Agenda Index City of Vancouver

POLICY REPORT
URBAN STRUCTURE

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:

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:

· 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:

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:

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:

Existing Resident Characteristics:

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:

The key features of the guidelines are summarized below:


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

B) Fire and Safety Requirements of the Building Code

C) FSR Exclusions

2) Other Issues

A) Zoning and Development By-law / Use Definition

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

C) Congregate Housing in Single Family Zones

D) Strata-Titling of Congregate Housing Units

E) Conversion of Existing Rental Buildings to Congregate Housing

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:

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;

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

3 Internal Design and Facilities

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:

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

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


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:


ag000711.htm

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

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