ADMINISTRATIVE REPORT
Date: May 26, 2003
Author/Local: C. Gray/7207
RTS No. 03319
CC File No. 4551/8020
Meeting Date: June 10, 2003
TO: |
Vancouver City Council |
FROM: |
Director of the Housing Centre |
SUBJECT: |
Taylor Manor - 951 Boundary Road - Little Mountain Proposal |
RECOMMENDATION
THAT Council advise Little Mountain Residential Care and Housing Society that it may submit Taylor Manor (951 Boundary Road) to the Province's Independent Living BC proposal call, with the submission to be for the renovation of Taylor Manor to accommodate 23 units of supportive housing for seniors to be operated in conjunction with Adanac Park Lodge;
FURTHER THAT Council approve in principle a grant of $300,000 from the 2003-5 Capital Plan allocation to the Affordable Housing Fund for the renovation of Taylor Manor, on condition that Little Mountain Residential Care and Housing Society contribute an equal amount, and a nominal lease, with final approval of Council to be subject to the results of the Independent Living BC proposal call and a report back on lease terms and conditions;
AND FURTHER THAT no legal rights or obligations shall arise or be created until Council gives final approval to the project and all legal documentation is fully prepared and executed on terms and conditions to the satisfaction of the City's Director of Legal Services.
This recommendation proposes a grant and nominal lease and therefore requires two-thirds (8 votes) support from Council.
GENERAL MANAGER'S COMMENTS
The General Manager of Community Services RECOMMENDS approval of the foregoing.
COUNCIL POLICY
Council's social housing priorities are to: Maintain and expand housing opportunities in Vancouver for low and modest income households with priority being given to families with children; seniors on fixed incomes or in need of support; SRO residents; and the mentally ill, physically disabled, and others at risk of homelessness.
PURPOSE
This report seeks Council permission for the Little Mountain Residential Care and Housing Society (Little Mountain) to submit Taylor Manor for funding through the Province's Independent Living BC program, with the intent to renovate the building for 23 units of supportive housing to serve seniors, and to operate the building in conjunction with Adanac Park Lodge (851 Boundary Rd.). The report recommends that Council approve in principle a $300,000 grant from the Affordable Housing Fund for the project.
BACKGROUND
Taylor Manor is located at the corner of Adanac and Boundary Rd., and is surrounded by Adanac Park to the south and west. It shares the site with Adanac Park Lodge multi-level care facility operated by Little Mountain. The location is noted on Figure 1. The building comprises approximately 21,410 sq. ft. on three floors, and is located on a 1.32 acre park-like site. It is owned by the City, and held as a capital asset.
Taylor Manor was built by the City in 1913. It was intended as a residence for the then Mayor, Louis D. Taylor, but soon after its completion became the Vancouver Old People's Home, and later became known as Taylor Manor. It remained a seniors residence until the 1960s when it became a 58-bed licensed care facility for seniors operated by the City.
In 1992, the site was rezoned to allow for the construction of a replacement care facility and the renovation of Taylor Manor. At that time Taylor Manor, a `B' building on the City's Heritage Register, was designated as protected heritage property. In 1998 Adanac Park Lodge, with 75 beds was completed and with Little Mountain as the operator.
Figure 1
In 1999 the City sought expressions of interest from developers or societies interested in taking on the renovation of Taylor Manor. There were 5 responses, and Council instructed staff to commence discussion with 2 non-profit proponents. Neither proceeded, as one found an alternate site, and the other was unable to secure senior government funding. Taylor Manor has been vacant since 2000. The building is in relatively good condition (the heat has been kept on and security provided) but renovation should not be delayed.
LITTLE MOUNTAIN PROPOSAL
Little Mountain did not submit a proposal when the City sought expressions of interest in 1999. It was just completing Adanac Park Lodge, and did not feel capable of taking on another project at the time. In February 2002, Little Mountain wrote the City asking if they could pursue renovation of Taylor Manor under the proposed new provincial social housing program targeted to seniors in need of support.
Little Mountain developed a detailed draft proposal which was submitted to the City in June 2002. It proposed that 23 self-contained units be developed in the building, with accommodation costs (rent, food and services) affordable to the lowest income seniors. They would operate the building in conjunction with Adanac Park Lodge. The renovated Taylor Manor would include activity, lounge and dining space, but food would be provided by the
kitchens and services by the staff in Adanac Park Lodge. The residents in the renovated Taylor Manor would be less frail than the residents of Adanac Park Lodge. They would be capable of independent living and would require limited support services beyond meals and housekeeping. Little Mountain's intent is to create a continuum of care or campus model for
seniors needing lesser and greater levels of support.
The proposal included draft capital and operating budgets. The budgets indicated that $580,000 in additional equity would be required for the building to be renovated within the funding limits of the proposed provincial housing program and to preserve the heritage value of the building. Little Mountain proposed that they commit to raise $300,000 in equity if the City would commit to a grant of equal size. The City would have to lease Taylor Manor to Little Mountain for a nominal prepaid rent for the project to be viable. Their updated letter is attached as Appendix A.
Council authorized that new proposals for Taylor Manor be considered in July 2002. Since then, both the Society and the City have been awaiting the details of the new provincial social housing program to be finalized.
INDEPENDENT LIVING BC
The specifications of the new program, now called Independent Living BC, were published in April 2003 and BC Housing has announced a proposal call for projects to be funded through the program, with proposals due on July 31, 2003. Detailed information is available on BC Housing's website www.bchousing.org/Supp_Liv/.
Independent Living BC is a "housing for health partnership" co-produced and co-managed by BC Housing and the provincial Health Authorities. It is intended to provide housing for seniors and those with disabilities who need support as well as housing (the Vancouver Coastal Health Authority refers to the program as supportive housing). Specifically, the program provides support that maximizes and maintains independence. Seniors living in Independent Living BC projects live in self-contained units, so they can make meals for themselves, take care of themselves and entertain friends and neighbours in their units. They have access to two meals/day, housekeeping and personal care, and pay a rent covering both housing and services. Independent Living BC fills the need between home care and complex care, and is intended to create a continuum of care for seniors and others with disabilities. Independent Living BC will include housing where services are provided on a scheduled basis for more independent seniors ("independent living with support services") and housing where services are available as and when needed for less independent seniors ("assisted living").
If renovated for supportive housing through Independent Living BC, and operated in conjunction with Adanac Park Lodge, Taylor Manor would create a continuum of supportive housing for seniors. Taylor Manor is in a park-like setting, but does lack easy access to shopping and transit. Little Mountain has vans and will provide transportation for the seniors in Taylor Manor so they have access to the broader community.
Supportive seniors housing as part of a campus and continuum of care is the most obvious re-use of Taylor Manor, and would allow this vacant building to be converted from a liability to an asset, and allow the heritage value of the building to be preserved. The Director of Real Estate Services advises that renovation of Taylor Manor through the Independent Living BC Program is likely the optimal use of the building. It is recommended that Little Mountain be permitted to submit Taylor Manor to BC Housing's Independent Living BC proposal call, and that Council approve in principle a grant of $300,000 for the project with final approval subject to Little Mountain raising an equal amount, to the results of the Independent Living BC proposal call, and a report back on lease terms. Funding would be provided from the 2004 allocation to the Affordable Housing Fund from the 2003-5 Capital Plan.
LEASE TERMS
Lease terms will not be reported to Council until final approval is sought, assuming the proposal is allocated Independent Living BC units. Specific lease terms may be required to address issues that emerge from the detailed design of the project and from the requirements of the Independent Living BC program. It is expected that the lease terms will include the following:
Term: Adanac Park Lodge's lease terminates in 2058. The lease for Taylor Manor should terminate at the same time, as they effectively share a single site and their futures should be addressed together.
Rent: There would be a nominal prepaid rent for the initial 40 years (until 2043) of the lease term, with a market rent to be paid for the last 15 years of the lease term if the project generates sufficient net revenue.
Heritage: Taylor Manor is a municipally designated heritage building. The lease will incorporate the Heritage Revitalization Agreement that would be required if the site were not City-owned. The lease will require that the building be renovated and maintained to the satisfaction of the City's heritage planners.
Landscape: Taylor Manor is in a park-like setting of lawns and mature trees. The lease will require that the landscape setting and trees be maintained and preserved.
Operation: There will be an operating agreement between Little Mountain, VCHA and BC Housing which will address tenant selection, services to be provided, rent to be charged, etc., and the lease will include a requirement that the operating agreement be maintained in good standing.
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