca/news/8014785/edmonton-loitering-tickets-transit-ets/] [perma.cc/9FLF-BR3D].

135 Student Legal Services of Edmonton, supra note 2.

136 Buhler & Tang, supra note 13 at 214.

137 Buhler & Kaiser-Derrick, supra note 14 at 66.

138 Farha & Schwan, supra note 32 at 363.

139 Supra note 14 at 66.

140 Supra note 18 at 100. See also Emily Paradis, "If You Build It, They Will Claim: Rights-Based Participation and Accountability in Canada's National Housing Strategy" (1 June 2018) Submission to the National Consultation on a Human Rights-Based Approach to Housing, online (pdf): Maytree Foundation [https://maytree.com/wp-content/uploads/Paradis-submission-Rights-based-participation-and-accountability-1-June-2018.pdf] [perma.cc/X3HS-LAXZ]; Hamill, supra note 106 at 91-93. On the difficulty of realizing a right to shelter, see Zion, supra note 58 at 101-107.

141 Jamie Shilton, "Who Owns the City? Pension Fund Capitalism and the Parkdale Rent Strike" (2021) 35 J Law & Soc Pol'y 1 at 16-20; August, supra note 21 at 991; Claire Brownell, "Renters across Canada are banding together to fight high housing costs and evictions" (8 January 2021) Macleans online: [www.macleans.ca/news/renters-across-canada-are-banding-together-to-fight-high-housing-costs-and-evictions/] [perma.cc/XC7S-GQAW]. https://doi.org/10.60082/0829-3929.1421

142 Zell & McCullough, supra note 18 at 39.

143 Supra note 13 at 228; see also Desmond, supra note 59 at 69.

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