POLICY REPORT
SOCIAL DEVELOPMENT

CC File No. 4659
Meeting Date: February 24, 2004

TO:

Vancouver City Council

FROM:

Director, Housing Centre

SUBJECT:

Homelessness

 

RECOMMENDATION

Recommendation B proposes a grant, and requires 8 affirmative votes of Council.

GENERAL MANAGER'S COMMENTS

The General Manager of Community Services Group RECOMMENDS approval of A and B.

COUNCIL POLICY

Council's housing priorities are low and modest income families with children, seniors, low-income singles living in downtown rooming houses and hotels, and those with mental or physical disabilities. The City has undertaken several initiatives to prevent homelessness, including development of new social housing and provision of community services.

On January 5, 1999 City Council joined other Canadian municipalities in declaring homelessness a national disaster and passed a number of motions calling for action by the Federal government and supporting FCM's call for Federal action.

On September 16, 2003 Council called on the Federal and Provincial Governments to fund 2010 units of non-profit rental and co-operative housing annually in British Columbia to serve low and modest income persons and families who cannot afford market rental housing.

PURPOSE

This report is to provide information about the City's role and actions related to homelessness. It provides a context for the companion report "Shelterless in Vancouver, 2004" which describes the findings for a series of night time walkabouts by staff and volunteers who have searched the street of Vancouver. This report recommends initial actions which the City should take to address homelessness, including approving a framework for developing a homelessness action plan.

BACKGROUND

The term homelessness covers several situations. First, it includes people who are shelterless or "living rough" - those who are sleeping in back lanes, parks, alcoves, etc. The second group is people who are staying in shelters or transition housing as temporary accommodation. The third group is people who are "at risk of homelessness" because they are living in places which are not safe, secure or affordable.

At the beginning of 1999 the City joined other municipalities in a national effort to focus attention on housing and homelessness. The National Housing Policy Options Team (NHPOT) was formed as part of FCM to press for a national housing strategy to help address homelessness and affordable housing issues.

Council received several reports on homelessness in 2001 including one describing those who are shelterless in Vancouver, another seeking endorsement of the Regional Homelessness Plan for Greater Vancouver, and a third recommending a grant to continue the work of NHPOT. This report and the companion report "Shelterless in Vancouver, 2004" is an update of those earlier reports.

On August 13, 2003 Council asked the City Manager to designate a senior staff member as the city's homelessness policy co-ordinator with a mandate to report back on the city's achievements to date, to monitor homelessness in the city and to recommend additional measure that may be necessary to confront this problem.

On September 16, 2003 Council passed a comprehensive motion on housing and social diversity and inclusion and resolved that the City take action in a number of areas including the development of a homelessness action plan for Vancouver that includes: urgent measures to ensure a minimum level of shelter for the homeless within the city, including a cold, wet weather strategy, and recommendations to manage the growing number of transient homeless in the city and the needs of the shelterless.

DISCUSSION

1. The current nature of homelessness

Both the face and amount of homelessness is changing. As indicated in the companion report, Shelterless in Vancouver, 2004, the number of people who are sleeping rough has approximately doubled in the last few years. The face of homelessness is also changing. There are higher proportions of young adults, aboriginal people and working people among those who are shelterless.

2. Issues/Challenges

There are a number of reasons why we are seeing more homelessness in our city and region. Many of the systems that prevent homelessness are being eroded. An increasing number of households do not have sufficient income to afford adequate housing. The provision of affordable housing and services are not keeping up with demands, and social housing programs targeting the homeless have been cancelled. Some senior government policies, such as changes to the welfare system, are exacerbating the problems. In the background, some of the larger societal changes, such as urbanization and migration, contribute to the problem.

The statistical indicators of housing show a worsening situation. As indicated in the Fact Sheet in Appendix A, since 1991 there has been a 50% increase in the number of households paying 50% more of their income on housing from 28,000 households to 41,000 households.

The shelterless are more visible because the existing resources and services are stretched to the maximum. There are overflows in the shelters, supportive housing, and social housing. Even the inconspicuous "camping" spots are filled.

Municipalities are the level of government with the least financial resources and authority to address the problems of homelessness, but the one that is experiencing the effects most severely. Those who are shelterless hang out on city streets, sleep in city parks and on private property, and often residents call on City staff to respond.

As the companion report relates, the shelterless population is diverse. Some people become homeless due to a specific situation such as losing a job and as a result experience homelessness episodically as they struggle to get back into the job market. Others may have a long history of homelessness. There is a concern that there is an increasing number of people for whom homelessness is a chronic situation. There is a need to provide resources in a timely way, or, as time goes by, it is less likely that they will be able to move inside. The reasons for increased homelessness are also diverse and complex. There is no single solution and action is needed on a number of fronts.

3. What is being done now

The Mayor has initiated discussions on homelessness ( and panhandling) and several stakeholder meetings have been held. In addition two Mayor's forums were held on January 10, 2004 and February 11, 2004 which provided City residents and other stakeholders the opportunity to provide their views.

a) Day to day response

On a day to day basis, many city staff are involved with those who are shelterless. The Tenant Assistance program assists people to move inside. Engineering and Parks are often called when people are camping on city and park land. City-owned or supported centres such as the Carnegie Centre, Gathering Place and Evelyne Saller Centre are important resources for homeless people. A number of non-profit social services, which the City supports through its Community Services Grants, also provide information, food and referral. Libraries and community centres provide service to those who have no homes, or deal with the people who may be sleeping outside their buildings. For some staff, this is a new situation, requiring different skills. Throughout the City, the NIST teams are increasingly grappling with ways to deal with homelessness.

This past year saw the emergence of homeless camps, some in City parks and some on City land. A multi-department, multi-agency group worked together to resolve the situation by providing assistance to people who wanted to move inside.

(b) Sheltered housing programs

Much of the effort of the Housing Centre is directly or indirectly involved with homelessness. (The work of the Tenant Assistance Program is discussed separately). The city is part of a major strategy, working with shelter providers and the provincial government, to respond during cold/wet weather. During these spells, the City opens the Evelyne Saller Centre and the Gathering Place to accommodate people when the existing shelters are full. Both facilities provide a place to sleep, blankets or sleeping bags and hot drinks and snacks. They are staffed by City employees working overtime, with funding from the Ministry of Human Resources. Appendix B contains a historical record of this service. During this year the Gathering Place has opened 6 night and the Evelyne Saller 7 nights. The Appendix also shows the response by other shelter providers during the recent cold spell. More shelter was available this year in Vancouver, and the GVRD. This is due to the co-ordinated regional strategy, and assisted through funding from the federal homelessness program (SCPI). The City has taken the approach that shelters are "doors" to permanent housing and has concentrated much of its efforts on encouraging affordable housing and in particular, non-market housing. The City's main role has been in providing land leases and relatively small grants for non-market housing. Since 1992, 87 non-market housing projects have been developed, resulting in new apartments for over 4600 households. Close to two-thirds (56 projects) have been on City-leased land.

The City continues to work to develop housing for the homeless, despite the provincial government reductions in funding for new social housing for the homeless and at-risk. For example the City purchased the Stanley New-Fountain in the Downtown, and provided a grant to a project on Fraser Street which will house people at risk of homelessness.

(c) Regional Level

On a regional level, the City sits on the Greater Vancouver Regional Steering Committee, which completed a Regional Homelessness Plan Update in November 2003. As background to the Update, a revised inventory of facilities and services was completed, showing an improvement in some areas, particularly in the number of emergency shelter beds. The revised plan confirms and updates priorities, policies and actions that can be implemented throughout the region by all levels of government and the private and non-profit sectors. In 2001 City Council approved the guiding principles of the initial plan, and the updated plan continues to embody these: comprehensive; accessible; inclusive; preventative; collaborative and long term. Both the 2001 Regional Homelessness Plan and the Plan Update is available on the City and GVRD's web-site and on file with the City Clerk.

Part of the work of the Regional Steering Committee has been to recommend allocation of funds under the Supporting Communities Partnership Initiative (SCPI), a program of the federal government. During the first three years of that program $25.2 million, over a three year program, was allocated. More than $10 million, (or about 40%) was spent on projects within the City of Vancouver. The specific projects are listed in Appendix C. The federal government has renewed that program for another three years with close to $25 million. The Steering Committee has made recommendations on projects to be funded during the first phase of the renewed program. Those are being reviewed by the Minister of Homelessness and announcements are expected shortly.

A group, including the Greater Vancouver Regional Homelessness Steering Committee, is sponsoring a project to plan for the expansion of emergency shelter and transitional housing in Greater Vancouver. The plan will be based on an analysis of the current usage of the regional shelters and would identify priorities for providing additional shelter capacity by population group and by sub-region. The preliminary phase of the project costs $15,000. It would secure funders and determine the reporting and stakeholder consultation structure, which is complicated, given the myriad of agencies involved with shelters. The City is contributing $5,000, and the Ministry of Human Resources and BC Housing have each agreed to contribute that amount. The full study is expected to cost up to $90,000 and the City will likely be asked to contribute further at a future date.

4. Future directions - A Framework for Homelessness Action Plan - 3 Ways to Home

Council has requested that the City develop a homelessness action plan indicating what the City and others can do to address this urgent problem. It is proposed that the framework for the plan be similar to that of several other major North American cities and regions, including the Greater Vancouver Regional Homeless Strategy. This framework has been called the "Continuum of Housing and Support" model which identifies three essential components to alleviating homelessness. These are: housing; income; and support, each of which contains sub-elements. Staff is asking Council to endorse the framework for an action plan. Action must be taken in each of these areas to successfully deal with the complexities underlying homelessness.

In Vancouver, we estimate that there are now approximately 500-1200 people, depending on the season, who are shelterless on any given night and the number has doubled in the last two years. This is a worrisome situation, but homelessness in Vancouver can be brought under control if the problem is addressed collectively. The proposed action plan will outline what can be done with sufficient public and multi-governmental support. The plan will recommend actions for the City, community, business and other levels of government.

(a) Housing/shelter

Housing is the key element in the framework to prevent and alleviate homelessness. The housing continuum includes emergency housing (shelters), transitional/supportive housing and independent housing. Traditionally the City's role has focussed on providing land, particularly for independent housing, but more recently has expanded to providing land for emergency and transitional/supportive housing.

It is likely that the action plan will identify a need to expand most forms of shelter and/or housing, especially supportive housing. An issue which will be addressed is where resources should be focussed on the housing continuum. For example, to house 1000 homeless people and assuming there is funding available, how much emphasis should be on emergency housing compared with independent housing. Generally emergency housing is more expensive than independent housing. For example emergency shelters cost $31 - $85/ per day per person compared to $67 - $88 for supportive housing and $25 - $35 for non-market housing.

Tent cities are beginning to be evident in a number of North American cities. More research will be undertaken on whether Vancouver should sanction this approach, but early indications are that this is an expensive solution, possibly $1 million per year for 50-100 tents, and unlikely to provide the support which is needed to stabilize the lives of people now homeless.

Traditionally it has been the role of the provincial government to provide funds for shelter operations, as a part of their responsibilities for the social assistance system. It would be difficult for the City, with its limited property tax base, to take on funding shelter operations. Even if it could afford to deal with the current homeless population, it could lead to an increase in migration of homeless into the city, in the absence of similar action by other municipalities. As noted previously, a regional review of shelter needs is being initiated, and the City will be involved.

Regarding affordable housing, with a new federal government there may be opportunities to encourage more investment in social housing. The Province's housing program, Independent Living B.C., focuses mainly on the frail elderly. The program was initially announced to operate through 2005 and there may be opportunities to influence the direction of future programs, in particular so they address City needs such as housing for those who are homeless, addicted, in recovery, or mentally ill, and families with children who work in the City but can't afford to live here.

There may also be opportunities for the private sector to become more involved with the provision of affordable housing.

(b) Services

The second element of framework for the proposed homelessness action plan is services. People who are homeless need information, counselling, referrals, practical help, emotion of support and a range of health services. Many of the non-profit community service agencies are increasingly dealing with the service, food and information needs of the homeless. The City's Framework for Action identified what services are needed to assist substance users, some of whom are homeless. The homelessness action plan would also identify what needs to be done in terms of homeless prevention, outreach and drop in, health and mental health services. This latter aspect is particularly important, as many of the people who are shelterless, suffer from mental illness.

(c) Income

The framework recognizes that a major element of being homeless is not having enough money to pay rent. The plan will identify actions to encourage more people to gain employment, and also any legislative changes that may be needed to government financial support programs.

(d) Timing and Public involvement to prepare Housing Action Plan

The intent is to provide a timely action plan, drawing as much as possible on existing reports and information. Therefore the process for preparing the plan will not be drawn out.

As noted, the Mayor has held several stakeholder and public forums where homelessness has been discussed. This information will be used in developing the action plan.

It is proposed that there be 2-3 meetings with key stakeholders and a focus group for the homeless. It is proposed to report back to Council in September.

5. FCM - National Housing Policy Options Team(NHPOT)

NHPOT was created by the FCM's Big City Mayor's Caucus in 1998, partly as a result of the growing homelessness problem. NHPOT consists of a Steering Committee of elected officials and a technical committee of municipal staff involved with housing. Councillor Jim Green is the Chair.

The Team has produced a number of reports which have been used in presentations to federal government officials, politicians and others to encourage more housing initiatives. There have been results from these efforts. The Federal Co-ordinator for Homelessness acknowledged that FCM's efforts contributed to the creation of the Supporting Communities Partnership Initiative. The recent federal budget continued the program, for another three years at $135 million per year, added an additional $320 million over the next five years for affordable housing, and extended the Residential Rehabilitation Assistance program for three years at $128 million per year.

NHPOT has been funded through municipal contributions based on a per capita grant. The City has provided grants of $15,420 in 1999, $10,280 in 2000 and $7,710 in 2001. This latter contribution was based on 1.5 cents per capita, based on the 1996 census population of 514,008.

FCM is again asking for municipal contributions, at 1.5 cents per capita. Using the 2001 census population of 545,670, this amounts to $8,185.

It is critical that the City of Vancouver have input into recommendations for federal housing initiatives. A grant of $8,185 is recommended, with funding from the 2004 Contingency Reserve.

6. Tenant Assistance Program

Within the Housing Centre, the Tenant Assistance Program provides assistance to low-income people to help them find housing. There are currently two people on staff, the Tenant Assistance Coordinator and the Housing Relocator.

The demand for and complexity of these services has increased significantly during the last few years, to the point where the pressures for services are far beyond what can reasonably be provided by two people. More people are requiring service and the individual situations tend to be more complicated, requiring longer time with each client. The increase in homelessness is part of this. The work has reached the point where the current staff can no longer cope with the demand.

The major component of the relocation program includes:

S working with individuals who are shelterless to find housing, which often means assisting with getting welfare, health services, etc
S

S assisting with housing people who are displaced from buildings closed by the City due to standards of maintenance, fires, etc
S

S assisting with housing people in the squats/camps
S

S midnight to dawn walks to count and offer service to the homeless
S

S liaising with cold and extreme wet weather providers to provide beds

An additional staff person is required so that the program continues to provide adequate relocation services and the City responds to increased demands as a result of increased homelessness. However the 2004 Operating Budget is currently under review. Staff will report back on a new Housing Relocator position, including whether it should be temporary or permanent, once the 2004 Operating Budget is adopted. In the meantime, temporary staff funds within the existing budget will be used to manage the current overload. While not ideal, as temporary staff funds will not be available during the year for other programs, staff believe this is the best approach, given the urgency and the timing of the operating budget review.

There is also a need to review the mandate of the tenant assistance program, which has grown since its inception. The job descriptions were drafted in the early 1990s and do not reflect the current responsibilities. Later this spring, the Director of the Housing Centre will report to Council on the structure and mandate for the Tenant Assistance Program.

CONCLUSION

Homelessness is an increasing issue for the City and its residents. It is a solvable but a problem which the City cannot solve alone. There are a number of ways in which the City can better respond. The first is to develop an action plan to identify actions by not just the City, but other levels of government, community groups, private sector and residents. In the meantime, the City can provide some limited financial assistance to others, such as FCM and those planning for shelter needs in the region. In the near future, there is also a need to review the first line of response to homeless people provided by the Tenant Assistance Program.

APPENDIX A
Page 1 of 2

HOMELESSNESS & HOUSING AFFORDABILITY: ONGOING ISSUES IN VANCOUVER AREA

_ Shelter Costs in the City of Vancouver are High.....

_ More Vancouver Residents Spent Greater Percentage of Income on Shelter.....

_ The number of households spending 50% or more of their income on shelter increased 50% in the last 10 years; from 27,576 households in 1991 to 41,104 households in 2001.

APPENDIX A (Page 2 of 2)

_ Despite Increasing Incomes, Many People Are Below Low Income Cut-offs .....

_ More Housing, Support and Services Are Needed.....

APPENDIX B
Page 1 of 2

Extreme Cold/Wet Weather Response

Table A: Number of people staying at City centres
Current year - 2004

 

Evelyne Saller

Gathering Place

January 2

16

Not available

January 3

20

13

January 4

26

17

January 5

32

20

January 6

26

19

January 7

30

16

January 8

34

Not open

     

APPENDIX B
Page 2 of 2

Table B: History

 

Nights

People

  

Nights

People

  

1989/90

10

650

        

1990/91

12

356

        

1991/92

mild winter

          

1992/93

16

489

        

1993/94

mild winter

          

1994/95

5

131

        

1995/96

10

335

  

6

317

  

1996/97

7

170

  

3

61

  

1997/98

7

239

  

5

152

  

1998/99

6

93

  

6

103

  

1999/00

5

61

  

not available

not available

  

2000/01

3

37

  

4

33

  

2001/02

3

71

  

1

20

  

2002/03

6

110

  

not available

not available

  

The City is part of a strategy to respond to extreme cold/wet weather. The above centres are open during severe weather spells with regular City staff working overtime, funded by Ministry of Human Resources. In addition staff from the Tenant Assistance program went into the streets to bring people sleeping outside into the shelters and mat programs.

Other participants in the city in the recent cold spell included:

S Ministry of Human Resources spent about $9,000 which funded 37 spaces which were squeezed into the existing shelters in the city
S

S The Aboriginal Centre:
January 6 65 people
January 7 95 people
January 8 52 people

S First Baptist Church, always open Tuesday nights as shelter, opened two additional nights
S The Door is Open, a drop-in centre in the Downtown Eastside, opened at 5 am to bring in people who had stayed up outside during the night

Analysis of Phase One SCPI Projects in the City of Vancouver

I. SCPI Projects by Homelessness Plan Priority
a) Housing

Homelessness Plan Priority

Project Name and Description

Sponsor Organization

Year

Minimal Barrier Emergency Shelter - Year Round (5)

Fifth and Yukon Shelter, Vancouver
_ capital costs for the construction of a new shelter providing 36 emergency beds and 37 units of transitional housing, as well as a range of support services

Lookout Emergency Aid Society

2000

 

Covenant House, Vancouver
_ add 4 beds to existing shelter for youth
_ renovations to support expansion

Covenant House Vancouver

2000

 

St. Elizabeth Home, Vancouver
_ capital funding for a shelter for women and children providing 32 emergency beds and 12 transitional beds, as well as outreach and support services

St. James Community Service Society

2001

 

Dunsmuir House Replacement Facility, Vancouver
_ assist with capital costs for the construction of a new shelter providing 84 emergency beds and 102 transitional housing beds, as well as support services

Salvation Army

2002

 

Fineday House Enhancement, Vancouver
_ renovate and improve existing facility

VI Fineday Family Services Society

2002

Minimal Barrier Emergency Shelter - Seasonal (6)

Aboriginal Youth Safehouse, Vancouver
_ rent and furnish a house to provide 10 seasonal beds and 5 transitional housing beds for youth

Urban Native Youth Association

2000

 

Marpole Shelter, Vancouver
_ continue to provide 50 seasonal beds (until a year round shelter facility is available)
_ enhance support services available at existing shelter

Lookout Emergency Aid Society

2000

 

The Umbrella, Vancouver
_ create 16 seasonal beds for women
_ provide a variety of support services

St. James Community Service
Society

2000

 

Marpole Shelter, Vancouver
_ continue to provide 50 seasonal beds (until a year round shelter facility is available)
_ provide a variety of support services

Lookout Emergency Aid Society

2001

 

The Umbrella, Vancouver
_ create 20 seasonal beds for women
_ provide a variety of support services

St. James Community Service Society

2001

 

The Umbrella, Vancouver
_ create 20 seasonal beds for women
_ provide a variety of support services

St. James Community Service Society

2002

Transitional Housing (5)

A Place to Sleep, Something to Eat, and Someone Who Cares, Vancouver
_ renovate existing sub-standard housing units to create 4 transitional housing beds for young women in the sex trade

Prostitution Alternatives Counselling & Education

2000

 

Powell Street Shelter, Vancouver
_ purchase Sakura So rooming house to preserve housing
_ create 38 transitional housing beds

Lookout Emergency Aid Society

2000

 

Princess Rooms, Vancouver
_ purchase existing single room occupancy hotel to create 47 transitional housing beds for high risk homeless persons
_ provide a variety of support services

Triage Emergency Services

2000

 

YWCA Crabtree Corner and Sheway Redevelopment, Vancouver
_ predevelopment activities for the creation of a new combined space for Crabtree and Sheway programs to replace existing buildings

YWCA

2000

 

YWCA Crabtree Corner and Sheway Redevelopment, Vancouver
_ capital costs for the new site for Crabtree and Sheway programs (including 12 new transitional housing units)

YWCA

2002

Supportive Housing

Restoration of the Pennsylvania Hotel, Vancouver
_ renovate existing vacant building to preserve housing, and to create 44 supportive housing units

Portland Hotel Society

2000

b) Support Services Projects

Homelessness Plan Priority

Project Name and Description

Sponsor Organization

Year

Outreach (3)

First Baptist Outreach, Vancouver
_ hire outreach worker to provide follow-up advocacy, referrals, and consistent management of the existing shelter

First Baptist Church

2000

 

Triage Outreach, Vancouver
_ hire additional outreach workers to provide a variety of supports to homeless and at-risk individuals

Triage Emergency Services

2000

 

First Baptist Outreach, Vancouver
_ hire outreach worker

First Baptist Church

2002

Drop-In (2)

Programs for Independence, Vancouver
_ enhance staffing and conduct renovations and site improvements to existing youth support service facility

Family Services of Greater Vancouver

2001

 

Dusk to Dawn Street Youth Resource Centre, Vancouver
_ purchase building to create a multi-purpose resource centre for street youth

Family Services of Greater Vancouver

2002

Mental Health

Dual Diagnosis Assertive Community Outreach Team Pilot Project, Vancouver
_ initiate specialized dual diagnosis component to the existing outreach program providing case management

Triage Emergency Services

2001

c) Research and Planning Projects

Homelessness Plan Priority

Project Name and Description

Sponsor Organization

Year

Research/ planning

Feasibility Study, Vancouver
_ study on implementing an intervention program targeted at homeless, street involved urban aboriginal youth

Urban Native Youth Association

2000

II. Distribution of SCPI Funding by Homelessness Plan Priority
As noted above, the total amount of Human Resources Development Canada funding provided to SCPI projects in Vancouver was $10,020,081. The table and chart included below set out the distribution of this funding by the Homelessness Plan priority areas addressed by Vancouver-based projects.

Homelessness Plan Priority

Amount of SCPI Funding

Minimal Barrier Emergency Shelters

$4,888,121

Supportive Housing

$1,540,000

Transitional Housing

$3,011,925

HOUSING TOTAL

        $9,440,046

   

Outreach Services

$95,240

Drop-In Services

$299,981

Mental Health Services

$144,383

SUPPORT TOTAL

        $539,604

   

RESEARCH/PLANNING TOTAL

$40,431

   

Total SCPI Funding

$10,020,081

Within the $9.4 million of housing funding, the largest amount (just under $5 million, or 49% of all Vancouver funding) has gone toward projects addressing the need for minimal barrier emergency shelters. Following minimal barrier emergency shelters is transitional housing (30%), and supportive housing (15%). The various support services projects constitute a small portion of overall funding (a combined total of 5%).

* * * * *

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