COCHRANE DISTRICT SOCIAL SERVICES ADMINISTRATION BOARD
10 YEAR HOUSING PLAN
A Blueprint for Sustainability
2014 Acknowledgements
Although this plan is a result of the Housing Services Act requirement to generate a 10-year plan the purpose of the plan is to provide a blueprint for the CDSSAB and those who partner with the CDSSAB to create sustainable communities. The Plan is intended to speak to a number stakeholders but none more so than the residents of the District of Cochrane who contributed greatly to the data contained herein.
The following bodies and personnel were also influential in the completion of this plan:
Community stakeholder organizations and service providers Local employers and business professionals Staff at the Ministry of Municipal Affairs and Housing OMSSA and the Housing and Homelessness Resource Centre Housing Services Corporation SHS Consulting and refact Consulting Clear Logic Professional Consulting CDSSAB Member Municipalities The management and staff of the Cochrane District Social Services Administration Board
1 | Page
Table of Contents Executive Summary ...... 4 1. Introduction ...... 8 1.1. Guiding Principle ...... 9 1.2. Context and Background ...... 9 2. Methodology ...... 9 2.1. Approach ...... 10 2.2. Process ...... 11 2.2.1. Communication ...... 12 2.2.2. Data Gathering ...... 13 2.3. Next Steps ...... 18 3. Analysis ...... 18 3.1. What We Heard ...... 19 3.1.1. Focus groups ...... 19 3.1.2. Community Consultations...... 20 3.1.3. Surveys ...... 23 3.2. What Does the Data Tell Us ...... 24 3.2.1. Demographic ...... 24 3.2.2. Economic ...... 25 3.2.3. Housing ...... 26 3.2.4. Strategy Development ...... 27 Service System Management...... 27 Housing and Service Spectrum ...... 28 Housing Development Corporation ...... 29 3.2.5. Key Service Considerations ...... 29 3.2.5.1. Declining or Stagnant Population ...... 30 3.2.5.2. Supportive Housing ...... 30 3.2.5.3. Aboriginal Population ...... 32 3.2.5.4. Victims of Domestic Violence ...... 32 3.2.5.5. Youth ...... 33 3.2.5.6. Homelessness - Capacity point ...... 33 3.2.5.7. Accessibility ...... 34 3.2.5.8. Economic trends ...... 34
2 | Page
3.3. Measures ...... 38 4. Recommendations ...... 39 Conclusion ...... 41 References ...... 45
3 | Page
Executive Summary
The Cochrane DSSAB’s 10-Year Housing Plan: A Blueprint for Sustainability focuses on tangible strategies to solve short and long-term problems. The plan positions housing as one piece of a larger puzzle where the other pieces (economic development, health, education, employment) must all be in place in order to create sustainable communities. The plan is accountable in that the role of housing in supporting the other pieces is also identified; that is, economic development or health care plans are limited in scope and effectiveness if safe and affordable housing is not part of the foundation upon which these other plans are built. The Cochrane Plan is structured such that it facilitates recommendations at the Federal, Provincial, and Municipal levels and specifically includes separate analysis and recommendations for each of the CDSSAB’s member municipalities. The plan covers the critical elements laid out in the Housing Services Act and the Ontario Housing Provincial Policy Statement.
Methodology
Qualitative and Quantitative data was collected to inform plan development. It was important to hear what the residents and sector stakeholders had to say about the state of housing throughout the District. The consultations also served as an opportunity to inform people about the potential for housing as an investment capable of generating significant returns. The quantitative data confirmed many of the points voiced during the consultations thereby adding credibility to the comments and context to the numbers.
Analysis
What we heard
The two key issues identified were related to supportive housing and affordability. Comments concerning supportive housing were mainly focused around the seniors’ population and the services that needed to be in place to allow people to age at home and prevent premature entry to the long-term care system. However, supportive housing was also mentioned as a gap for those with mental health or addictions issues, victims of domestic violence, or those with mobility restrictions
Affordability came up a number of times in consultations due to the fact that average market rents in many communities is at an all-time high and vacancy rates at all-time lows; thus demand is restricting affordability. A number of secondary issues were raised concerning the impacts that a lack of affordable housing has on community economic development.
What the data tells us
The quantitative data was broken down into three areas: demographic, economic, and housing.
The demographic trends supported the comments from the consultations; in that, the population in the Cochrane District is ageing which is putting pressure on the support services associated with care for seniors. The population decline in the highway 11 municipalities was tempered by the slight increase in the City of Timmins; however, the decline was highlighted as having a cause and effect relationship with the status of economic health in many communities.
4 | Page
Key service considerations
1. Declining or Stagnant Population 2. Supportive Housing 3. Aboriginal Population 4. Victims of Domestic Violence 5. Youth 6. Homelessness 7. Accessibility 8. Economic Trends
The strategy put forth to create individual, community, and District sustainability, accounting for the key service considerations highlighted in the data analysis, was for the CDSSAB to assume the role of service system manager. A housing plan on its own cannot resolve the individual or community level issues; however, by employing a service system management strategy where municipal governments partner with service providers and developers , the CDSSAB can use the housing plan as a blueprint for sustainability.
Recommendations
The plan makes 17 recommendations to municipalities, stakeholder organizations, service providers, and provincial ministries. These recommendations are intended to enable the strategies that will create sustainable individuals and communities and to hold all partners accountable to long-term achievement.
Service System Management
1. The CDSSAB formally acknowledge its role as a Service System Manager and take advantage of opportunities for growth and to minimize risk for municipalities, the organization, tenants, clients, and citizens thereby creating district wide sustainability and providing justification for secure investment opportunities for other levels of government and private interests.
2. In recognition of limited capacity, local supportive service providers partner with the CDSSAB and CDLHC to form a committee where service needs can be quantified and efficiencies realized with the goal of developing a supportive affordable housing model to serve multiple needs (i.e. addictions, mental health, mobility restrictions, victims of domestic violence, developmental challenges).
3. Homeless shelters and homelessness service agencies partner with the CDSSAB and CDLHC to coordinate resources and develop appropriate models that optimize limited funding (i.e. housing first).
Health
4. The Ministry of Health and Long-Term Care, the Northeast Local Health Integration Network, and the Community Care Access Centre must optimize the ‘hub’ service strategy whereby housing assets in all communities can be used to serve the health needs of residents and neighbours, particularly in the smaller communities on Highway 11.
5 | Page
5. The Ministry of Health and Long-Term Care and the Northeast Local Health Integration Network must join with representatives from the CDSSAB to quantify current local service delivery costs and commit to reinvest local fund surpluses realized via the successful implementation of the hub service model, the Health Links program, and Community Paramedicine program.
Education
6. To enable and optimize mutually beneficial development strategies the Ministry of Education and local school boards must acknowledge DSSABs as municipal entities entitled to receive notification regarding the disposal of surplus school properties. Further, local school boards must participate in local planning strategies that incorporate the development of affordable housing.
7. To enable development and ensure sustainability post-secondary institutions must partner with the CDSSAB and CDLHC to offer practical community placement opportunities in the skilled trades and soft service fields.
Municipal Affairs and Housing
8. The Ministry of Municipal Affairs and Housing must revisit funding allocation models when rolling out all future housing programs in order to ensure that funds are available to create a depth of affordability in a project that is not tied to a fixed amount per unit but based on the viability of the project business case (i.e. costs are greater in some CDSSAB member municipalities than others but housing is still needed). As any one expense changes (land value, materials, concrete, etc.), due to local drivers, the overall cost of the project changes thereby increasing or decreasing the amount of program funding required to create an acceptable level of affordability. The rationale is that the more program funds accessed the longer the commitment and the greater the loan securities required; however, if a lower amount is accessed there is less risk and a shorter time commitment and this should equate to fewer loan security restrictions.
9. To enable and sustain future development the Ministry of Municipal Affairs and Housing must engage the CDSSAB to develop a Northern Cost Factor that can be applied to future funding allocations that accounts for the challenges particular to Northern Ontario; specifically: the population density that cannot justify allocation amounts significant enough to fund new build projects; the cost of construction materials which are significantly higher than other parts of the province; the shortened life time of building components caused by the northern climate that require replacement more frequently than other parts of the province; the price of fuel; and the cost of procuring construction expertise due to a lack of local contractors.
Provincial Cabinet
10. Upon realizing cost savings across multiple portfolios as a result of the implementation of 47 Housing Plans the Provincial Cabinet must commit to an interministerial reinvestment fund whereby the return on investment enabled by municipal plans can be reinvested locally to ensure sustainability.
6 | Page
Municipal
11. The member municipalities of the CDSSAB must take advantage of the opportunities presented by the CDLHC development initiative through formal communication channels and by including housing services personnel at local planning tables.
12. CDSSAB member municipalities consider the creation of affordable housing as a matter of municipal interest to be considered in the decision making process when disposing of public lands with the acknowledgement that the CDLHC is a municipal department with the capacity to develop property and generate revenue to be reinvested in municipalities. Further, that municipal planning representatives work with CDLHC personnel to develop decision making criteria to enable the timely development of affordable housing (i.e. when the local vacancy rate falls below a given percentage affordable housing shall be deemed in the municipal interest and a percentage of public land offerings shall be offered first to CDLHC partners).
13. To optimize the potential for development and to coordinate public assets representatives from CDSSAB member municipalities and representatives from local school boards must meet with CDLHC personnel to discuss the creation of a community land trust.
14. Municipal planning personnel must coordinate with CDLHC personnel to develop an affordable housing proposal mechanism that can be used by private developers to apply for municipal incentives to create a meaningful depth of affordability. This tool would consider land cost, construction costs, operating costs, revenue generation, average market rent or sale amounts, tax rates, redevelopment expenses such as tipping fees, building permit fees, etc.
15. Municipal councils must commit to using appropriate planning tools wherever possible to facilitate the creation of affordable housing (appendix C).
16. The CDSSAB, CDLHC and all member municipalities support the recommendations set forth in ‘The State of Homelessness in Canada, 2013’:
Communities should develop and implement clear plans to end homelessness, supported by all levels of government All levels of government must work to increase the supply of affordable housing Communities – and all levels of government – should embrace Housing First Eliminating chronic and episodic homelessness should be prioritized Ending Aboriginal Homelessness should be prioritized as both a distinct category of action and part of the overall strategy to end homelessness Introduce more comprehensive data collection, performance monitoring, analysis and research
DSSAB Act
17. To eliminate barriers to development and service provision initiatives the Ministry of Municipal Affairs and Housing must work with the Ministry of Community and Social Services to revisit the legislation that governs District Social Service Administration Boards with the goal of creating standing for DSSAB’s in the Municipal Act, the Education Act, and any other relevant legislation.
7 | Page
1. Introduction
Housing isn’t about section 98’s, pre-85’s, SMAIR’s, or operational reviews… not about Service Managers, Non-Profits, Co-ops or sector supports. Housing is about sustainability; … sustainability at the individual, community, district, provincial, and national levels. To the purpose of creating sustainability through housing the Cochrane DSSAB’s 10-Year Plan represents a significant departure from the traditional perceptions associated with housing service departments; perceptions that are vestiges from the years of provincially delivered housing programs and that were clung to in joint local transfer plans like security blankets.
Somewhere along the way housing stopped being about serving the needs of vulnerable citizens and the focus became risk management and minimizing the cost to municipalities with no consideration of return on investment. Almost 15 years removed from service devolution through the Local Services Realignment the CDSSAB is embracing the service leadership role and the commitment to accountability that will lead to creating District wide sustainability.
Before District wide sustainability can be realized we need to focus on the circumstances that have resulted in a single mother of two living in a basement apartment with dirt floors and no heat and paying $800 per month plus utilities; or on the 88 year old grandmother living on her own in a two- storey seniors building in a remote community with a population of 200 who can’t access home care services because she doesn’t know how and when she finally figures it out the service falls apart because her personal support worker is forced to choose a job at the hospital to make more money.
In every important way the story of housing in the District of Cochrane is the story of housing in Ontario. People chose to locate here to earn a living and they built houses. To this day people want to live and work and age in the place where they built that home. It is in the interest of all to remedy the service challenges that force people out of their homes early in order to avoid the inevitable capacity problems in other centres.
A housing plan on its own cannot resolve the individual or community level issues; however, by employing a service system management strategy where municipal governments partner with service providers and developers and the CDSSAB a housing plan can be transformed into a blueprint for sustainability.
The Poverty Reduction Strategy and the Provincial–Municipal Fiscal and Service Delivery Review are important works intended to provide the framework and support for legislation and planning to remedy the problems that result in individual and community stories outlined above. These documents outline how service providers and all levels of government need to act but it will take a service provider that can bridge the gap between local service delivery and provincial ministerial bureaucracy to gain the support and momentum required to create lasting sustainability in program delivery and more importantly in the lives of the residents of the District of Cochrane. The CDSSAB is positioned to link needs to resources. The CDSSAB is the vehicle to connect and coordinate services and resources with an eye towards outcomes and accountability.’1
1 An Overview of Service System Management, NOSDA, Landers and Dominelli, 2013
8 | Page
1.1. Guiding Principle
The guiding principle of Cochrane DSSAB’s 10-Year Housing Plan is to achieve a level of sustainability for all member municipalities. In this context, housing becomes a means to an end… the end being economic security and growth for communities.
In fulfilling the guiding principle of the 10-Year Housing Plan the interests of the CDSSAB and the Province are closely aligned. Through a strategy that is based on forming and managing partnerships focused on serving the needs of the individual, the community, and the District the 10-Year Housing Plan echoes the interests of the Province by:
a) Focusing on achieving positive outcomes for individuals and families; b) Addressing the housing needs of individuals and families in order to help address other challenges they face; c) Having a role for non-profit corporations and non-profit housing cooperatives; d) Having a role for the private market in meeting housing needs; e) Providing for partnerships among governments and others in the community; f) Treating individuals and families with respect and dignity; g) Coordinating with other community services; h) Being relevant to local circumstances; i) Allowing for a range of housing options to meet a broad range of needs; j) Ensuring appropriate accountability for public funding; k) Supporting economic prosperity; and l) Being delivered in a manner that promotes environmental sustainability and energy conservation.
The CDSSAB Vision… ‘To further develop a District service environment that is responsive to community needs and which values the individuality of its residents’, reinforces the commitment to the meeting the Provincial Interests.
1.2. Context and Background
Before the Local Services Realignment (LSR) initiative the housing programs currently offered by the CDSSAB were funded and “If Ottawa or Hamilton or Toronto delivered by the province. After LSR the CDSSAB housing doesn’t get the housing plan right they department became the housing department for all 13 member won’t disappear. If the District of municipalities. Therefore the CDSSAB 10-Year Housing Plan belongs Cochrane doesn’t get it right, it’s only a to all member municipalities. That being the case it is important to matter of time for some municipalities.” get the plan right which means that each municipality will have its – Consultation participant own strategic document accounting for local market variables.
2. Methodology
In keeping with the premise that housing is critical to creating sustainable communities and considering the make-up of the CDSSAB it was acknowledged early on in the planning process that analysis and recommendations at both the District and community levels would be required. Therefore, several mechanisms were utilized to facilitate information gathering over the large geographic area that is the District of Cochrane while accounting for media that would best serve the multiple communities contained therein. Several methods of communication were utilized to ensure all interested parties
9 | Page were aware of this planning initiative and different contribution forums ensured that all were able to contribute. To ensure the continuity of the planning, implementation, review and evaluation process much of the communication tools will remain in place.
2.1. Approach
Based on the rationalization that District Social Service Administration Boards were created to serve the mandated needs of the member municipalities it was determined that the 10 year housing plan needed to be more than a District level motherhood statement. The CDSSAB Housing Services Department is the housing services department for the Town of Kapuskasing, the Town of Cochrane, the City of Timmins and nine other member municipalities that demand value for services billed. To this end, the Cochrane DSSAB’s 10 year housing plan starts at the District level and leads to individual plans for each municipality. From the outset the data gathering priority was to source data for each municipality in order to:
assess current and future housing needs develop objectives and targets develop and describe the measures proposed to meet the targets; and describe how the progress towards meeting the objectives and targets will be measured…
… in a municipally specific but not exclusive context. No other strategy can yield tangible and sustainable results.
Developing a 10 Year Plan that incorporates public input, assesses need, develops objectives and targets and ultimately addresses short-term gaps and long-term sustainability is a complex undertaking. That complexity is compounded when the plan is intended to identify and serve the needs of multiple municipalities with different economic drivers and changing demographic trends. Accounting for this complexity a data gathering strategy involving qualitative and quantitative methods was developed. This strategy included utilizing census data in addition to local income, employment, housing type, housing tenure, vacancy rate, household data and other relevant indicators. Concurrent to the quantitative gathering the qualitative strategy involved community consultations, stakeholder focus groups, social media forums, survey questionnaires, and website forums.
Understandably, in order to generate a housing plan applicable to the local circumstances in the CDSSAB’s thirteen member municipalities a large amount of data was required. Fortunately, the CDSSAB was able to coordinate resources with the City of Timmins which had undertaken a significant strategic planning project including a 20-year Community Housing Plan. In 2011 the City of Timmins commenced a long term planning process concurrent to the development of the CDSSAB’s 10-Year Housing Plan. Timmins 2020 is a long-term strategic planning initiative developed by the City of Timmins and its community partners, the Timmins Economic Development Corporation and the Chamber of Commerce. The objectives of the plan centre around five main pillars: communications, community pride, economic diversification, community investment, and quality of life. Housing came up as a key issue in the community consultations that informed the 2020 planning. Despite the fact that the Housing Strategy falls under the Community Investment pillar one can see the critical links between a successful Housing Strategy and strategies in the Quality of Life, and Economic Diversification pillars.
In the spring of 2013 the CDSSAB committed to match the City of Timmins contribution to fund the Community Housing Plan, effectively merging the 2020 Housing plan initiative with the CDSSAB’s 10
10 | Page
Year Housing plan development strategy. This commitment created consistency and allowed for a more efficient use of 7 municipal focus groups resources for both planning projects. 5 Consultations 5 days Two firms with experience and demonstrated knowledge in the 3,200 km housing sector were contracted to gather the data. The Housing 100+ participants Services Corporation focused on the Highway 11 corridor and the 4 consulting firms joint firm of SHS and Refact Consulting concentrated on the City of 5 data reports = One 10-Year Housing Plan Timmins.
2.2. Process
Consistent with the requirements laid out in the Housing Services Act and with sound planning principles the CDSSAB collected data in order to conduct an assessment of current and future housing needs within the District in order to be able to:
Identify the objectives and targets related to the housing needs; Develop a description of the measures proposed to meet the objectives and targets; and to Develop a description of how progress towards meeting the objectives and targets will be measured.
Public consultations and focus groups were scheduled in multiple municipalities with geographic and demographic representation. Prior to conducting the public consultations, focus groups targeting municipal representatives and specific stakeholder organizations were conducted to introduce and outline the planning process, define the scope, and eliminate any misconceptions. Particular emphasis was placed on ensuring that municipal officials were aware that the 10-year housing plan was intended to be a tool to create sustainable communities which would have implications on economic development, education, municipal planning, health care, etc. Essentially the plan was positioned as an opportunity to help mitigate the impact of some of the economic pressures which many communities in Northeastern Ontario have faced; such as outmigration due to industry closures and the inability to attract new investment due to a lack of affordable housing.
Despite the fact that two firms were employed to gather the data the methods and time frames were closely aligned. Figure 1 shows the documents provided by the Housing Services Corporation and SHS Consulting and Refact Consulting. These documents are summaries of the data collected for the CDSSAB and the member municipalities.
While the info contained in these documents represents the foundation for the analysis, strategies, and recommendations contained herein they also stand on their own to be referenced by local stakeholders as they develop initiatives that support and / or rely on this housing plan (i.e. health care, education, economic development, municipal planning, etc.)
11 | Page
Figure 1
2.2.1. Communication
Properly defining the issue and crafting the message was critical to ensure that data was gathered in an objective and comprehensive manner. In order to gather and process accurate and relevant information all parties needed to know that the issue was not just about low income housing or homelessness. People needed to know that they were contributing to a blueprint for community sustainability based on affordable housing.
While defining affordable housing at the outset may appear to have been of secondary importance, clarifying the role of the CDSSAB and the nature and purpose of the 10 year plan was critical to establishing credibility with all stakeholders; private, public, non-profit and profit. Therefore, the points in Table 1 were consistently reinforced at every opportunity to frame the message and to make sure people understood what affordable housing is and what it is not.
Table 1
Affordable Housing Development… What it is not: What it is: about building units and subsidizing costs with municipal about building mixed income communities and reinvesting money profit dependent upon the charity and donations of municipalities About reducing risk and capital costs through partnerships
12 | Page and developers Tied to restrictive funding guidelines that make it impossible About flexibility to respond to local market opportunities and to generate a return on investment and handcuff investors to meet demand while generating a return on investment long term agreements A cash grab via inflated market housing development Housing development with risk and profits shared across partners with reinvestment into additional development An additional cost to taxpayers An economic force multiplier through reduced accommodation costs and increased income availability About developing a single type of housing such as single About developing the most appropriate and economical form detached multi-storey market houses of housing to respond to community need About development for owners or renters only About development opportunities for non-profit groups and service providers in addition to owners and renters
The CDSSAB delivers vital services throughout the District and in doing so over the last 15 years the organization has developed a network that could be exploited for the development of this plan. This network served to facilitate two-way communication in the form of: outgoing messaging, consisting of education about the plan and what the initiative represented; and, incoming information which included data input critical to the analysis function and feedback which kept the plan focused and on target.
In order to secure the external message, CDSSAB employees required orientation pertaining to the redefined role of Housing Services and the importance of their participation. This was accomplished through internal staff information sessions in addition to regular updates provided to program management personnel. The internal piece was key since CDSSAB personnel participate at many tables and the ‘new’ housing message raised a level of appreciation that did not previously exist in some service forums.
All promotional material and invitations were provided in both official languages.
2.2.2. Data Gathering
In the spring and summer of 2013 a number of focus groups and community consultations took place. However, in order to allow for the continuous input of information a survey tool was included along with email and social media. The following sections outline the data gathering in more detail.
2.2.2.1. Quantitative
Community profile data was gathered from a number of primary sources including Statistics Canada, Canada Mortgage and Housing Corporation, and public websites. The Statistics Canada information includes custom and topic based census series information from 1996, 2001, 2006, and 2011. The census data outlines population and income attributes of communities which is a key variable in determining housing gaps.
Data related to community infrastructure, economic plans, and other housing information was sourced through the Ontario Investment and Trade Centre website along with the Data Profile for the Cochrane DSSAB through OMSSA’s Housing and Homelessness Resource Centre. Additional sources of data included the Cochrane District Social Services Administration Board, the Timmins Economic Development Corporation, the Timmins and District Multicultural Society, and the Far Northeast Training Board.
It must be noted that gaps in the data existed for certain municipalities in some periods due to a lack of reporting or data suppression resulting from inadequate samples. In order to provide trend analysis some assumptions have been made and noted where appropriate.
13 | Page
2.2.2.2. Qualitative
Gathering qualitative data began with the recording of internal knowledge of the local housing environment for the purpose of formulating a 10 year plan. As the housing service manager, particular to the Cochrane context, the CDSSAB maintains an accurate appreciation for current local needs and pressures. This is accomplished through performing as Service System Manager but also as the direct delivery agent of housing services through the Cochrane District Local Housing Corporation and under management service agreements to directly manager four non-profit housing providers; in addition to managing the coordinated access waitlist system. However, in order to be useful the knowledge and experience gathered via these roles needed to be filtered and confirmed by talking to other sources which would also be contributing to the 10 year plan. This was accomplished through the following consultation approaches.
Focus Groups
Prior to making the public announcements inviting stakeholders and 1. Report back to the members of the public to community consultations CDSSAB housing Community and personnel scheduled focus group meetings with municipal administrative ensure ideas are not staff throughout the District. The purpose of these sessions was to inform lost 2. Share our work and and seek input regarding the plan process. These sessions represented a process so others may valuable exchange of information between municipal service delivery learn partners. 3. Highlight ideas and priorities as identified by participants At the spring 2013 meeting of the North Eastern Ontario Municipal Association (NEOMA) representatives from all member municipalities attended a presentation by the CDSSAB planning team. These multiple meetings with municipal politicians and staff in one-on-one and group settings created an informed and accountable context for moving the plan forward.
The Timmins focus groups took place in August 2013 and were separated into four sessions:
1. Health and Senior Services 2. Business, Real Estate and Economic Development 3. Housing Supports and Service Providers; and 4. Housing and Accommodation Providers
Discussions were facilitated using open ended questions and feedback was recorded and categorized by the dominant subject themes. Black-River Matheson Iroquois Falls Cochrane Community Consultations Smooth Rock Falls Moonbeam Traveling to five municipalities (Hearth, Kapuskasing, Smooth Rock Falls, Fauquier-Strickland Cochrane and Iroquois Falls) over 3 days in July 2013, an action team Kapuskasing comprised of Housing Services Corporation and CDSSAB personnel Opasatika facilitated consultations with over 75 attendees including stakeholders Hearst Timmins
14 | Page and general public.2 The sessions in Hearst and Kapuskasing were conducted in French and the remaining sessions were in English; however, participants were encouraged to communicate in their preferred language at all sessions. Informed consent and confidentiality was presented to and acknowledged by all participants.
The sessions were structured as follows:
Group Breakout Presentation Prioritization Discussion Groups
The presentation set the stage for the discussion by outlining the background of the 10-year plan and its purpose in the District of Cochrane as a guide for sustainability involving many sectors. The basic questions that were used to guide the discussion throughout the process were:
1. Where are we now? 2. Where do we want to be in 10 years? 3. What do we need to do to get there? [email protected] http://cdssabhousingplan.com/ Information from the consultations was organized into http://timmins2020.clearlogic.ca/housing/ www.facebook.com/timmins2020 sections: @cochrane_dssab
What we heard – feedback about what is working well and what needs to happen in the next 10 years; Perspectives on Communities and Housing – summarizing the common themes and issues resonating throughout the consultations; Priority Areas – listing the key areas voted on by the participants to be considered in the 10-year plan; and, Community Specific Reports – summarizing information specific to the 5 communities in which the consultations were held.
The Timmins consultation strategy was held in September 2013. At this session the data gathered and the analysis performed to date was presented to stakeholders and general public attendees. Feedback was recorded and incorporated in further analysis with the intention of continuing to hold community consultation sessions as the Timmins 2020 Community Housing Plan completed phases 2 and 3.3
Social and Electronic Media
An effective way to overcome some of the geographic constraints in Northeastern Ontario was to employ information technology to provide opportunity for continuous contribution and information sharing. The CDSSAB with the help of the plan consultants implemented Twitter and website accounts to allow for people to contribute ideas outside of the consultation sessions. The accounts were introduced at the public sessions and included on all marketing material to encourage use.
2 HSC Report #1 – Public Consultation Outcomes: Talking About Housing and Homelessness in the Cochrane DSSAB, August 2013. 3 City of Timmins – Community Housing Plan, Phase 1: Housing Demand and Supply Analysis, February 2014.
15 | Page
It was understood that the use of electronic media was limited by the capacity of the audience to access and / or use the technology. Therefore the analytics associated with site usage could only be used to tell part of the data gathering story. None the less, the number of hits, number of followers, number of tweets, and locations of access provided useful information to be used in shaping future communication strategies.
Surveys
Online surveys were posted on the respective websites and hard copy surveys were distributed at the consultations or available for download. Given the difference in the environments between the highway 11 communities and the City of Timmins different instruments were utilized.
The survey for the Highway 11 communities was available in French and English. The survey consisted of twelve close ended questions based on the following themes:
Socio-economic characteristics; Area of residence; Issues and experiences with housing and homelessness; Priorities to improve the provision of affordable housing; Programs and supports to assist people facing homelessness or having trouble securing adequate, affordable housing; Barriers preventing access to programs and program improvement; and, Supporting seniors to age in place.
Over eighty residents from multiple communities responded to the survey providing insight into local housing need.4
The Timmins 2020 survey strategy consisted of an online stakeholder asset and issues survey and a general housing asset and issues survey conducted in the fall of 2013. Twenty agencies responded to the stakeholder survey, representing homelessness service providers, special needs groups, aboriginal service organizations, and social and affordable housing providers. Eighty-six responses to the general survey were received.
The main themes of the Timmins 2020 surveys included: “We want our residents to be supported in ways that make sense for The biggest housing issues or challenges facing the City of their unique circumstances… Timmins today; Recognizing that hearing from a Is homelessness an issue and if it is, what does it look like; variety of perspectives can make this plan meaningful and help to direct Are the needs of homeless people or those at risk of becoming plan initiatives, we administered a homeless or those who have special housing needs being met by survey for the public to complete.” current services and programs; (HSC Report #3 – Housing Action Plan The most concerning gaps or barriers to addressing the needs of Survey) those trying to find or maintain adequate housing; Changes in programs, services or supports needed to help people find or maintain safe, adequate and affordable housing; The most important things that should be done to help improve the housing situation for residents or prospective residents; and,
4 HSC Report #3 – Housing Action Plan Survey, September 2013.
16 | Page
Awareness of agencies, services or programs that help people access and maintain housing.
The responses highlight the needs and possible solutions to addressing needs, providing valuable information to inform the analysis and support the recommendations of this plan.
2.2.2.3. Contributing Research
In so far as a comprehensive housing plan can be posited as a blueprint for sustainability, it is difficult to engender support for that position in some environments. Fortunately there are documents that demonstrate, if not directly at least in an indirect manner, how housing represents one very important strategy in resolving difficult economic problems. These documents include:
“Breaking the Cycle, Ontario’s Poverty Reduction Strategy” “The Provincial–Municipal Fiscal and Service Delivery Review, Facing the Future Together” “The Commission on the Reform of Ontario’s Public Services, a Path to Sustainability and Excellence” “Places to Grow, Growth Plan for Northern Ontario” and “Building Capacity in Northern Communities”, NOSDA 2013-2016 Strategic Plan Unfortunately, these documents often do not motivate to action all of the required players and therefore limit the efficacy of housing based solutions. Truthfully, many still do not see the potential in housing to be the solution to complex local, regional, and provincial issues. None the less these documents have been referenced here as foundational works which highlight many of the problems that can be remedied through sustainable housing plans.
Supportive Housing is a term that is used to describe a type or model of housing in which supports are brought to a person at home so that they can continue to live at home. However, supportive housing can more accurately be described as health care. This change in definition can be seen in the following documents where the role of housing as an important piece in the health care system is evident although not necessarily defined:
“Ontario’s Action Plan for Health Care – Better patient care through better value from our health care dollars” “Current Issues in Mental Health in Canada: Homelessness and Access to Housing”, Laura Munn-Rivard, Library of Parliament. “Caring for Our Aging Population and Addressing Alternate Level of Care”, Dr. David Walker, Provincial ALC Lead “Living Longer, Living Well” – Recommendations to inform a Seniors Strategy for Ontario, Dr. Samir K. Sinha, Provincial Lead, Ontario’s Seniors Strategy “North East Local Health Integration Network Assisted Living Strategy”
In addition to the specific documents identified above a number of other significant works that address the issues surrounding vulnerable and at risk populations were also consulted in preparing this plan and are referenced accordingly.
The data and research was collected and chosen this way, within the context of sustainability in the North at the individual and community levels, in order to identify gaps, analyse the options, develop, recommend, and execute strategies that build on solutions already put forth with the common goal of improving people’s lives.
17 | Page
2.3. Next Steps
The analysis contained hereafter is conducted at a District level and leads to a series of recommendations which may be applicable in some municipal environments more so than others. Incorporating these recommendations and supported by the consultations and the data gathered to date the CDSSAB continues to develop locally appropriate plans with strategies specific to local market and economic environments.
The local plans represent the most tangible part of the overall plan as success on the ground in service delivery and target achievement is a fundamental objective. The sidebar illustrates the structure of a Community Plan Pullout section of the CDSSAB’s 10-year plan.
It is important to note that the exercise of community specific planning Analysis – Format involves stakeholders and strategies that reach across the District; 3.1. What we heard? therefore, the success of individual plans is contingent upon the 3.1.1. Focus Groups coordination of all CDSSAB member municipalities. 3.1.2. Consultations 3.1.3. Surveys
The release of Cochrane’s 10-year plan represents the culmination of the 3.2. What does the data tell us? 3.2.1. Demographic first phase of analysis. In order to capitalize on the work to date the 3.2.2. Economic momentum must be maintained. Therefore the release of the plan will be 3.2.3. Housing accompanied by a press release and a schedule of local community 3.3. Key Issues information sessions. These sessions will include focus group opportunities 3.3.1. Strategy Development intended to develop strategies from the Community Plan Pullouts. 3.3.2. Investment
3. Analysis
Safe affordable housing in Northeastern Ontario, as in other parts of the province, is fundamental to sustaining healthy communities. The 10-yr Plan Community Pullout complexity of the housing issue in the Cochrane District is compounded by geographic issues, demographic trends, and economic pressures that Municipality combine to create a unique planning and service delivery environment. 1) Market Summary In order to develop effective strategies to mitigate these environmental a) Industry stressors an accurate analysis of the data gathered was required. b) Services c) Groups at Risk d) Economic Development The key issues identified through the focus groups and consultations are Initiatives / Opportunities summarized herein and supported through correlations to the 5 2) Housing Summary quantitative data sets. This leads to the recognition of gaps and a) Current Stock provides a plausible basis for making and implementing viable b) Gaps recommendations that can actually fill the gaps. The substantiated c) Homelessness issues are then filtered through the context of regional and provincial 3) Notable Local Trends strategic initiatives to facilitate prioritization and lay the foundation for 4) Strategies investment from government, private sector, and community a) Targets stakeholders. b) Timeframes
5) Recommendations
6) Measures
5 The complete qualitative and quantitative data reports are included as appendices to the CDSSAB 10-Year plan
18 | Page
3.1. What We Heard
3.1.1. Focus groups
Sessions were conducted in 11 member municipalities from Opasatika to Timmins covering communities ranging in population between 214 and 43,165. Attendees included personnel from the following sectors:
Municipal administration Health and Senior Services Business and Economic Development Health Service Providers, and Housing and Accommodations Providers
The top issues to come out of these sessions were: 1) Supportive Housing; 2) Affordable Housing; and 3) important Secondary Issues.
1. Supportive Housing
The feedback received could be characterized, in the broadest sense, by the long standing mandate of public housing which states that tenants must be able to live independently with supports. Respondents were emphasizing the fact that if supports were in place many would be able to live independently.
Focus group attendees cited examples where elderly homeowners were forced to relocate to congregate care facilities, sometimes in other municipalities, because the supports that they require to age in place were not available. Other health related at-risk populations such as people with mental health issues, people with addictions issues, people with developmental challenges, and people with mobility restrictions were also mentioned.
Considering the focus on Health Care in provincial reports such as the Drummond report not to mention health care’s attempt to remedy the problems within their system such as Health Links and Alternate Level of Care strategies, there is ample opportunity to position housing as a fundamental component for sustainable health service delivery in each community.
2. Affordable Housing
The unavailability of affordable housing was mentioned across multiple Affordable housing is markets as an impediment to retaining families and to positioning characterized by any form of communities as destinations of choice for new citizens. This permanent accommodation (rental, ownership, etc.) where represents the lack of an essential community resource that limits the monthly mortgage or rent many other economic development opportunities. expense does not exceed 30% of gross monthly income. The term Post-secondary education institutions are not able to market ‘affordability’ is not limited to use employment opportunities upon graduation because employers cannot in the context of low to moderate retain new hires due to a lack of accommodations commensurate with income households. entry level salaries. Immigration strategies targeting low income jobs are unsuccessful due to the lack of housing.
19 | Page
Education, employment, and housing initiatives in isolation are exercises in tenuous risk; however, upon the realization that the programs are mutually dependent a level of program stability and growth leads to a powerful tool to affect community sustainability.
3. Secondary Issues Consultation Locations: Hearst Although mentioned less frequently than supportive and affordable housing Kapuskasing the following items surfaced in the focus group sessions. While participants Smooth Rock Falls may have viewed these issues as less urgent than support services and Cochrane affordability, for the purpose of this analysis the issues are critical Iroquois Falls components to be considered in strategy and recommendation Timmins development.
Many of the secondary issues mentioned have resulted from the economic downturn that occurred when lumber and pulp and paper mills in small communities closed and the communities did not have the capacity to mitigate the impact of losing the primary industry. The closures resulted in labour force relocation followed by service closures due to a lack of demand.
In order to develop strategies to serve the needs of these communities the participation of all sector organizations is critical (i.e. municipal, private, non-profit, education, health care, etc.). This need is evident in the effort that would be required to sustain the suggested strategies voiced in the sessions, which included: marketing communities to retirees to purchase homes; take advantage of development opportunities with vacant school properties; develop market ‘profit for purpose’ opportunities on waterfront properties to reinvest funds; and, capitalizing on the growth of the aboriginal youth population and relocation off of reserve to support housing development.
3.1.2. Community Consultations Secondary Issues from Focus Groups: The consultations took place in six municipalities with over 160 population decline lack of development representatives from multiple sectors in attendance. Much of the out of date official plans information shared in the focus group sessions was reiterated in declining enrollment in local the community consultations. Considering the volume of schools information to be processed the data from the sessions was facility closures categorized into the main principles outlined in figure 2. 6 cutbacks to health services recognition of lack of economic development to support housing development mill closures have changed the economic profile shortage of contractors increased cost of construction
6 Public Consultation Outcomes: Talking About Housing and Homelessness in the Cochrane DSSAB – Report #1, Housing Services Corporation, L. Oliveira, 2013.
20 | Page
Figure 2
PEOPLE-CENTRED •Putting People First
PARTNERSHIP-BASED •Stronger collboaration between different actors involved in the housing system RETAIN AND RECRUIT •Promote quality of life to retain and recruit youth
SUPPORTIVE •Services to be provided to support households to stay housed
INCLUSIVE •Employment, health care, education, finance and housing are central to a sustainabile community FISCALLY RESPONSIBLE •Healthier individuals and communities is a return on tax dollar investment
Within these themes the issues discussed gave further veracity to the notion of Service System Management. Issues such as: improved collaboration and partnerships, whereby assets (public and private) could be accessed easily across municipalities; improved coordination, which would streamline redundant administrative processes; improved support services to allow people to age in place and to focus the right support to fit the need (i.e. mental health, or addictions, or some other specific need); stable and profitable housing development, which would see the return on investment put back into additional development or service enhancement; and, recruit and retain young professionals through education and training opportunities.
Table 2 illustrates the priority of the issues identified by the consultation participants:
Table 2
Priority Issue Senior Supports and Social Programming in private and public residences 1 Home Care supports for vulnerable groups including 24 hour support for individuals with mental health issues Transitional housing for seniors and individuals with disabilities More housing stock including multi-bedrooms, seasonal, granny flats, and larger units to 3 accommodate extended family Improved communication and coordination of services locally, regionally and provincially
21 | Page
for housing services, crisis situations, and victims of violence 4 Co-op program for youth (trades based) 5 Increased number of personal support workers 6 Transportation options 7 Reduced social housing wait list 8 Crisis Centre Incentives for new development and redevelopment Supports for vulnerable populations 9 One-stop shop for services Create a comprehensive and accessible listing of services and information Market our Area-lifestyle Employment skills training 10 Use of existing available land to include housing
Two key issues that brought up in the consultations that merit analytical consideration were: 1) Homelessness and 2) the Aboriginal Population.
1. Homelessness
A key consideration in the quantification of homelessness in the Cochrane District is the qualification of homelessness. In the sessions some participants voiced concerns over the validity of the data put forth in community research projects conducted by representatives from Laurentian University.7 For the purpose of developing a plan focused on individual and community sustainability, by definition one of the objectives must be to end homelessness. The definition of homelessness for this purpose is very broad since the capacity for individual and community stability is undermined by the simple threat of homelessness.
Participants believed that there is no one reason why individuals or families become homeless but instead it is a result of a cumulative series of factors which may include any combination of: poverty; physical limitations; mental illness; addictions; family conflict; and lack of education.
Through the views expressed it is evident that much needs to be done to clearly define the issues surrounding homelessness and homelessness itself. Further the recognition of the variety of causal Homelessness in Cochrane District factors further supports the requirement for a service system A term that describes the situation of an management approach to stop homelessness. Each individual individual or family without stable, requires a unique service plan with stable housing as the permanent, appropriate housing, or the foundation. immediate prospect, means and ability of acquiring it.
2. Aboriginal Population A state of accommodation or lack thereof that limits or threatens the economic contribution that a person or household can Consultation participants voiced concerns over the needs, make or that jeopardizes the health and supports, and housing options for members of the aboriginal safety of an individual or household community particularly considering the capacity issues associated requiring the application of health and social services which would otherwise not be required.
7 Dr. Carol Kauppi and Professor Henri Pallard conducted studies in Moosonee, Hearst, Cochrane, and Timmins.
22 | Page with this increasing population and the trend to live off of reserve. Some specific points included:
Aboriginal people living off of reserve experience the same housing needs as others however serving that need is complicated by certain cultural considerations that do not necessarily conform to traditional rental accommodations Aboriginal women are at a particular disadvantage when it comes to financial assistance and social supports limiting them to shelters as the sole housing option Aboriginal people are frequently discriminated against when seeking rental housing thereby limiting access
In order to capitalize on the opportunities presented by the growing aboriginal youth population, service providers must enlist the help of aboriginal service organizations. Only through this coordinated effort can service gaps be bridged and the true potential of Northeastern Ontario communities realized.
3.1.3. Surveys
Two separate surveys were delivered with one available to Highway 11 residents and one targeting the residents of the City of Timmins. The results are as follows:
1. Highway 118
81% of survey respondents believed that homelessness and access to affordable housing is a serious issue while 60% and 66% believed that housing issues affect family and friends and affect the community, respectively. These response rates indicate that people in highway 11 communities have an appreciation for the urgency of housing related issues. This appreciation of the issue informed the identification of the priorities in Table 3 related to the provision of affordable housing:
Table 3
% Affordable Housing Issue 72 More affordable rental housing 49 More rental housing in general 42 More affordable ownership housing 26 Increased support to allow seniors to remain in their current housing Increased support to allow people with barriers (mental health, etc.) to be housed 22 appropriately 20 Rent supplement to support people to access housing 20 Increased support for individuals searching for housing (rental and ownership) 14 Permanent supportive housing 8 Greater support for people at risk of losing housing (rent bank programs) 6 Increased housing support for people who have experienced domestic violence 4 Streamlining process for applying for housing supports
Once again the priorities are clearly related to access to affordable units and support services to maintain or secure tenancy.
Where homelessness is concerned the lack of knowledge related to programs available to support people facing homelessness or secure affordable housing (30% of respondents) is a huge barrier to
8 Housing Action Plan Survey – HSC Report #3, 2013 – appended to this plan
23 | Page overcome considering the web of services that cross municipal boarders and the disconnects that frequently occur. The need for the coordination of services and the scope of the issues identified once again supports the case for a service system management strategy.
2. Timmins9
The Timmins survey was delivered in two ways with one tool targeting stakeholder service groups and the other made available to the general public.
The key issues identified by the general public were related to affordability and condition of housing which were linked together through the correlation between supply and demand where more can be charged for a unit in poor condition when demand is high. The stakeholder group also noted affordability as the main issue but also, predictably included supportive housing issues as a critical factor.
88.8% of respondents believed that homelessness is a problem in Timmins with a significant proportion of that percentage acknowledging that homelessness is not limited to people living on the street but is manifest through people at risk of becoming homeless. Respondents also believed (73.7% that those who are homeless or at risk of becoming homeless are not having their needs met by services and programs currently in place.
46.2% of respondents believed that the most important thing that should be done to help improve the situation is to increase the amount of affordable housing stock with 15.4% citing incentives to build affordable housing as a needed option.
3.2. What Does the Data Tell Us
To this point it is evident that one of the major items identified as a gap is the lack of affordable housing. Affordability is subject to the fluctuation of a number of variables the most important of which can be captured through: demand analysis, which involves demographic trends; economic analysis, which includes industry and income trends; and housing inventory, which includes availability and price.
Considerable variation can occur within these variables across neighbourhoods let alone across the member municipalities in the District of Cochrane. That being said there are certain demographic analytics that take place at a district level that encompass all municipalities that provide a useful point of reference when compared with provincial averages. As previously mentioned each community will have a specific profile developed to facilitate market specific strategies. The data contained in the research documents appended at the end of the plan is broken down for each member municipality.
3.2.1. Demographic
Since 1996 the population of the Cochrane District has declined by 12.9%. Over the same period the provincial population has increased by almost 20%.10 The decline has slowed somewhat in recent years due mainly to a slight increase in the population of the City of Timmins between 2006 and
9 City of Timmins – Community Housing Plan, Phase 1: Housing Demand and Supply Analysis, SHS and refact Consulting, 2014 - appended to this plan. 10 Cochrane DSSAB Community Profile Data Report, HSC, 2014.
24 | Page
2011.11 It is expected that this trend will continue with Timmins serving as a regional service hub. Unfortunately, in the absence of coordinated municipal planning the trend in Timmins does little to stem the decline in the other member municipalities.
The age of the population in the District continues to rise at a rate greater than the provincial average which is not unexpected considering the decline in the youth population as they are forced or choose to relocate for employment or education opportunities. ‘Empty Nesters’ remain as the main demographic profile in many communities. Once again this trend is tempered by the City of Timmins where the age of the population parallels that of the provincial average. This trend is also expected to continue as employment opportunities through industry diversification become available.
Other key demographic indicators include households and family composition, migrant trends, and immigration. Understandably the family composition indicators are consistent with the overall population decline and aging trends; however, there is important info contained in the data that will influence community specific service and development strategies. Migrant and immigration trends will prove to be key indicators in measuring strategy implementation and long term performance.
The Aboriginal population in the Cochrane District in 2011 was 9,855. It is widely accepted that this number is significantly understated. However, assuming the underreporting has been consistent the trend since 1996 demonstrates significant growth in this population segment of 32%.
3.2.2. Economic
Relative to the Province of Ontario the District of Cochrane labour force participation by industry is dominated by resource extraction. There has been a significant drop in manufacturing participation in the District since 2006.
The City of Timmins represents approximately 50% of the population of the District. This is important to consider when analyzing the labour force by industry activity data. For example, district labour force participation has remained consistent in recent years however; this represents a slight increase in Timmins vs. a decrease in other communities. Once again, community specific strategies must be developed to create applicable and sustainable strategies.
With the recent rebound of the mining and forestry sectors the associated income levels for participants have also increased. Service sector income levels have remained relatively consistent as growth in these areas has been minimal as increases in health and education have been offset by declines accommodation and other services.
Unemployment rates in the District have decreased by over 3% since 1996. This can be attributed to a number of factors, including: economic diversification, a decline in participation numbers commensurate with youth outmigration; and the resurgence of the resource extraction sector.
In addition to employment and industry indicators income data is critical to identifying the first part of the housing affordability equation. The median household income in the Cochrane District in real
11 City of Timmins – Community Housing Plan, Phase 1, SHS and refact Consulting.
25 | Page numbers and in percentage of growth is still below provincial and national levels as indicated in Table 4.12 Table 4
% % % % change Median Household Income change change change Area 1996- 2001- 2006- 1996- 1996 2001 2006 2011 2001 2006 2011 2011 Cochrane DSSAB $42,996 $45,352 $53,691 $60,123 5.48 18.39 11.9 39.8 Ontario $45,155 $53,626 $60,455 $66,358 18.76 12.7 9.7 46.9 Canada $40,209 $46,752 $53,634 $61,072 16.3 14.7 13.8 51.8
This comparison is a critical consideration when you factor in the costs associated with living in Northern Ontario not to mention the costs associated with development.
Household income limits and the incidence of low income by municipality are also key indicators in developing strategies to serve not only at-risk populations but also to develop mixed community housing profiles. Despite the fact that income levels have increased not everyone is better off. Lone parent families and non-family households typically fall below the low income threshold and over 50% of renters have annual household incomes below $30,000. Many aboriginal households and those living with activity limitations also fall into this category.13
3.2.3. Housing
There are 33,430 occupied dwellings in the District of Cochrane, 70% of which are owned with the remaining 30% rented. The majority of the dwellings are single detached (68.5%) and apartments in buildings with fewer than five stories (13%). Other types of dwellings include; semi-detached (6%); row house (2.8%); detached duplex apartments (5.3%); apartment buildings with more than five stories (1.7%); and movable dwellings (2.4%).
Another important indicator is the age of the dwellings in the District. The largest percentage of dwellings was built before 1946 (19.4%). 54% of dwellings were constructed prior to 1970. Only 3.3% of current dwellings have been constructed since 2001. Of the total number of dwellings 29% require minor repairs and 11.3% require major repairs.
Average housing resale prices have increased by 31% since 2007. Considering average cost, down payment, CMHC insurance, and average tax rate the average monthly cost for a homeowner in the District of Cochrane is $954.37 compared to the provincial average which is $2,325.06. It must be noted that these numbers vary widely by municipality and type of tenure.
In highway 11 communities 7.8% of homeowners are spending more than 30% of monthly income on shelter costs. In Timmins the percentage of homeowners spending in excess of 30% on shelter is 12.4% (2010). For renters, the number paying greater than 30% in Highway 11 communities is 28% and in Timmins it is 35%.
12 Cochrane DSSAB Community Profile Data Report, HSC, 2014. 13 City of Timmins – Community Housing Plan, Phase 1, SHS and refact Consulting.
26 | Page
The rise in the number of people paying more than 30% of monthly income on shelter costs is directly related to the increase in demand and the corresponding lack of development. Vacancy rates in 2011 were 2.2% and have since decreased to approximately 1%.
Analysis Summary
There is a correlation between what we heard in the focus group and community consultation sessions and what is revealed in the data. An aging and declining population is directly related to the demand levels and affordability issues in the Cochrane District.
The issue of the lack of support services compounds the pressure that is already evident in the data. With a low vacancy rate and stagnant development there are limited options for seniors. One might ask why development is not occurring given the current level of demand and the answer lies in the cost associated with construction in Northern Ontario. The possible remedy to this situation is outlined in the strategy development section and it involves the application of service system management principles to generate public – private partnerships where the risks of development can be appropriately shared between municipalities and developers.
3.2.4. Strategy Development
Service System Management
Service System Management can be defined as the establishment and management of relationships with community agencies, local planning bodies, other orders of government and consumer stakeholders to achieve outcomes and local priorities.14 The main objective is to improve outcomes for individuals however a secondary benefit is a level of efficiency in the system itself which potentially results in a surplus of resources to be reinvested into service provision.
The notion of Service System Management stems from the Local Services Realignment initiative in the 1990’s and was further refined in the 2001 report, ‘Roles and Responsibilities: The Provincial – Municipal Relationship in Human Services’, which defined Service System Management as:
“The management of service delivery activities of governments and organizations with the necessary authority to implement and oversee services that are delivered through a network of organizations and/or departments. These activities differ from programmatic/linear management in that they are conducted using a ‘systems’ approach. Such an approach aims to achieve a system of services that effectively meets the needs of client groups through partnership and collaboration among organizations within the network.”
This is the premise upon which DSSABs were established. Only through this kind of service system strategy could the service needs of multiple “… DSSABs are positioned to link needs to resources. They isolated northern communities, with limited capacity to deliver the are the vehicle to connect and transferred programs, be fulfilled. Unfortunately, as soon as DSSABs were coordinate services and resources with an eye towards formed the service considerations took a back seat to the funding outcomes and accountability.” requirements transferred from the Province to the Municipalities. DSSAB – An Overview of Service member municipalities did not take advantage of DSSABs as investments System Management in their own municipal programs nor did DSSABs promote the inherent partnerships that existed.
14 An Overview of Service System Management, D. Landers and F. Dominelli, NOSDA, 2013
27 | Page
Moving forward it is critical that member municipalities and the Cochrane DSSAB employ the service system management strategy that was always intended. The key service considerations identified in the housing plan demonstrate that only a systems approach will lead to the desired sustainable outcomes. Furthermore, the effectiveness of the 10-year community pullout plans, accounting for specific local market opportunities and challenges, will be secured as they form part of a larger coordinated CDSSAB wide strategy which in effect leverages the assets of all for the benefit of all thereby minimizing the risk for any one municipality.
In order to develop specific strategies using the principles of service system management within the context of the main issues identified in ‘What we heard’ and ‘What the data tells us’ it is critical to define how services and housing are connected.
Housing and Service Spectrum
The term Housing Continuum is often used to describe the different types of housing available within the context of service provision. For example, private rental and home ownership are points on the continuum as are public housing and long term care. The continuum provides a conceptual model wherein the multiple types and tenures of housing are easily visualized. Within the continuum it must be noted that it is not always a progression from one type of housing to the next that demonstrates success in service delivery or for the individual. Throughout the course of a person’s life they may move back and forth from rental to home ownership to rental and then long-term care.
For the Cochrane DSSAB’s 10-Year Housing Plan a more appropriate concept that accounts for key service considerations and housing options is a Housing Spectrum. The key considerations are under constant pressure from changing variables at the individual and community levels and therefore priorities are also changing. Recognizing this instability, a system of service that is adaptable and scalable is required to implement strategies. Figure 3 demonstrates the interconnected nature of service provision and housing as filtered through individual need and environment and then refocused to an ultimate objective. While it may appear simplistic to begin and end the spectrum analogy with dollars the fact is that service provision is all about resources. The spectrum demonstrates the application of those resources via a matching of appropriate service supports and housing that result in a return on the investment of those resources. Figure 3
28 | Page
The following passage taken from the CDSSAB Data Profile Report best exemplifies the contingent conditions that exist and that require a service spectrum approach to strategy development.
“A community’s long-term health and sustainability relies in part on its social and economic diversity while supporting a mix of residents in terms of family status and income levels. Residents in a community will typically require a diverse range of housing types, tenure opportunities and price ranges. The presence of appropriate housing can encourage residents to stay in a community and attract new people. Furthermore, the existence of appropriate housing is often a critical element in attracting investment to a community. Affordable housing is a significant factor in creating attractive, liveable and competitive communities. A lack of affordable housing effectively limits economic growth and can lead to substandard housing or homelessness. This can place tremendous pressure on individuals, families and on the delivery of health and social services”15
After defining service system management and given the slate of services already included in the CDSSABs portfolio (i.e. Childcare, Income Maintenance, Employment Services, Emergency Medical Services, and Housing Services) it is clear that the CDSSAB is already well positioned to manage relationships and coordinate resources to achieve desired outcomes. To enhance the CDSSABs capacity as service system manager a Housing Development Corporation was formed.
Housing Development Corporation
The formation of a development corporation provided the CDSSAB with the flexibility to secure and generate funds to develop different types of housing. As the sole shareholder of the Cochrane District Local Housing Corporation (CDLHC) the CDSSAB was able to create the development entity via an amendment to the corporate objects of the CDLHC which states that:
The business of the corporation shall be restricted to:
vi. Any activities related to the creation of affordable housing and / or the generation of funds to be invested for the creation of affordable housing.
In the continued analysis (section 3.2.5) of the key service considerations the role of the development mechanism of the CDLHC, in coordination with all other CDSSAB services as a function of a service system management strategy, will become evident.
3.2.5. Key Service Considerations
Eight key issues have been identified as critical to creating sustainable communities in the District of Cochrane. These issues were highlighted in the qualitative consultation processes and confirmed via the data analysis. Some are macro in nature such as the demographic and economic issues and some are at a micro level which is fitting since there can be no separation between the two as a healthy population and/or economy can only exist as a result of the quality services that create and sustain healthy individuals and communities. Therefore, issues such as serving the needs of people with mental health and addictions challenges, or victims of domestic violence, or those with accessibility limitations represent fundamental items to be incorporated into all service system strategies.
15 Cochrane DSSAB, Community Profile Data Report, HSC, 2014
29 | Page
The key service considerations are:
1. Declining or Stagnant Population 2. Supportive Housing 3. Aboriginal Population 4. Victims of Domestic Violence 5. Youth 6. Homelessness 7. Accessibility 8. Economic Trends
3.2.5.1. Declining or Stagnant Population
At the planning table for the Timmins 2020 Community Housing Plan population projections were discussed and three possible projections have been tabled: increasing; steady; and, decreasing. The steady scenario is deemed to be the most plausible given the trend since 2001.
The CDSSAB 10-Year Housing Plan will rely on the individual community plan pullouts to determine population projections to 2036 with the understanding that decline is certain if no action is taken to remedy the lack of affordable housing and the need for support services. From a service system perspective the activities required at the local level (reflected in section 4. Recommendations) include coordinated economic development strategies. In short, implementation of plan strategies does not guarantee population growth however not implementing strategies does guarantee population decline in some municipalities. In the City of Timmins, the willingness and capacity to implement the recommended strategies will mean the difference between growth and steady projections and also the rate of growth or long term decline.
Taking advantage of high demand markets and developing affordable housing projects via municipal, CDLHC, and private partnerships represents the best option to enable a population growth scenario. Support services would need to be in place to ensure long term residency.
3.2.5.2. Supportive Housing
Supportive Housing includes supports for seniors, people with mental health issues, people with addictions issues, and people with mobility issues who require home care services. In fact, the types of supports that can be applied to secure tenancy are too numerous to mention. The point being that in this context supportive housing is a strategy whereby health services can appropriately be brought to bear for the patient in the most appropriate environment. Essentially, housing secures the health Supportive Housing Housing that can occur in any care investment by ensuring the patient has the best chance to stay accommodation type but is healthy. In return housing costs are controlled by avoiding characterized by the services unnecessary unit turnover. provided to the tenant to enable them to remain housed in the Recommendations from ‘Living Longer, Living Well’16 demonstrate unit. how the CDSSAB can leverage service system management strategies to aid in the achievement of health care objectives and improve service to common clients; examples include:
16 Report submitted to the Minister of Health and Long-Term Care and the Minister Responsible for Seniors on recommendations to inform a Seniors Strategy for Ontario, Dr. Samir K. Sinha.
30 | Page
MOHLTC should enhance access to clinic-based physiotherapy services, especially for those on limited incomes who often forgo this therapy when prescribed due to their financial means. MOHLTC in partnership with MMAH and MCSS, should encourage the development of more assisted living and supportive housing units as alternatives to long-term care home placement for those who would benefit most from these environments. MOHLTC, in collaboration with LHINs and local municipal EMS programs should explore the development and expansion of Community Paramedicine programs across Ontario, especially in Northern and rural communities. These programs could better support high- users of EMS to avoid emergency department visits and hospitalizations and potentially delay entry into a long-term care home.
The Commission on the Reform of Ontario’s Public Services states complex cases and mental health and addictions issues are main cost drivers due to the fact that the health care system is structured to deal with acute care requiring hospitalization.17 One of the goals mentioned in the report is to keep patients out of hospitals. This can be accomplished through the use of housing resources that can be tailored to different levels of care.
Strategies that are already in place that serve as examples to build on include:
Dedicated supportive housing units in Iroquois Falls. A partnership between the Northeast LHIN, the CDSSAB and a Non-profit Housing Provider 10 accessible units were constructed under the Investment in Affordable Housing Initiative. An agreement to provide home care services is in place. Service Hubs – Units in CDLHC properties have been modified to allow for home care services to be provided not only to tenants on-site but also to members of the community. Additional programming such as collective kitchens, physio-therapy and foot care clinics are offered. Housing assets used as service hubs, particularly in remote communities, allow health services to be delivered when and where the patients need them at a lower cost to the system. The coordinated access system to apply for housing in the CDSSAB portfolio includes an urgent medical status which facilitates placement of those in need of home care supports to public and Non-profit units in an expedited manner. Exercise classes occur in multiple seniors buildings in the CDLHC portfolio Studies in the area of psychiatric rehabilitation indicate that the Addictions and mental health supports differ significantly from the most effective way to learn the supports warranted by an aging population; however, the premise of skills necessary for living providing services in a home setting remains equally viable. independently in the community is not in a group or transitional setting invented for that purpose, 18 In a recent literature review the Centre for Housing Policy stated that: but in the actual community where the skills will be practiced. 1. Affordable housing improves health outcomes by freeing up – Housing First, Tsemberis family resources for nutritious food and health care expenditures. 2. By providing families with greater residential stability, affordable housing can reduce stress and related adverse health outcomes.
17 Commission on the Reform of Ontario’s Public Services, 2012. 18 Impacts of Affordable Housing on Health: A Research Summary, R. Cohen, Centre for Housing Policy.
31 | Page
3. Stable, affordable homeownership positively impacts mental health by increasing the control that homeowners have over their physical environment and minimizing the disruptions associated with frequent unwanted moves. 4. Stable, affordable housing improves health outcomes for individuals with chronic illnesses and others by providing a stable and efficient platform of the ongoing delivery of health care and reducing the incidence of certain forms of risky behaviour. 5. By providing families with access to neighbourhoods of opportunity, certain affordable housing strategies can reduce The Poverty Reduction Strategy lists stable and affordable stress, increase access to amenities, and generate housing as a key area critical to important health benefits. creating ‘An educated, healthy, and employable workforce… The CDLHC is in the process of negotiating with a residential critical to the economic future treatment centre to make use of available land with the intention of of this province.’ constructing adaptable units that can serve a diverse at population with concurrent disorders. From point of development to housing tenants to income support and employment support during and post treatment the CDSSAB demonstrates the effectiveness of a service system management strategy.
3.2.5.3. Aboriginal Population
As indicated in section 3.2, ‘What the data tells us’, the Aboriginal youth population is the only demographic in Northeastern Ontario experiencing significant growth. Not only does this population need to be accessed to alleviate the pressing labour issues that exist in the Cochrane District but it also needs to be housed affordably. The trend is going to continue as is evident in the fact that Aboriginal people have a fertility rate at 2.6 compared to 1.5 for non-Aboriginal and the proportion of Aboriginal children (age 0-4) is twice that of non-Aboriginals.19
In addition to the stigma and stereotype barriers that Aboriginal people face when seeking affordable accommodations, occupancy standards are also a deterrent to accessing rental housing. The CDLHC is looking to partner with Ontario Aboriginal Housing Services and the local Native Friendship Centres to develop non-traditional affordable housing models that fit the Aboriginal culture while remaining financially viable.
Once again, local municipal development plans based on demand and supporting economic development initiatives will dictate how the Aboriginal population’s needs are met in each community.
3.2.5.4. Victims of Domestic Violence
The risk associated with victims of domestic violence is compounded by the lengthy waitlist for public and social housing in the Cochrane Family violence can lead to District. Once a woman has completed her time at one of the shelters physical harm and stresses that impact the mental health and she still faces a 3 to 5 month wait even with the SPP designation. The wellbeing of women and children worst case scenario concerns victims who do not enter the shelter exposed as victims or witnesses. system and wait on the coordinated access list while remaining in the - OFIFC abusive environment for 3 to 5 years without the SPP designation.
19 OFIFC Submission to the Commission for the Review of Social Assistance in Ontario, 2011.
32 | Page
Aboriginal women are at particular risk as it is estimated that 24% of all Aboriginal women experience spousal violence from either a current or previous marital or common-law partner. This incidence is three times higher than the rates of domestic violence faced by non-Aboriginal women.20
The CDLHC has formed a partnership with the three shelters in the By allowing victims of domestic Timmins area to develop a 6-plex to be used as a transition shelter. violence to escape abusive homes, Construction is scheduled for June 2014 with completion anticipated affordable housing strategies lead in the fall. Consolidated Homelessness Prevention Funding is being to improvements in mental health utilized to support the future tenants this will include household set and physical safety - OFIFC up, assistance with daily living support skills such as budgeting, assistance with hygiene and daily self-care, and assistance with transportation.
As another example of service system management strategies in action the intention is to provide the following services in a ‘wrap around’ strategy to ensure participant success:
1. Rent supplement 2. Income supports 3. Employment supports 4. Health services 5. Counseling 6. Childcare
3.2.5.5. Youth
49% of those identified as homeless in Timmins were under the age of 25. Homeless youth face particular barriers in the Cochrane District. There are few shelter spaces to access and those that are available are difficult to get to. Perhaps the most significant barrier is the lack of public acknowledgment that there are homeless youth in Northeastern Ontario. Many restrict the definition of homelessness to the visibly homeless. Visible homelessness is not predominant in the Cochrane District. Often homeless youth ‘couch surf’ or cram into a small accommodation space such as a bachelor unit until forcibly evicted.
The lack of public acknowledgment is significant because it is difficult to rally support for an issue that people do not think is an issue, especially when those people are influential decision makers.
The CDLHC has initiated discussions with the local agencies to determine the most appropriate housing model that could meet demand and remain financially viable. The ‘housing first’ model is difficult to employ where the youth population is concerned given the absence of income earning capabilities. Initial concepts propose a congregate setting with a time frame that allows for the effective application of wrap around services similar to those identified in section 3.2.5.4. An important partner in the service system management strategy for youth is the education system.
3.2.5.6. Homelessness - Capacity point
In January of 2011, 718 people were identified as homeless in the City of Timmins. 21 In July of 2011, 71 people were identified as homeless in the Town of Hearst.22 The numbers were generated using a
20 OFIFC Submission to the Commission for the Review of Social Assistance in Ontario, 2011. 21 Homelessness in Timmins, Dr. C. Kauppi, January 2011 22 Poverty, Housing, and Homelessness in Hearst, H. Pallard, July 2011.
33 | Page point prevalence count to ensure accuracy and non-duplication. This is the first time that homeless numbers have been generated in the Cochrane District. These numbers include absolute homeless and those at risk of becoming homeless. Additional typologies often applied in defining homelessness include emergency sheltered and provisionally accommodated. The causes of homelessness include structural factors, individual and relational factors, and systems failures characterized by a cumulative impact of a number of factors, rather than a single cause.23
The costs associated with managing homelessness are much greater than the costs associated with housing individuals. The CDLHC can house someone in an RGI unit for $13 per day compared to the police, hospital, and shelter costs incurred to manage homelessness.
The CDSSAB aims to provide a broad range of services to a variety of ‘at risk’ client groups to prevent homelessness including supports related to medical need and well-being, crisis intervention services, harm reduction programs, and minor home repairs.
3.2.5.7. Accessibility
There are a limited number of accessible and modified units to accommodate people with mobility challenges. Demand for the units is such that in past years units would sit vacant for periods of time as there was no one on the waiting list. Eventually the unit would be filled and then was unavailable when someone requiring an accessible unit applied.
The CDSSAB maintains an urgent medical priority status for the coordinated access program. This status creates options for moving people into appropriate units. For example, if an able bodied person moves into an accessible unit to avoid vacancy loss the terms of the lease may include a movement clause should someone with a demonstrated need apply for an accessible unit.
The CDLHC is in discussion with local service providers such as Access Better Living to determine versatile housing models to serve this population.
3.2.5.8. Economic trends
Affordability
The current economic environment in the Cochrane District is the primary reason for positioning the CDLHC as a property development entity. Despite the high level of demand there are few developers willing or able to risk resources in an environment characterized by high fuel prices, high costs of construction materials, lack of labour, and limited financing options. Combine this developer hesitation with the lack of Federal and provincial funding to develop new stock and it is clear that the citizens at the low end of the economic service spectrum and at-risk populations are impacted the most. However, the lack of affordable development has also started to manifest in the inability of employers to hire and retain low wage earners in the retail and service industries.
Section 4.0 of the City of Timmins – Community Housing Plan demonstrates the fundamental measures of affordability by combining industry average wages with housing stock availability and price. This affordability analysis represents the measure to be applied to all member municipalities.
23 The State of Homelessness in Canada, Canadian Alliance to End Homelessness, 2013.
34 | Page
The Ontario Poverty Reduction Strategy states that ‘if people living in poverty are going to find opportunity, they may need assistance in finding a safe and stable place to live’. Although this is somewhat of an understatement this point represents the very mission of the CDLHC to develop affordable housing because if there is no action targeted at creating safe and stable places to live everyone in the Cochrane District will pay a price.
Development
The development initiative is a good example of service system management in action. Fundamental to the premise of developing affordable housing is the notion of partnerships and managing relationships. There can be no sustainable creation of affordability in units without sharing the risk and costs of development. It is unreasonable and unrealistic to expect private developers to create affordability at the expense of profit margins. However, municipalities have the capacity to facilitate the creation of affordable units by utilizing municipal planning tools and partnering with developers to include proportionate levels of affordable units in new or redevelopment projects.
In Northern Ontario development margins are very thin considering the price of hydro and fuel, the short construction season, costs associated with transporting materials, and contractor availability; therefore it is even more important for municipalities to protect their interests and partner for the purpose of development. Figure 4 is taken from the PMFSDR and it shows the relative fiscal health of communities in Ontario. One of the conclusions listed with this indicator is that “Better fiscal health appears to be related to recent growth in population and business activity”.24 The CDLHC has positioned itself facilitate the partnerships and development to set the stage for growth and to sustain existing and new business activity in the Cochrane District.
Figure 4
Another demonstration of a service system management strategy at play in the CDLHC development initiative is evident in the business strategy to take advantage of market demand and opportunity to create a return on investment which can then be used to generate affordable units and stimulate economic development in areas that are experiencing stagnation and / or decline. This sharing of resources will create an environment whereby service providers can build on the success of
24 Provincial-Municipal Fiscal and Service Delivery Review, 2008.
35 | Page development and justify program investment in previously tenuous environments (education, health, etc.).
Partnerships
The CDSSAB and CDLHC are well positioned to leverage service partnerships with education and health providers. Through programs developed in Ontario Works and Childcare relationships have been formed with secondary and post-secondary schools that can be focused on securing mutual interests. Student enrollment is down across the district which correlates with the current demographic trends. As schools close housing development becomes less sustainable and in communities without affordable housing development families will choose not to remain or to relocate to that community and schools will close.
As part of the development plan the CDLHC is formalizing student placements and investing in bursaries to encourage participation in trades based programs. The intention is to bolster the local pool of specialized construction workers in order to offset long-term development costs. A similar strategy is being implemented on the service side. Education placements will be offered in seniors buildings for students in Personal Support Worker or nursing programs.
Asset Strategies
End of operating agreements signify a watershed moment in housing delivery in the Cochrane District. In the early days of municipal housing delivery the strategy employed to deal with this looming issue was to lobby the Province. In recent years the realization that lobbying, while effective in communicating need, does little to maintain physical assets. The result of inaction will lead to facility deterioration and drastically increased capital requirements. However, by leveraging CDLHC assets to grow the portfolio with affordable housing units an economy of scale, with a commensurate return on investment, can be realized; which will insulate the organization and member municipalities from potential economic downturns.
The PMFSDR speaks to the coordination of housing programs, which is needed, but the review also returns to a strategy that has been abandoned by municipalities; one which relies solely on lobbying the other levels of government to assume their share of the burden of service delivery. PMFSDR appeals to the Federal government as Municipalities once held out their hats to the Province. The CDSSAB 10- Year Housing plan takes a different approach by laying out the strategy where all levels of government can make a proportionate investment to justify the return that will be generated. The provincial and federal governments will realize a return on the CDSSAB 10-Year plan investment; at the very least that return should be reinvested to insure long term sustainability.
There is an important role to be played for non-profit and co-op housing providers as operating agreements expire. Community based governance is a vital part of the housing portfolio which can only be enhanced as providers become strategic partners in redevelopment or new development initiatives. Quite often a provider makes the ideal proponent to lead a development proposal while the CDLHC, the municipality, and private interests play a secondary partnership role.
Critical to the sustainability of any new or redevelopment project is the capacity to control operating costs. In Northern Ontario the climate has a profound impact on energy costs and therefore an important consideration in any project involves the use of innovative energy conservation technology and strategies.
36 | Page
Environmental sustainability and energy conservation are daily considerations for most residents despite the fact that they may not realize it. The economy in the Cochrane District is ‘Invest in our success. Use what we do well on the ground to based on resource extraction in the form of mining or forestry. create a sustainable model” In order to live in this environment and market the region to – Consultation participant others the success of reclamation projects is essential. The balance between the demand of industry and environmental stability has a direct impact on housing development and marketability.
Financing
While it is acknowledged that developing affordable housing is a critical need within the Cochrane District at this time it is also Financing Options: acknowledged that there is no municipal money available to Commercial mortgage subsidize development. Each affordable housing development Social impact bonds must be self-sustainable at time of construction and over the long- Community investment bonds term. Debentures
Perhaps the greatest cost pressure that threatens the depth of affordability in any development is the cost of financing the project. Where possible the CDLHC will finance projects internally to minimize ancillary expenses such as legal and transaction fees and to control the interest rate. However, internally financed projects must still generate a modest return for the organization which can then be reinvested. Internal financing is only appropriate for smaller scale projects. As part of the initial analysis of any project the appropriate financing tool must be determined.
Key Service Considerations Summary
Developing affordable housing projects is a strategy that can help the economy of the Cochrane District. However, as demonstrated in the analysis and key considerations only a strategy that involves support services for tenants combined with partnerships to create affordability can lead to sustainability.
The need for this strategy is evident in the Northern Northern Growth Plan – Guiding Principles growth plan guiding principles which are empty statements in the absence of sustainable housing. For 1. Creating a highly productive region with a example: diverse, globally competitive economy that offers a range of career opportunities for all 1. Career opportunities can be offered but cannot residents. be accepted without housing. 2. Developing a highly educated and skilled 2. An educated and skilled workforce needs workforce to support an evolving knowledge- someplace to live and the employees of based economy and excellence in the trades. secondary industries that support the former 3. Partnering with Aboriginal peoples to increase educational and employment opportunities. need an affordable place to live. 4. Delivering a complete network of 3. To take full advantage of educational and transportation, energy, communications, social employment opportunities Aboriginal people and learning infrastructure to support strong, need safe affordable housing. vibrant communities. 5. Demonstrating leadership in sustainable 4. The complete network of transportation, growth and environmental management. energy, communications, social and learning 6. Establishing innovative partnerships to infrastructure must include housing because maximize resources and ensure the Growth without it there are no strong vibrant Plan achieves its ambitious vision and is communities. fiscally sustainable.
37 | Page
5. Without housing development strategies as part of innovative partnerships there is no fiscal sustainability and Northern Municipalities will not realize the vision of the Northern Growth Plan.
By including housing strategies in the guiding principles Northern Municipalities can use housing and the CDSSAB / CDLHC as a means to an economically sustainable end.
3.3. Measures
The success of the 10-Year plan is largely contingent upon the ability of the CDSSAB and CDLHC to fulfill the role of service system manager. That being said there are a number of levels upon which performance will be measured as indicated in Table 5:
Table 5
Level Priority Measurement Implementation of a housing first strategy Homeless supported by wrap around services appropriate to the needs of the individual Completion of the transitional 6-plex to relieve Victims of domestic pressure on the existing shelters and aid in re- violence entry to community living for victims via wrap around support services. Individual Communication with local employers Low income earners OW caseload and employment programs Development of affordable supportive housing units Seniors Partnerships with support service providers Continue participation on local health planning committees (health links, ALC) Vacancy rates Stimulate development resulting in lower Average market rents demand and lower average rents Maintain a market to affordable development Development targets ratio of 4:1 Maintain membership with Chamber of Community Commerce and play an active role Economic development Coordinate statistical analysis with local economic development corporations to determine initial viability of development projects and continued marketability of current assets Launch community paramedicine program and Supportive Housing monitor usage vs. emergency room visits Development of strategies to market the area as Municipal partnerships a destination of choice to encourage migration to District the District (tourism, employment, education) Fulfillment of Northern Growth Plan Guiding Sustainability Principles
38 | Page
4. Recommendations
The following points are set forth as recommendations to enable the development of the strategies laid out above. Primarily the CDSSAB’s role as service system manager involves forming partnerships that facilitate these recommendations and to subsequently hold partners accountable to achieving desired outcomes; therefore, the CDSSAB 10-Year Plan recommends:
Service System Management
1. The CDSSAB formally acknowledge its role as a Service System Manager and take advantage of opportunities for growth and to minimize risk for municipalities, the organization, tenants, clients, and citizens thereby creating district wide sustainability and providing justification for secure investment opportunities for other levels of government and private interests.
2. In recognition of limited capacity, local supportive service providers partner with the CDSSAB and CDLHC to form a committee where service needs can be quantified and efficiencies realized with the goal of developing a supportive affordable housing model to serve multiple needs (i.e. addictions, mental health, mobility restrictions, victims of domestic violence, developmental challenges).
3. Homeless shelters and homelessness service agencies partner with the CDSSAB and CDLHC to coordinate resources and develop appropriate models that optimize limited funding (i.e. housing first).
Health
4. The Ministry of Health and Long-Term Care, the Northeast Local Health Integration Network, and the Community Care Access Centre must optimize the ‘hub’ service strategy whereby housing assets in all communities can be used to serve the health needs of residents and neighbours, particularly in the smaller communities on Highway 11.
5. The Ministry of Health and Long-Term Care and the Northeast Local Health Integration Network must join with representatives from the CDSSAB to quantify current local service delivery costs and commit to reinvest local fund surpluses realized via the successful implementation of the hub service model, the Health Links program, and Community Paramedicine program.
Education
6. To enable and optimize mutually beneficial development strategies the Ministry of Education and local school boards must acknowledge DSSABs as municipal entities entitled to receive notification regarding the disposal of surplus school properties. Further, local school boards must participate in local planning strategies that incorporate the development of affordable housing.
7. To enable development and ensure sustainability post-secondary institutions must partner with the CDSSAB and CDLHC to offer practical community placement opportunities in the skilled trades and soft service fields.
39 | Page
Municipal Affairs and Housing
8. The Ministry of Municipal Affairs and Housing must revisit funding allocation models when rolling out all future housing programs in order to ensure that funds are available to create a depth of affordability in a project that is not tied to a fixed amount per unit but based on the viability of the project business case (i.e. costs are greater in some CDSSAB member municipalities than others but housing is still needed). As any one expense changes (land value, materials, concrete, etc.), due to local drivers, the overall cost of the project changes thereby increasing or decreasing the amount of program funding required to create an acceptable level of affordability. The rationale is that the more program funds accessed the longer the commitment and the greater the loan securities required; however, if a lower amount is accessed there is less risk and a shorter time commitment and this should equate to fewer loan security restrictions.
9. To enable and sustain future development the Ministry of Municipal Affairs and Housing must engage the CDSSAB to develop a Northern Cost Factor that can be applied to future funding allocations that accounts for the challenges particular to Northern Ontario; specifically: the population density that cannot justify allocation amounts significant enough to fund new build projects; the cost of construction materials which are significantly higher than other parts of the province; the shortened life time of building components caused by the northern climate that require replacement more frequently than other parts of the province; the price of fuel; and the cost of procuring construction expertise due to a lack of local contractors.
Provincial Cabinet
10. Upon realizing cost savings across multiple portfolios as a result of the implementation of 47 Housing Plans the Provincial Cabinet must commit to an interministerial reinvestment fund whereby the return on investment enabled by municipal plans can be reinvested locally to ensure sustainability.
Municipal
11. The member municipalities of the CDSSAB must take advantage of the opportunities presented by the CDLHC development initiative through formal communication channels and by including housing services personnel at local planning tables.
12. CDSSAB member municipalities consider the creation of affordable housing as a matter of municipal interest to be considered in the decision making process when disposing of public lands with the acknowledgement that the CDLHC is a municipal department with the capacity to develop property and generate revenue to be reinvested in municipalities. Further, that municipal planning representatives work with CDLHC personnel to develop decision making criteria to enable the timely development of affordable housing (i.e. when the local vacancy rate falls below a given percentage affordable housing shall be deemed in the municipal interest and a percentage of public land offerings shall be offered first to CDLHC partners).
13. To optimize the potential for development and to coordinate public assets representatives from CDSSAB member municipalities and representatives from local school boards must meet with CDLHC personnel to discuss the creation of a community land trust.
40 | Page
14. Municipal planning personnel must coordinate with CDLHC personnel to develop an affordable housing proposal mechanism that can be used by private developers to apply for municipal incentives to create a meaningful depth of affordability. This tool would consider land cost, construction costs, operating costs, revenue generation, average market rent or sale amounts, tax rates, redevelopment expenses such as tipping fees, building permit fees, etc.
15. Municipal councils must commit to using appropriate planning tools wherever possible to facilitate the creation of affordable housing (appendix C).
16. The CDSSAB, CDLHC and all member municipalities support the recommendations set forth in ‘The State of Homelessness in Canada, 2013’:
Communities should develop and implement clear plans to end homelessness, supported by all levels of government All levels of government must work to increase the supply of affordable housing Communities – and all levels of government – should embrace Housing First Eliminating chronic and episodic homelessness should be prioritized Ending Aboriginal Homelessness should be prioritized as both a distinct category of action and part of the overall strategy to end homelessness Introduce more comprehensive data collection, performance monitoring, analysis and research
DSSAB Act
17. To eliminate barriers to development and service provision initiatives the Ministry of Municipal Affairs and Housing must work with the Ministry of Community and Social Services to revisit the legislation that governs District Social Service Administration Boards with the goal of creating standing for DSSAB’s in the Municipal Act, the Education Act, and any other relevant legislation.
Conclusion
In the end the Cochrane DSSAB’s 10-Year Housing Plan is a sustainability plan and, in fact, a community plan where housing strategy is a part of the blue print for economic development and sustainability. Housing has always been about creating sustainability … for the individual and for the community, but this doesn’t happen by simply constructing a building. Services are a critical component. It is obvious through this plan that the CDSSAB is accountable, through its role as service system manager, to its member municipalities and the residents therein and to achieving the goal of creating individual and community sustainability.
Some who read this plan may question the authority and / or ability of the CDSSAB to engage in what appear to be lofty strategies and to bring to fruition the results that correspond to the recommendations. Although not necessarily intended as such through the Local Services Realignment, District Social Service Administration Boards have become Service System Managers. It’s time to acknowledge this role and to support the strategic initiatives being suggested herein to sustain the future of Northeastern Ontario.
41 | Page
Definitions
Term Definition Affordable Housing Affordable housing is characterized by any form of permanent accommodation (rental, ownership, etc.) where the monthly mortgage or rent expense does not exceed 30% of gross monthly income. The term ‘affordability’ is not limited to use in the context of low to moderate income households. District Social Services A type of Service Manager created to provide defined social Administration Board services for member municipalities. There are 10 DSSAB’s that (DSSAB) deliver service for municipalities of all sizes across the vast geography that characterizes Northern Ontario. Bluefield Property Bluefield properties are institutional or community facilities that are no longer in use. They may include former schools, hospitals, long- term care facilities, courthouses or similar uses. Brownfield Property Brownfield properties are abandoned, vacant, derelict, or under- utilized industrial or commercial properties with actual or perceived contamination and an active potential for redevelopment. They may include abandoned factories, old landfills, dry cleaners and print shops. Cooperative Housing Non-profit housing owned and managed by resident members. Tenancy is secured via a screening and interview process. In addition to the pooling of resources to lower the costs per member, members are expected to volunteer to secure the wellbeing of the portfolio. Greyfield Property Greyfield land is real estate or land which is underutilized. Greyfield property can take a variety of forms. Often, it includes buildings which are obsolete or poorly maintained, and in many cases, it is the site of a mall or office park which was once thriving. Homelessness A term that describes the situation of an individual or family without stable, permanent, appropriate housing, or the immediate prospect, means and ability of acquiring it. 1. Unsheltered – living on the streets or in places not intended for human habitation 2. Emergency Sheltered – staying in overnight emergency shelters designed for people who are homeless 3. Provisionally Accommodated – people who are homeless whose accommodation is temporary or lacks security of tenure 4. At Risk of Homelessness – people who are not homeless, but whose current economic and/or housing situation is precarious or does not meet public health and safety standards. 25 A state of accommodation or lack thereof that limits or threatens the economic contribution that a person or household can make through or that jeopardizes the health and safety of an individual or household requiring the application of health and social services which would otherwise not be required. Housing First A type of housing intervention where someone in need is provided
25 The State of Homelessness in Canada, Homeless Hub, 2013
42 | Page
Term Definition with accommodation and where support services are provided in- situ as part of permanent tenancy. Member Municipality In the context of a District Social Services Administration Board a member municipality is a municipality that falls within the geographic area defined by the DSSAB border and that must contribute to the annual budget established by the DSSAB to deliver defined social services. Non-Profit Housing Housing operated on a non-profit basis consisting of a mix of market rent and rent-geared- to income units. Non-profit housing is not owned by the tenants but instead is its own corporate entity governed by a board of directors. Private Market Housing Purposed built housing (ownership, rental, condo, etc.) funded by private owners for a return on investment. Provider A term used to characterize a housing entity such as a co-op or non- profit which provides housing units subject to program guidelines as defined under the Housing Services Act, 2012. Public Housing Housing units provided by Local Housing Corporations created under the Social Housing Reform Act and controlled by Service Managers as the sole shareholder. Rent Supplement A housing funding program whereby the difference between market rent and the tenant’s defined rent-geared-to-income rent charge is supplemented by a funding agent thereby creating an affordable unit. Service Manager One of 47 social service delivery entities in the Province of Ontario. The manner in which services are delivered may take a number of forms and the services typically include, but are not limited to, Ontario Works, Subsidized Child Care, Land Ambulance EMS, and Social Housing. Social Housing The term general applied to all forms of housing other than private market housing, including co-ops, non-profits, and public housing Supportive Housing Housing that can occur in any accommodation type but is characterized by the services provided to the tenant to enable them to remain housed in the unit. Transitional Housing Housing provided to a defined tenant group to transition from one state of accommodation to another (ex. Homeless to permanent housing). Typically transitional housing is accompanied by support services intended to secure long term tenancy.
43 | Page
Acronyms
ALC – Appropriate Level of Care also Alternate Level of Care CCAC – Community Care Access Centre CDLHC – Cochrane District Local Housing Corporation CDSSAB – Cochrane District Social Services Administration Board DSSAB – District Social Services Administration Board EMS – Emergency Medical Services EOA – End of Operating Agreements LHIN – Local Health Integration Network LSR – Local Services Realignment MCSS – Ministry of Community and Social Services MMAH – Ministry of Municipal Affairs and Housing MOHLTC – Ministry of Health and Long-Term Care NOSDA – Northern Ontario Service Deliverers Association OFIFC – Ontario Federation of Indian Friendship Centres PMFSDR – Provincial-Municipal Fiscal and Service Delivery Review RGI – Rent Geared to Income ROI – Return on Investment VDV – Victims of Domestic Violence
44 | Page
References
“City of Timmins – Community Housing Plan – Phase 1: Housing Demand and Supply Analysis”. SHS Consulting and Refact Consulting, 2014.
Cochrane DSSAB Community Profile Data Report. Housing Services Corporation, 2014.
Cohen, Rebecca. “The Impacts of Affordable Housing on Health.” Center for Housing Policy, Insights, May 2011.
Kauppi, Carol, Henri Pallard, Suzanne Lemieux, and Thomas Matukala, Homelessness in Timmins – Final Report. Laurentian University, Centre for Social Justice and Policy, 2011.
Landers, David, and Fern Dominelli, “An Overview of Service System Management”. Northern Ontario Service Deliverers Assocation, 2013.
“OFIFC Submission to the Commission for the Review of Social Assistance in Ontario”. Ontario Federation of Indian Friendship Centres, 2011.
Oliveira, L. “Public Consultation Outcomes: Talking about Housing and Homelessness in the Cochrane DSSAB”. Housing Services Corporation, 2013.
Oliveira, L. “Focus Group Outcomes: Talking about Housing and Homelessness in Timmins”. Housing Services Corporation, 2013.
Oliveira, L. “Housing Action Plan Survey Results”. Housing Services Corporation, 2013.
Ontario. “Breaking the Cycle – Ontario’s Poverty Reduction Strategy”. Province of Ontario, 2009.
Ontario. Commission on the Reform of Ontario’s Public Services. “Public Services for Ontarians: A Path to Sustainability and Excellence”. Queen’s Printer for Ontario, 2012.
Ontario. “Growth Plan for Northern Ontario”. Ministry of Infrastructure and Ministry of Northern Development and Mines, 2011.
Ontario. “Provincial – Municipal Fiscal and Service Delivery Review”, Province of Ontario, Association of Municipalities of Ontario, City of Toronto, 2008.
Ontario. “North East Local Health Integration Network – Assisted Living Strategy”, 2013.
Sinha, Dr. Samir K. “Living Longer, Living Well.” Report submitted to the Minister of Health and Long- Term Care and the Minister Responsible for Seniors on recommendations to inform a Seniors Strategy for Ontario, 2012.
“The State of Homelessness in Canada”. Canadian Alliance to End Homelessness, 2013.
Walker, David J. “Caring for our Aging Population and Addressing Alternate Level of Care”. Report to the Minister of Health and Long-Term Care, 2011.
45 | Page