POLICY REPORT
URBAN STRUCTURE

Date: June 28, 2000
Author/Local: HRoth/6115

RTS No. 01569

CC File No. 4661

Council: July 11, 2000

TO:	Vancouver City Council
FROM:	Director of City Plans, the Director of the Housing Centre and the Director of Social Planning, in consultation with the Chief Building Inspector, the General Manager of Engineering Services, and the Director of Legal Services
SUBJECT:	Congregate Housing For Seniors

RECOMMENDATIONS

A. THAT Council instruct staff to undertake public consultation and report back regarding:

(i) the proposed amendments to the definition of Congregate Housing, as shown in Appendix B, which require common areas, support services, and design to accommodate seniors as they age;

(ii) the proposed amendments to the Parking By-law, as shown in Appendix C, to provide a parking standard based on unit size;

(iii) the proposed draft guidelines, as shown in Appendix D, which identify City expectations regarding design and function for all congregate housing proposals, both market and non-market; and

(iv) the proposed prohibition of lot consolidations for congregate housing in single family areas.

B. THAT Council instruct the City Building Inspector to undertake additional work with respect to life-safety features for congregate housing and report back on changes to the Vancouver Building By-law.

C. THAT the Mayor, on behalf of Council, write the Ministers responsible for healthand housing, urging the Province to:

· explore an expansion of SAFER or other funding supports which would make congregate housing an affordable option for middle- and lower-income seniors;

· pursue consumer protection initiatives;
· explore amendments to the B.C. Building Code to provide enhanced life-safety features in this residential use; and
· provide an administrative framework for regulating and monitoring this use.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services RECOMMENDS approval of the foregoing.

COUNCIL POLICY

Zoning and Development By-law No. 3575 defines congregate housing as follows:

"Special Needs Residential Facility - Congregate Housing, which means any facility that provides residential units for six or more persons aged fifty-five years or over who are not a family, where shared separate kitchen and dining areas are provided and where accommodation for a resident housekeeper may be provided."

In February, 1992, Council adopted Special Needs Residential Facility Guidelines to ensure that a special needs residential facility is compatible with the surrounding neighbourhood.

On May 8, 1989, Council approved the following affordable housing policies:

Maintain and expand housing opportunities in Vancouver for low and moderate income households, with priority being given to Downtown lodging-house residents, elderly people on fixed and limited incomes, the physically and mentally disabled, and single-parent families with children.

Encourage the distribution of acceptable housing forms and affordable shelter costs equally among all residential neighbourhoods of Vancouver.

SUMMARY AND PURPOSE

Congregate housing is a package of housing and services for seniors who no longer can or want to continue living independently. It includes individual residential units; large communal areas for dining, socializing and activities; project design to accommodate seniors as they age; and a package of non-medical services such as meals, housekeeping and recreation services. There are currently six congregate housing projects in Vancouver, andseven proposals in the rezoning or development process.

Attention to the congregate housing use is important at this time for a number of reasons:
· Our society is aging - there are more older people, living longer, requiring appropriate supports and environments as they age;
· Provincial funding has shifted and is now focussed on licensed care facilities that provide higher levels of care for the frail elderly and seniors with dementia, and on home care support. The result is that for many seniors, the amount of home care available is not adequate to support independent living, but they may not qualify for, want or need licensed care;
· There has been increased development interest in congregate housing, and recent proposals have had difficulties in providing the environment and support needed by seniors as they age. Congregate housing is a specialized type of housing, not merely a multiple dwelling with amenity space. Designing projects which balance livability, economic viability and relative affordability appears to be difficult in the current economic and program environment.
· Due to the size and scale of most of the recent proposals, rezonings were required, and issues of neighbourhood compatibility have arisen.
The report proposes a change in the definition of congregate housing, which details the requirements of this use, and introduces guidelines to supplement the definition and clarify the City's expectations regarding key features of a livable residential environment that supports seniors as they age. The guidelines focus on the internal design of congregate housing projects, such as unit size, common area size and configuration, circulation, and fire and safety enhancements specific to this use. Revisions to existing parking standards are also proposed, to provide a standard that is based on unit size. In addition, the report discusses other related issues, such as FSR (floor space ratio) exclusions, suitability of locating congregate housing projects in single family areas, and strata-titling of congregate housing projects.

A consultation process is recommended to seek input from users, seniors, operators, developers, architects, the Province and Vancouver/Richmond Health Board (V/RHB) and interested others, to be followed by a report back. Further work on building code classifications is also recommended, as are discussions with the Province aimed at increasing provincial involvement in congregate housing funding and regulation.

BACKGROUND

1) What is Congregate Housing? Why is it needed?

Congregate housing is housing in which there are individual residential units (which could be sleeping, housekeeping or dwelling units) and large common areas, including a large communal dining room and common areas for activities and socializing. It is designed to meet the needs of an elderly population, and allow for aging in place. It features a package of non-medical services, typically including meals, housekeeping, laundry and activities. The provision for communal dining and social interaction counteract the isolation and poor nutrition that some seniors experience. Some residents purchase additional support services including home care nursing services, from outside agencies, delivered on an outreach basis. Congregate housing operators do not provide medical care.

Congregate housing is an intermediate housing option between independent living and living in a licensed care facility. Spry, healthy 75 year olds do not typically choose congregate housing. It is chosen by seniors who wish to maximize their independence, but who no longer can or want to maintain their private residence. It is often chosen when the type and level of support available in the community through services such as Meals on Wheels, the Home Support program, and/or family support become inadequate.

The communal nature of congregate housing, the accessible physical design, and the package of support services are the key factors that distinguish congregate housing from a multiple dwelling use. It differs from a care facility in that it has not been designed to the same fire and safety standards, medical care is not provided, and it is not licensed by, nor does it currently receive funding from, the provincial government. Congregate housing is sometimes referred to as assisted living, supportive housing, or congregate care although there are no such use classifications in Vancouver's Zoning and Development By-law.

2) Vancouver Context

As a Special Needs Residential Facility (SNRF), congregate housing is a conditional approval use, permitted in most zoning districts, except for industrial areas. Vancouver has six congregate housing projects in operation, and seven proposals in the development process. These are listed in Table 1 and shown on Map 1, in Appendix A. Of these thirteen projects, only two are not on lands zoned CD-1. Existing projects range in size from 18 to 134 units. Three are purpose-built congregate housing, and three are conversions from personal care facilities. Two of the six operate in conjunction with a licenced care facility.
Existing Project Characteristics:

· services typically include two to three meals a day, weekly housekeeping and laundry, a 24-hour emergency call system, and social/recreational activities
· most units have a three piece bathroom
· currently, few are fully wheelchair accessible;
· unit size, quality and quantity of common space, outdoor open space, and activity/recreation programming vary widely among projects

Existing Resident Characteristics:

· currently, the average age of congregate housing residents is about 84
· an estimated 1/4 of congregate housing residents use a mobility aid, like a cane or walker. Very few residents use a wheelchair on a permanent basis.
· an estimated 1/4 of residents purchase additional services, like assistance with housekeeping, personal laundry, help with bathing, and medications.

DISCUSSION

1) Guidelines

Draft guidelines have been developed to assist staff when reviewing proposals for this conditional approval use, or rezoning proposals. They aim to ensure that accessible, safe and livable environments for seniors are achieved in diverse development proposals. The guidelines, attached as Appendix D, are needed to provide a framework of City expectations regarding appropriate design and function that applies to all types of congregate housing proposals, from affordable projects with small units and limited common spaces, to those providing large units, much like market condominiums. The guidelines are based on the following principles:

· to support the dignity and independence of seniors by providing the physical environment and services which maintain the senior
· to promote a sense of community within the development
· to be compatible with the surrounding neighbourhood.

The key features of the guidelines are summarized below:

· neighbourhood compatibility considerations
· site selection and locational criteria, so that seniors can safely and independently access needed services and activities outside the project
· internal design features:

- unit size and functions to be accommodated within the unit
- dining room and main floor lounge size and configuration, and access
- common lounges on residential floors for small informal gatherings, or resting places
- safety enhancements that consider the age of the residents and change in their mental and/or physical state over time;

· open space criteria
· guidelines that clarify parking standards and relaxations.

A number of issues have arisen during the review of recent proposals/projects that the guidelines are attempting to address. These are discussed below:

A) Affordability and Livability in Congregate Housing

Congregate housing is typically not an affordable housing option, given the high cost of land, new construction and staffing costs. As it is not subsidized by any level of government, its costs must be met by its residents. Congregate housing projects affordable to lower income seniors have been developed by some non-profit groups, who have achieved the affordability by contributing the land or in some cases, by directly subsidizing individual seniors. In some - but not all - of these projects, unit sizes have been minimized to reduce costs.

In the absence of government subsidy to make congregate housing available to lower income seniors, the tension between affordability and livability will remain a fundamental dilemma. In order to properly assess project applications, staff need to understand and agree upon a minimum unit size and design which enables older seniors in their late 70s to 90s to maintain their relative independence as long as possible. We also need to understand exactly what degree of affordability is being achieved in a given project.

The issue of an appropriate minimum unit size is one that will be discussed in detail in the consultation process. The draft guidelines note that a unit size of about 28 m² (300 sq. ft.) is needed. The V/RHB is suggesting a similar minimum of about 25.6 m² (275 sq. ft.). [Council approved one congregate housing project in 1999 with units of 20.9 m² (225 sq. ft.) but noted that this unit size was not to be seen as a precedent.]

In the view of staff, aging in place design is mandatory in congregate housing. This means not only design details, but space in the living and bathroom areas to accommodate the use of mobility aids (e.g. walkers) and to enable a support worker to assist a resident.

On the issue of affordability, congregate housing units are currently renting at rates of $1,000 to $5,000 per month, with few units available at the lower rates. An amount of $1000 is not affordable to a truly low income senior and this type of housing will not be available to such seniors until government subsidy is available. For a senior who receives maximum OAS and GIS benefits, plus SAFER, $1000 is barely affordable. It is difficult to ascertain what percentage of the seniors population can afford units costing $2,000 and up. The median income for seniors in the Vancouver Census Metropolitan Area is only $16,000, making congregate housing generally not affordable, based on seniors' incomes. However, many seniors have equity in their homes and some may be able to meet the costs of congregate housing by combining income with funds from the sale of their home.

B) Fire and Safety Requirements of the Building Code

Although residents in congregate housing are independent and ambulatory, difficulties could arise in an emergency because the entire population is typically over 80 years old and up to one quarter of the residents could be expected to use mobility aids, such as walkers. The Vancouver Building By-law (VBBL) and the B.C. Building Code do not specifically provide a classification for congregate housing. This use can be viewed as being in between an institutional and a residential classification. While an institutional classification would invoke code requirements which are viewed as being too onerous, and not in keeping with a residential appearance (such as non-combustible construction and hospital style corridors), on the other hand, a residential classification would not provide adequate life safety protection. To address this gap in code classification, congregate housing projects to date have been accepted under the residential classification, but with some additional enhancements. Fire and safety enhancements, such as a fire safety plan, emergency power of longer duration, and having two or more fire compartments on the same floor, address the lesser mobility of the typical congregate housing resident. These enhancements are detailed in the guidelines, and can be achieved in rezonings and in development applications for this conditional approval use. Most recent applicants have been able and willing to provide them.

While using guidelines as a way to seek fire and safety enhancements is workable, a longer term solution is to amend the Vancouver Building By-law (VBBL) and the B.C. Building Code, to provide an intermediate occupancy class that recognizes uses like congregate housing. As an example, Ontario has an intermediate class, between institutional and residential, that it uses for seniors homes.

Staff recommend that further work be carried out with respect to the feasibility of requiring these enhancements through VBBL amendments, followed by a report back. Additional provincial involvement in this issue is also recommended.

C) FSR Exclusions

Congregate housing requires a great deal of common area to fulfill the communal aspects that are an integral part of this type of housing. Without these common areas, the use is not congregate housing, but rather a multiple dwelling. In some cases, large common areas are offset by smaller individual units with minimal overall effect on building size.

It has been argued by applicants that because common space does not produce a revenue stream, it should be excluded from FSR. However, residents in congregate housing are renting or purchasing a package, which includes an individual unit, common areas, and services. Therefore, some revenue can be attributed to the amenity space.

The guidelines provide direction regarding amount of common space required for the dining room and main lounge. The guidelines also note that lounge space should beprovided on the residential floors, but no specific floor area is recommended. Staff recommend that common areas - the communal kitchen, dining room, lounges on the main and residential floors, and laundry rooms - not be excludable from FSR calculations. However, any common space provided in excess of what is required in the guidelines can be considered as exclusions to the maximum ten percent amenity exclusion.

Furthermore, seniors need bulk storage for mobility aids and personal items. To encourage the provision of in-unit bulk storage, staff recommend that it be excluded as is done now in the multiple dwelling use in most district schedules. The exclusion is a maximum of 3.7 m ² (40 sq.ft.), which helps to offset the common space that is not excludable [a minimum of 3.5 m² (37.5 sq.ft.) per unit].

In summary, the draft guidelines respond to the issues of unit size, recommended fire and safety enhancements, and proposed FSR exclusions.

2) Other Issues

A) Zoning and Development By-law / Use Definition

Vancouver's Zoning and Development By-law currently categorizes Congregate Housing as an Institutional use: a type of Special Needs Residential Facility (SNRF), and defines it as:

"any facility that provides residential units for six or more persons aged fifty-five years or over who are not a family, where shared separate kitchen and dining areas are provided and where accommodation for a resident housekeeper may be provided."

This definition was written in 1989 when there was little congregate housing in Vancouver, and the concept was as yet undeveloped. Staff recommend the following revised definition:

"A building, containing residential units designed specifically to accommodate seniors as they age, with separate common areas for dining and socializing, and where support services are provided."

This definition establishes the need for design suited to seniors, common areas and a service package, as requirements specific to congregate housing. It should be noted that the revised definition does not specify a minimum age for seniors. Staff have, and will continue to use legal agreements as a way of specifying age.

Amendments to Section 10 (General Regulations) of the Zoning and Development By-law are also proposed, and attached as Appendix B. In summary, they are: all residential units to include a three piece bathroom, the service package to include meal service and 24 hour on-site emergency response assistance, and details for calculatingFSR/ exclusions.

Staff propose that congregate housing remain in the SNRF category and continue to be a conditional approval use. In this way, it can be distributed throughout the City and seniors can remain in or close to their neighbourhoods. Furthermore, due to the size and scale of most current projects (60 to 180 units), staff recommend that it remain a conditional approval use, with guidelines to ensure that development applications meet the needs of the user group, and are compatible with neighbouring land uses.

Due to the above noted concerns about size and scale of current congregate housing projects, staff anticipate that the need to rezone for this use will continue. Currently, rezonings for congregate housing are processed through the quicker "SHORT" (social housing or rental tenure) rezoning process because they include rental units. Strata-title congregate housing projects would not be eligible for the SHORT process.

B) Parking By-law

The current off-street parking standard for congregate housing is the same as for multiple dwelling: One space per 70 m² of gross floor area, to a maximum of 2.2 spaces for every residential unit. However, in recent rezonings, this rate has been relaxed to a lesser standard of 1 space per 4 units. Now, with the larger units proposed in the more recent developments, the one space per 4 units rate has been revised, as follows:

Size of Residential Unit (Net) Parking Standard

Less than 50 m²	1 space per 100 m²
50 m² - 70 m²	1 space per 70m²
Over 70m²	1 space per 70m² except that no more than 2.2 spaces for every unit need be provided

This higher rate will ensure that adequate parking is available and ease neighbourhood concerns about impacts. Relaxations are discussed in the guidelines. In sum, they may be considered where there is proximity to transit, where a housing agreement is in effect that residents are over 65 years of age, or for affordable projects. With respect to provisions for passenger (loading) spaces for congregate housing, these would be required as per those for SNRF - Community Care - Class B use. Proposed amendments to the Parking By-law are outlined in Appendix C.

C) Congregate Housing in Single Family Zones

In recent months, staff have handled inquiries about small congregate housing projects onexisting large lots in single family areas. While most current congregate housing projects are large, smaller projects in single family areas may become attractive as the market evolves. Staff do not want to prohibit this use from single family areas, but have concerns about compatibility with residential character and streetscape of existing single family areas, and about proximity to the transit, services and activities needed by seniors.

Staff recommend that consideration be given to a policy that, in single family areas of the City, permits congregate housing to be developed on existing lots only, prohibiting consolidation of lots for this purpose. This will help to address neighborliness and compatibility concerns.

D) Strata-Titling of Congregate Housing Units

Staff are concerned about the impacts of strata-titling and multiple ownership on the ongoing operation of congregate housing projects due to lack of clarity regarding financial and legal relationships, and impacts related to real estate related matters.

Currently, most congregate housing projects are rental projects, with centralized management to ensure that the functioning of the physical facility, staffing, and service delivery meets the needs of its residents. However, two current proposals which combine rental and strata-title units, raise questions about the financial, legal and operational relationships between a strata Council and a management company. For example, if the financial viability of the operation is contingent on all residents using the services, having the strata owners opt out could jeopardize the delivery of services needed by others. Further, ensuring an effective strata Council may become an onerous task for elderly people who may have chosen congregate housing to escape household management.

Another concern about strata-titling relates to the required real estate transaction. Operators of existing projects in Vancouver indicated that the average length of stay in congregate housing is four to five years, which is a relatively short time to undertake a real estate investment, given transaction time and costs. Further, at the time of sale, the unit can only be sold to another senior, decreasing the market for the unit, and increasing the length of time potentially required to complete the transaction. The Province is working on consumer protection legislation related to supportive housing. While this work is underway, the lack of safeguards to ensure that congregate housing projects continue operation as congregate housing remains a concern.

E) Conversion of Existing Rental Buildings to Congregate Housing

Staff have dealt with one inquiry wishing to convert an existing rental apartment building to congregate housing for seniors. Staff are concerned that rental units, and particularly affordable rental units, could be lost through conversion to market congregate housing. Staff are also concerned that it may be difficult to meet theguidelines in conversions, especially with regard to fire and safety features, provisions for accessibility, and common areas. While not likely to become a major issue due to limited market interest, staff will monitor this situation.

3) Provincial and Vancouver/Richmond Health Board (VRHB) Involvement

About twenty years ago, the Province funded a type of supportive housing for seniors called Personal Care. It was similar to congregate housing but also offered limited nursing care. About 10 years ago, provincial funding for facilities providing lower levels of care, like personal care, was curtailed and limited new funding focussed on facilities that offer higher levels of care.

At the same time, there have been increasing demands on Home Support programs which provide various support services to seniors in their homes. This increased demand has not been matched by increased funding, resulting in curtailment of services to many seniors, particularly those with lower levels of need. These changes in policy and funding have resulted in reduced choice for seniors of modest and moderate incomes in particular, who need more support than Home Support can provide, but do not qualify for multi-level care. Congregate housing is one way of filling this gap.

In recent years, the Province has been examining housing alternatives for seniors. In 1999, it published two documents on Supportive Housing for Seniors, and is currently working on consumer protection and building code issues.

The V/RHB recently adopted a document entitled "A Strategic Plan for Housing Services" as a framework for discussion. This document notes the V/RHB's role in the planning and development of a range of housing options, in particular supportive housing. It notes a desire to increase the range of options available to low income seniors by emphasizing the development of affordable seniors supported housing in collaboration with B.C. Housing, non-profit organizations, or private developers through a commitment to fund the service portion of the monthly fee. The document also identifies the need for review of the administrative framework.

Staff will monitor the provincial initiatives and V/RHB discussions, as these would help to increase congregate housing supply and improve affordability. Staff also recommend that the City contact the Province and the V/RHB to encourage their continued involvement in this area, with particular regard to providing subsidies for low and modest income seniors and administrative matters such as regulating and monitoring supportive housing projects.
4) Proposal for Public Consultation

The guidelines and revised definition were developed by staff from Planning, Social Planning, Housing, Permits and Licenses, and Engineering, with input from the Seniors Advisory Committee of Council, and the V/RHB. The report sets out a number of issues that require further consideration and staff propose to inform those involved in the development and management of congregate housing, and users, of the changes proposed by the guidelines and definition, and the outstanding issues, and seek their input. Gaining the input and experience of the diverse interests involved in congregate housing will help shape future discussions in this area.

Staff propose to undertake a focussed consultation process in the fall and report back to Council with comments and revisions. Funds are available to cover printing, meeting and advertising costs.

CONCLUSION

There is increased interest in, and need for congregate housing as the population ages, as it will continue to fill a gap between home care and multi-level care. It provides some unique challenges:

· providing opportunities for independent living while providing the support services required; ensuring accessibility;
· providing the communal spaces required to make congregate housing work;
· ensuring that appropriate fire and life safety systems are provided;
· providing units that are affordable to low and modest income seniors; and
· ensuring that congregate housing is compatible with neighbouring land uses.

This report provides an overview of concerns and objectives related to seniors housing and support, and recommends consultation with diverse public about the draft guidelines and proposed changes of the definition of congregate housing.

- - - - -

APPENDIX A

CONGREGATE HOUSING FOR SENIORS

	EXISTING PROJECTS	ADDRESS	ZONING	# OF UNITS
1	Arbutus Lodge	2125 Eddington Street	CD-1	134
2	Crofton Manor	2803 West 41st Avenue	CD-1	108
3	Southview Terrace	3131 East 58th Avenue	CD-1	57
4	Chalmers Lodge	1450 West 12th Avenue	RM-3	120
5	Abbeyfield	8264 Hudson Street / 1275 West 67th Ave.	CD-1	18
6	Chinese Mennonite Church	485 Dunlevy Street	CD-1	32

	PROPOSED PROJECTS	ADDRESS	ZONING	# OF UNITS
7	Chinese Mennonite Church	333 East Pender Street	CD-1	68
8		2855 Sophia Street	CD-1	130
9	Shannon Oaks	6475 Elliott Street	CD-1	104
10		1598 West 7th Avenue	C-3A	100
11		2799 Yew Street	CD-1	177
12		1175 Broughton Street	CD-1	90
13	Louis Brier addition	1055 West 1st Avenue	CD-1	40

APPENDIX B

PROPOSED ZONING AND DEVELOPMENT BY-LAW AMENDMENTS

ZONING

SECTION 2 (DEFINITIONS)

2.0 Amend existing Special Needs Residential Facility (SNRF) - Congregate Housing definition, as follows;

"A building, containing residential units designed specifically to accommodate seniors as they age, with separate common areas for dining and socializing, and where support services are provided."

SECTION 10 (GENERAL REGULATIONS)

Add Section 10.32, as follows:

10.32 Congregate Housing for Seniors

10.32.1 All residential units shall contain a three piece bathroom.

10.32.2 All congregate housing projects shall provide meal service and 24 hour on site emergency response assistance.

10.32.3 For the purposes of calculating FSR, common areas such as the communal kitchen, dining room, lounges on the main and residential floors, and laundry rooms, are not excludable. Only common space provided in excess of what is required in the guidelines can be considered as an exclusion within the maximum 10 percent amenity exclusion.

PROPOSED PARKING BY-LAW AMENDMENTS

SECTION 4 Off-Street Parking

Size of Residential Unit (Net)

Less than 50 m²	1 space per 100 m²
50 m² - 70 m²	1 space per 70m²
Over 70m²	1 space per 70m² except that no more than 2.2 spaces for every unit need be provided

SECTION 5 Loading

One standard loading space, and one additional standard loading space for every 200 residential units.

SECTION 6 Bicycle Parking

Class A

Size of Residential Unit

Less than 50m²	A minimum of 0.10 space for every residential unit
50 m² and greater	A minimum of 0.25 spaces for every residential unit

Class B: No requirement.

SECTION 7 Passenger Loading

Class A - A minimum of one space for any facility with 80 or more residential units up to a maximum of 159 units, a minimum of two spaces for any facility with 160 or more units up to a maximum of 199 units, and one additional space for any portion of each additional 80 units.

Class B - A minimum of one space for any facility with 15 or more residential units up to a maximum of 119 units, and a minimum of two spaces for any facility with 120 or more beds.

APPENDIX D

DRAFT GUIDELINES FOR CONGREGATE HOUSING FOR SENIORS

June 28, 2000

CONTENTS

1 Application and Intent

2 General Design Considerations

2.1 Neighbourhood Compatibility
2.2 Site Selection
2.3 Building Characteristics
2.4 Access

3 Internal Design and Facilities

3.1 Unit Size and Design
3.2 Common Areas
3.2.1 Dining Room and Kitchen
3.2.2 Common Lounges/Rooms
3.2.3 Laundry
3.2.4 Reception/Administration Areas

4 Bulk Storage

5 Circulation

6 Safety Features

7 Open Space

8 Parking and Loading

1 APPLICATION AND INTENT

These guidelines are to be used in conjunction with a district schedule of the Zoning and Development By-law, and official development plan by-laws for development permit applications for congregate housing for seniors.

These guidelines are intended to provide direction primarily related to the livability and usability of congregate housing for seniors. The guidelines address the issues of project location and siting, unit design and features, common space design, and safety features, to allow for aging in place. In zoning districts where design guidelines exist, these too should be consulted.

The guidelines are to assist applicants in their planning and design, and City staff in their evaluation. All applications should be accompanied by an operating plan, which should include, but may not be limited to information on details such as the following:

- how the common spaces will be used and programmed
- staffing, in particular, how 24 hour on-site emergency response will be achieved
- proposed tenure of the units, rental, strata-title, or mix
- meals service

While there is room for variety and creativity in the design of the components of congregate housing for seniors, the total package should:

· support the dignity and independence of seniors, while providing the physical environment and services which maintain the quality of life for the senior, and allow for aging in place;
· promote a sense of community within the development; and
· be compatible with the surrounding neighbourhood.

The City, at its discretion, may consider exemptions in the application of guidelines when a Housing Agreement is entered into between the owner and the City where at least a portion of the units are restricted to occupancy by residents of low income. Further, where at least a portion of the units are restricted to occupancy by residents 65 years of age or older, a parking relaxation may be considered.

2 GENERAL DESIGN CONSIDERATIONS

2.1 NEIGHBOURHOOD COMPATIBILITY

OBJECTIVE: Congregate housing for seniors should be compatible in density, scale, architectural character and operation with the surrounding neighbourhood.

a) Congregate housing projects should contribute to the objectives outlined in approvedarea plans and policies, and should enhance the overall character of the neighbourhood; and
b) Traffic impacts, parking demands, and servicing requirements should not adversely affect the surrounding neighbourhood.

2.2 SITE SELECTION

OBJECTIVE: Congregate housing should be located so that seniors can safely and
independently access needed services, facilities and activities outside the project.

a) Sites selected for congregate housing for seniors should have good access to public transit, shopping, and community services; and
b) The area surrounding the site should have a comfortable walking environment, e.g., sidewalks in good condition, crosswalks, walkways clearly marked and separated from vehicle traffic; areas with a steep slope should be avoided.

2.3 BUILDING CHARACTERISTICS

OBJECTIVE: Congregate housing should be designed to look, feel and function as a residential use for seniors of varying ages and abilities. The design should support aging in place without being institutional in appearance.

a) Aging in place design features should be incorporated throughout, such as wider doorways, wider hallways, handrails, appropriate door handles, lower window sills (to allow viewing when seated), lower light switches, raised electrical sockets, and appropriate washroom fixtures;
b) Natural light is important to the creation of suitable residential space; the project should be oriented to take advantage of direct sunlight;
c) Weather protection should be provided at all entrances;
d) The site and building design should take into consideration the principles of Crime Prevention Through Environmental Design (CPTED); and
e) Site planning and building construction techniques should aim to ensure noise levels acceptable for a residential use.

2.4 ACCESS

OBJECTIVE: Congregate housing should be designed to provide safe and easy access to its residents and visitors.

a) Parking for persons with disabilities should be provided near the main entrance. When provided at grade, there should be a covered drop-off area;
b) Pedestrian access to the project should be safe, well lit, and designed toaccommodate people with disabilities; and
c) Security lighting should be provided outside the building to illuminate pathways and access to the street.

3 INTERNAL DESIGN AND FACILITIES

3.1 UNIT SIZE AND DESIGN

OBJECTIVE: Residential unit size and design should provide for aging in place. Suitability for people using wheelchairs, walkers and other mobility aids should be demonstrated.

NOTE: Dwelling units of at least 28 m² (300 sq.ft.) are preferred but smaller units may be considered if they are functionally useable. Units must not be so tightly programmed that they can only be used in very restricted ways. Sleeping or housekeeping units may be provided if they include a three piece bathroom.

a) The unit size and design should accommodate, as a minimum: a bed (not a Murphy bed or a sofa bed), a dresser, two chairs, desk, and space for personal furnishings;
b) The unit design should include closet space of adequate size to store clothing, including outerwear and seasonal wear, and miscellaneous household effects. Hangar rods and shelves should be adjustable. Adequate circulation space should be provided at the doors to permit access and manoeuvring. Bulk storage space within the unit is desirable;
c) The unit should be of adequate size and design to allow for a support provider to enter the unit and carry out their work while the resident is in the unit;
d) The bathroom should be designed to accommodate mobility aids, and enable a second person to assist the resident. Walls should be reinforced to allow for easy installation of grab bars;
e) Services should include jacks for TV cable, telephone, and emergency call system; and
f) Thermostats in individual rooms are encouraged.

3.2 COMMON AREAS

OBJECTIVE: Common areas should be designed to foster the social interaction and activities that are key to successful congregate housing for seniors. They should be adequately sized to allow residents to move around comfortably, engage in activities, and provide space for guests and visitors.

3.2.1 DINING ROOM AND KITCHEN

a) To accommodate one sitting of residents with mobility aids, and visitors, the size of the dining room should be 2 m² (21.5 sq. ft.) per unit. Requests for variation in this guideline should be accompanied by an operating plan, and access/circulation shouldbe demonstrated;
b) An area for the temporary storage/parking of walkers and other mobility aids should be provided in or near the dining room;
c) Fully wheelchair accessible washrooms should be located close to the dining room; and
d) The project should have an on-site kitchen, which could be shared in cases where congregate housing for seniors is part of a larger complex. The kitchen size and design should be in accordance with the Vancouver Health By-law.

3.2.2 COMMON LOUNGES/ROOMS

a) The project should provide a minimum of 1.5 m² (16 sq. ft.) per unit of common space on the same floor as the dining room. One space to accommodate large gatherings is desirable; smaller common areas and single purpose rooms, such as a library or a billiards room, a computer room, a meeting room , a television room, a recreation room, a chapel, are also encouraged. Wherever possible, opportunities of linking indoor amenity areas with adjacent outdoor open space should be pursued;
b) Fully wheelchair accessible washrooms should be located near the activity areas. These may be shared with the dining area if located nearby;
c) Lounges should be provided on residential floors, especially in projects with small units, or many units per floor. Lounges are best located near central circulation elements. They become more usable when they include a small kitchen, and built in storage space for games and crafts;
d) Where the residential floor includes sleeping units, the lounge space on that floor should be increased and common kitchen/eating areas should be provided; and
e) Lounges should have natural light.

3.2.3 LAUNDRY

a) Laundry facilities should be provided for the use of the residents. To increase the convenience and accessibility of laundry facilities, they should be located adjacent to common lounge areas, at several locations within the building, rather than at one central location; and
b) There should be manoeuvring space for people with mobility aids in front of washers and dryers, and a work surface to accommodate people both sitting and standing.

3.2.4 RECEPTION/ADMINISTRATION

a) To enhance building safety and security, a waiting/rest area, with seating, should be provided near the main entrance. In larger projects, a reception function should also be located here; and
b) Project design should include adequate space for staff providing 24 hour emergency response assistance.

4 BULK STORAGE AREAS

OBJECTIVE: To provide usable and accessible storage for large personal items.

a) Bulk storage areas should be well lit, easy to access, and have electrical outlets. They should be configured to minimize reaching, lifting and bending.

b) When not provided within the unit, storage for large personal items and mobility aids should be available within the building. It should be well lit, easy to access and have electrical outlets.
5 CIRCULATION

OBJECTIVE: The congregate housing project should be designed to accommodate movement of individuals including those with mobility, visual and hearing impairments.

a) Hallways should be at least 1.5 m wide (5 ft.), to comfortably accommodate two-way pedestrian traffic, allowing for residents using mobility aids. They should be well lit with clearly marked exits;
b) Travel distances from residential units to amenities should not be overly long, and within a comfortable walking range for an elderly person;
c) While circuitous hallway configurations should be avoided, a "looping" circulation pattern is preferred where it can be achieved;
d) The project should be designed so that the circulation system is separate from activity areas. For example, direct travel routes from the main entrance to the elevator should not cut through the dining room or other common areas; and
e) Elevators should be designed to accommodate people with various disabilities. Floor lighting is beneficial.

6 SAFETY FEATURES

OBJECTIVE: The building's life safety systems should provide a safe environment for its residents, by taking into account the age of the residents and change over time in their mental and/or physical state.

Staff review will include, but may not be limited to, enhancements such as the following:

a) Provision of horizontal exiting by having two or more fire compartments within a floor area, to allow residents to remain on the floor in a safe compartment while awaiting evacuation assistance;
b) Provision of visual fire alarm signals in the units and the building, in addition to audible signals;
c) Provision of an emergency call system that is monitored 24 hours a day by on-site staff;
d) Provision of a fire safety plan that includes staff assistance to residents in case of emergency;
e) Provision of emergency power in a longer duration than a typical residential building;
f) Provision of adequate emergency lighting (100 lux); and
g) Provision of at least one elevator designed to fire fighters' specifications in buildings above three storeys, to assist with evacuation.

Note: Item g will require installation of an emergency generator, as well as ongoing maintenance and monitoring.

7 OPEN SPACE

OBJECTIVE: On-site open space should be designed and of adequate size to provide a variety of outdoor activities and experiences for congregate housing residents.

a) Private open space for each unit is encouraged (balconies, patios). Where provided, it should be designed to maximize light into the unit;
b) Common outdoor space should be provided and designed for usability and safety/security, such as smooth walking surfaces with non-glare finishes, outdoor seating and rest areas. Approximately 25 percent of this space should be protected from sun, wind and rain. When not provided at grade, protective railings are necessary and should be higher than 1.1 m (3 ft. 6 in.). Wherever possible, outdoor common space should be provided adjacent to or immediately accessible from indoor common space;
c) On-site gardening using raised beds or other design accessible to people with limited mobility, is encouraged; and
d) Existing trees and significant landscape features should be retained where possible. Landscaping should contribute to resident and pedestrian interest, and to screen and provide privacy for at-grade dwelling units.

8 PARKING AND LOADING

OBJECTIVE: Parking should be designed to be safely and easily used by seniors. The number of parking spaces provided on-site should be adequate to serve residents and employees of the project, as well as visitors.

Note: Specific requirements for parking, passenger loading and bicycle parking are in the Parking By-law. In addition, the following guidelines recognize the special needs of an elderly population.

a) Five percent of off-street parking spaces but at least two spaces, whichever is greater, should be designated as parking for persons with disabilities;
b) The parking spaces should be designed to be of a width suitable for use by elderly residents. Small car spaces should be limited to 25 percent of total spaces but have standard car width. Reductions in aisle width may be considered in connection with widening spaces beyond the standard car width;
c) Where a bus or van is provided for outings, then a parking space for it should be provided in addition to the other requirements;
d) Electrical outlets should be provided in the Bicycle room to provide for scooter recharging; and
e) Relaxation of the off-street parking requirement may be considered in the following circumstances:

· where a Housing Agreement is in effect restricting a portion of the residents to being 65 years of age or older, or to being low income renters; or
· where the project is located close to frequent public transit, shopping and community services.
Where a relaxation is supported, it should not be less than:
· 1 space per 4 units, where the unit is less than 70 m² in size; and

· 1 space per 100 m² (1,076 sq. ft.)where the unit is 70 m² (754+ sq. ft.) in size or greater.

Further relaxations may be considered where heritage preservation is a factor.

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(c) 1998 City of Vancouver