HOMELESSNESS AND THE HOMELESS: Responses and Innovations

A Canadian Contribution to IYSH 1987

H. Peter Oberlander and Arthur L Fallick

The Centre for Human Settlements Faculty of Graduate Studies The University of British Columbia Vancouver, Canada HOMELESSNESS AND THE HOMELESS: RESPONSES AND INNOVATIONS

A CANADIAN CONTRIBUTION TO IYSH 1987 by H. Peter Oberlander and Arthur L. Fallick

******

Centre for Human Settlements The University of British Columbia 1988

The research and publication of this report was made possible through a generous grant from Canada Mortgage and Housing Corporation (CMHC); the views expressed are the personal views of the authors.

TABLE OF CONTENTS

PREFACE 1 THE INTERNATIONAL YEAR OF SHELTER FOR THE HOMELESS 3 Objectives of the International Year 5 Global Conditions and the IYSH 6 Sources of Homelessness in Canada 11 Numerical Estimates 12 Canada's Homeless 13

CANADIAN INITIATIVES DURING THE INTERNATIONAL YEAR 17 Regional Initiatives 17 Traditional Support for the Poor and Disadvantaged 21

SELECTED CANADIAN SOLUTIONS 26 Criteria for Selecting Canadian Solutions 26

Demonstrating Successful Initiatives 59

A FRAMEWORK FOR ACTION BEYOND THE INTERNATIONAL YEAR 131

BIBLIOGRAPHY 141 PREFACE The International Year of Shelter for the Home­ senior and experienced colleagues together with less focussed attention on the plight of the graduate students, to discuss the issue of home­ homeless nationally and internationally. Canada lessness, review relevant papers and advise on Mortgage and Housing Corporation, Canada's approach and scope of analysis. Their collective national housing agency, served as the national contribution is deeply appreciated. focal point and supported a wide range of The haunting line drawings portraying the initiatives to identify and highlight the best homeless in their daily search for shelter, means of aiding the homeless and alleviating food, clothing and dignity of life, are the work homelessness. Among these initiatives and as an of Naomi Spiers a well-known Canadian west- integral part of Canada's participation in IYSH coast painter and sculptor. The drawings were the Centre for Human Settlements at the Uni­ based on her daily contact with the homeless versity of British Columbia was invited to and Naomi Spiers deserves our admiration and identify, analyse, and select practical solutions gratitude for this sensitive and evocative pre­ to homelessness in Canada which demonstrate sentation. a variety of successful approaches based on Special thanks are due to Shirley Marcus, regional differences, local needs, and effectively Administrative Assistant at the UBC Centre combining public and private resources. who was responsible for extensive editorial work A progress report on the initial analysis on and the production of the final report. the nature, scope and causes of homelessness Homelessness, while broadly pervasive, reflects in Canada was submitted to UNCHS 10 at its prevailing economic, social and political cir­ meeting in Nairobi in 1987. The current report cumstances. The homeless themselves are diverse completes the research project by integrating and represent social and economic diversity the analysis of cause and effect of homelessness deeply rooted in the process of urbanization. in Canada with selected successful solutions While Canada has its share of the homeless representative of public and private initiatives and has become acutely aware of the causes of across the country. The projects selected meet homelessness it has also begun to solve the the criteria and guidelines established by the problems identified, through a variety of locally- UN Commisison on Human Settlements for dem­ based projects and programs. Therein lies Can­ onstration projects which have been adapted to ada's best hope of alleviating homelessness in meet Canadian circumstances. the years following IYSH through the deter­ Research and analysis provide conclusive evi­ mined application of the partnership of public dence that while homelessness in Canada is a and private resources. The current report may readily identifiable phenomenon particularly in contribute to a clearer understanding of the the major metropolitan areas it is subject to causes and effects of homelessness and also public policy intervention and substantive im­ give hope to the homeless themselves and to provement through the combined application of those concerned with eliminating homelessness public and private inititatives and resources. The in Canada. projects selected for detailed analysis and pre­ sentation indicate that a partnership of public and private agencies, together with the home­ less themselves is capable of substantively and H. Peter Oberlander substantially assisting the homeless and alleviat­ Director ing homelessness on a continuing basis. Centre for Human Settlements The research project and the current report The University of British Columbia has had the generous financial support of Vancouver, Canada CMHC and was made possible through the ex­ tensive co-operation of many provincial agen­ H. Peter Oberlander, Professor of Regional Plan­ cies and departments concerned with shelter ning at the University of British Columbia has provision and the alleviation of homelessness. been member of the Canadian Delegation to the In particular the focal points in each province UN Commission on Human Settlements since it and the two territories materially asssited in convened in Mexico City in 1980. collecting information, analysing data and pro­ viding illustrations for this publication. Arthur L. Fallick, Research Associate at the The preliminary as well as the final report Centre for Human Settlements, University of was based on two Invitational Seminars con­ British Columbia, is a graduate of the University vened by the Centre which allowed a group of of Dundee. The International Year of Shelter for the Home­ less raises questions that run to the heart of the human condition and for which answers are not in any sense evident. The IYSH is a way of consciousness raising around the world; a year where the issues are so urgent and the necessary responses so passionately held that perhaps we might evidence a break-through. Honourable Stephen Lewis, Canada's Ambas­ sador to the United Nations, Vancouver, May 1987. THE INTERNATIONAL YEAR OF SHELTER FOR THE HOMELESS

On 29 September 1980, His Excellency Prime UNCHS (Habitat) to the Fourth Session of the Minister Premadasa of Sri Lanka addressed the Commission on Human Settlements held in thirty-fifth session of the General Assembly of Manila in 1981, and confirmed in Resolution the United Nations: 4/2 of that Session. It was also furthered in a note by the Secretary-General to, and in Resolu­ tion 1981/69b by, the second regular session in 1981 of the Economic and Social Council. During its thirty-sixth session the General In the rush for development, urbanization bos run Assembly decided to designate 1987 as the out of control, spawning ugly slums and gbettoes, International Year of Shelter for the Homeless depopulating rural areas and overcrowding conurba­ (Resolution 36/71 of 4 December 1981), re­ tions. Urban poverty, congestion and squalor are questing the Executive Director of UNCHS (Hab­ problems common to many of our developing countries. itat) to prepare a proposal containing a specific It is said that as much as 20 percent of our program of measures and activities to be under­ people are seriously undernourished in the developing taken prior to and during the year. The re­ countries; 50 percent do not have safe water; 60 quired report was submitted to, and endorsed percent do not have proper health care; 20 percent by the fifth session of the Commission on of the babies die before they reach the age of 5. Human Settlements in 1982.2 There are equally depressing figures for unemploy­ During the Tenth (Commemorative) Session of ment, education and other basic needs. Housing the Commission in Nairobi, in April 1987, provides a key to the solution of several of these Prime Minister Premadasa observed that: disabilities. The problem of housing is not confined to Sri . . . although much had been accomplished, Lanka. It is not a problem confined to Asia. It is a development efforts had failed to correct the global problem. basic condition that they addressed. The prin­ The replacement of shanties with decent housing is cipal task was therefore to fashion a new, not a peripheral part of development. It is at the accelerated and sustainable approach to devel­ very core. It is an investment in mankind.' opment. From a review of the experiences of the International Year of Shelter for the Homeless (IYSH), it was evident that shelter could become a new organizing principle of development, provided that it could meet The Prime Minister proposed the declaration the critical criteria of acceptability, affordability, of a special international year to be dedicated durability and viability. He reminded the to the problems of the millions of people who commission that the IYSH was not an end in are homeless or who live in shanties and itself, that follow-up action must be secured, substandard houses - the poorest of the poor and that the International Year would be throughout the world. judged not by the material content of the This proposal was accepted and subsequently efforts but by their moral impact; it was not confirmed by the General Assembly through only shelter that was being built but also Resolution 35/76 of 5 December 1980; it was values; not only societies being developed but also reported by the Executive Director of also people.3

OBJECTIVES OF THE neighbourhoods of the poor and disad­ INTERNATIONAL YEAR vantaged by the year 2000; (4) To exchange experience and provide sup­ The goals of the IYSH were articulated by the port among countries to meet the objec­ United Nations General Assembly in 1982 un­ 5 tives of the year. der Resolution 37/221: In support of these four goals, participating The objective of activities before and during governments were encouraged to make an as­ the year would be to improve the shelter sessment of their own shelter needs of the poor and neighbourhoods of some of the poor and and disadvantaged and then actively improve disadvantaged by 1987, particularly in devel­ the situation by: oping countries, according to national priori­ ties, and to demonstrate by the year 2000 (a) reviewing and adjusting existing policies ways and means of improving the shelter and and programs, with priority on the provi­ neighbourhoods of all the poor and dis­ sion of shelter as a fundamental part of advantaged.4 national economic and social development; (b) developing and strengthening relevant leg­ Four goals were identified: islation to improve, for example, the access of the poor and disadvantaged to (1) To secure the renewed political commit­ decent and affordable shelter as a basic ment of the international community to right; the improvement of the shelter and neigh­ (c) developing and strengthening relevant ad­ bourhoods of the poor and disadvantaged ministration and management capacities, and to the provision of shelter for the especially at the subnational and local homeless, particularly in the developing levels; countries, as a matter of priority; (d) developing and implementing shelter dem­ (2) To consolidate and share all new and onstration projects; existing knowledge and relevant experi­ (e) undertaking and supporting extended pro­ ence gained since Habitat: the United Na­ grams of applied research; tions conference on human settlements, held in Vancouver in 1976, in order to (f) developing and disseminating information; provide a full range of tested and practi­ (g) generating the necessary human, material cal alternatives for improving the shelter and financial resources; and neighbourhoods of the poor and (h) ensuring effective public participation. disadvantaged and for providing shelter for the homeless; Three crucial factors in developing effective (3) To develop and demonstrate new ap­ programs of action toward the year 2000 were proaches and methods to assist directly considered: and augment the present efforts of the homeless, poor and disadvantaged to se­ (1) "adequate shelter" must be recognized as cure their own shelter, and in order to being more than four walls and a roof; provide a basis for new national policies at the very least adequate shelter also and strategies for improving shelter and involves security of tenure/occupation and O O INTERNATIONAL YEAR o o o o o o o o o o o reasonable access to infrastructure and no longer accept. We must demand, and ourselves o basic services and to employment; initiate, action at every level - local, national and o (2) governments should recognize that "human international - to put an end to this human misery. o settlements" cannot be regarded as merely Message from the Secretary-General to the Commission o a sectoral activity in national development on Human Settlements at its tenth (commemorative) o plans. Human settlements are the final session, April 1987. o product in terms of built/living environ­ o ments of all sectoral activities; In the decade since the United Nations con­ o (3) the national IYSH action program has a ference on Human Settlements was held in clear focus on full and effective partici­ Vancouver, more than 350 million people have o pation and involvement of the poor and been added to the cities of the developing part o disadvantaged themselves, with activities of the world, and most of these have been o primarily aimed at helping the poor to added to the population of the overcrowded o help themselves.6 slum and squatter settlements. This pace of o growth is expected to continue unabated well o The basic program for IYSH reflects constraints into the next century. o and opportunities for action at three levels: IYSH has raised the consciousness and chal­ o lenged the conscience of the world to consider o * * political commitment regarding the impor­ the plight of the millions of people who lack o tance of the shelter issue and the need to shelter, and the hundreds of millions who lack o give it adequate support and attention; a real home - one which provides protection from the elements; has access to safe water o * * policy-level commitment to creating the and sanitation; provides for secure tenure and o administrative framework that will allow personal safety; is within easy reach of centres o an adequate approach to shelter problems of employment, education and health care; and o on an integrated basis within the main­ is at a cost which people and society can o stream of development; afford.8 o In the build up to and during the Interna­ o * * the testing, review, implementation and tional Year, chilling and visceral images of o exchange of experience on solutions that impoverishment and the homelessness which it o optimize need and affordability.7 engenders have been relayed through the world o media. UNCHS (Habitat) has reported that one o hundred million people have no shelter of any o kind, and in addition, one billion people, fully o GLOBAL CONDITIONS AND one quarter of the global population, are seri­ o THE IYSH ously at risk of becoming homeless because of inadequacies in their shelter and living condi­ o tions. As Canada's UN Ambassador Lewis told o The sight of hundreds of thousands of our fellow delegates to the International Conference on o human beings huddled into the urban and rural Homelessness in Ottawa, "we are dealing with a o slums and makeshift dwellings, and sizeable numbers, contagion which begins with the phenomenon o including entire families, literally living on the of homelessness and then spreads outward to o streets, is one which we as citizens of one world must hopelessness". o o It became clear from the Ottawa conference, over 600 projects have been designated by and the many similar meetings held throughout governments and organizations as demonstration 1987, that homelessness is not confined to the projects. These focus on basic problems such developing countries. It is, as the Executive as providing or improving shelter; access to safe Director of UNCHS (Habitat) has suggested, a drinking water, sanitation and waste disposal; truly global phenomenon, and one which in­ generating jobs in the formal or informal con­ volves more than simply the presence or ab­ struction sector; improving environmental con­ sence qf shelter. Urbanization, economic and ditions; upgrading infrastructure and services for social policies and human settlements develop­ the poor, including roads, public transporta­ ment, broadly conceived, all have direct effects tion, energy, health, social, educational and rec­ on shelter conditions and consequently must be reational facilities; and providing low-cost build­ addressed through systematic and sustained pro­ ing techniques and materials, especially through grams of action.9 more widespread use of indigenous methods, At the Tenth (Commemorative) session of the skills and construction materials.n Commission on Human Settlements in Nairobi, In addition to projects of a physical character, Canada together with the other member coun­ nations are also reviewing and strengthening tries, endorsed the position adopted by UNCHS policies, as well as legislative, organizational and (Habitat) in its Global Report on Human Settle­ financial measures (conventional and non- ments; it states that future economic and social conventional). Co-operation between the devel­ progress as well as political and social stability oping and developed countries has resulted in will to a large part depend upon, and be an increased international commitment toward determined by, the human settlements policies achieving real and sustained improvements in and actions which are forged now and in the the shelter and living conditions of the poor years to come.10 The challenge is to combine, and disadvantaged by the year 2000. in the most optimal manner, the organizational The progress to date however, has to be seen capacity of the Non-governmental Organizations within the context of the sobering conclusions (NGOs) and the poor, with government's abil­ from the world commission on environment and ity to intervene in the crucial areas of land, development {Our Common Future). Human resource mobilization, infrastructure and the settlements in the developing countries are grow­ use of appropriate technology. It was also rec­ ing at rates which are exponential by historic ognized that such a combination of resources standards: from 2 to 10 per cent each year. At and policy instruments must go hand in hand such a pace, more than two billion people will with the establishment, on the part of govern­ be inhabiting cities and towns in the developing ment, of an administrative and management world by the end of the century, a three-fold framework conducive to successful policy and increase from the level of 1970. As a result,in project implementation. the space of only fifteen years, the developing Toward this end, a major feature of the IYSH world will have to increase by sixty five per is to test through demonstration projects, cent, its capacity to produce and manage its existing and new ways to augment or facilitate urban infrastructure, services and shelter, merely the efforts of the poor and disadvantaged to to maintain present conditions.12 improve their shelter and neighbourhoods. To While considerable attention has been focussed date, 139 governments have established national on the problems of the developing countries, focal points to oversee programs for the year; growing evidence indicates that there can be no INTERNATIONAL YEAR

cause for complacency regarding the scope and ity deficiencies among homeless people.13 scale of homelessness in the developed world. In the Canadian context, what may be one of Indeed, the IYSH has served to focus attention the enduring and hopefully significant contribu­ on the fact that despite the relative affluence of tions to the International Year involves an anal­ countries in the developed world, homelessness ysis which conceptually differentiates the sources continues to be a prevailing and in some cases of homelessness from their ultimate manifesta­ a pervasive phenomenon. Analyses of home­ tion, homeless people. While obviously inter­ lessness among the European Economic Commu­ related, there are nevertheless important differ­ nity and in North America suggest that the ences in these concepts and consequently in homeless are becoming more economically and the types of intervention strategies which are socially diverse, and that the sources of home­ required to resolve the problems associated lessness have their roots in the structural condi­ with them. tions of these societies rather than in personal­

SOURCES OF HOMELESSNESS IN in others they have been spatially and tem­ porally episodic. While certainly not a new CANADA phenomenon, homelessness has proven to be remarkably resilient despite periods of economic The current report is the result of research prosperity and social reform.16 involving the national and provincial IYSH Analysis of current data suggests: focal points and local organizations in the ten Homelessness in Canada results from the provinces and two territories that allowed the confluence of social, economic, political and identification of fundamental Canadian issues: physical factors which combine in particular ways and at varying spatial and temporal scales. (1) who are the homeless in Canada; One or more of these factors can act as a (2) what are the principal sources of home- precipitant which triggers other sources of lessness; homelessness, and these in turn significantly (3) what are the necessary and contingent impact the lives of different segments of society. relations between the two? The main precipitants of homelessness in Canada include: This approach recognizes the importance of (1) Unemployment, underemployment and unambiguous and contextually relevant defini­ unemployability (2) Poverty tions before proceeding to qualitative and quan­ 17 titative analyses. (3) Lack of affordable housing A review of recent Canadian reports and (4) The breakdown of the traditional family surveys published in response to the IYSH structure (5) Inadequacies and inequities in the provision indicates that there is as yet no general consen­ 18 sus as to the most reliable definition of of social welfare homelessness.14 It is a phenomenon which is (6) Lack of diversified community support sys­ difficult to define and measure accurately, since tems for the deinstitutionalized it involves more than simply the presence or (7) Displacement occasioned by urban revitaliza- absence of shelter. No single causal factor has tion. been found which exclusively or successfully Based on the relative nature of homelessness explains why people become homeless, and and bearing in mind its diverse causes, home­ consequently, no singular intervention stratagy is lessness in Canada can be defined as: likely to resolve what is in effect, the manifes­ tation of a series of synergistically related The absence of a continuing or permanent conditions.15 home over which individuals and families Homelessness is linked to a complex set of have personal control and which provides the conditions which are affecting an increasingly essential needs of shelter, privacy and secu­ broad spectrum of society. It appears to be a rity at an affordable cost, together with ready predominantly urban centred, socio-economic access to social, economic and cultural pub­ and physical shelter problem, deeply rooted in lic services. regional disparities, and closely related to op­ portunities for meaningful economic participa­ This intentionally broad definition eschews tion. In certain regions of the country the alternative formulations which regard home­ problems traditionally have been chronic, whereas lessness as being either a temporary phenome- 9 a> INTERNATIONAL YEAR CD CD CD CD CD CD CD CD CD CD CD non, or one which can be traced to a single fact that the homeless are a continually moving CD cause which by inference, is amenable to a and shifting population. Traditionally, enumera­ CD linear or singular solution. Because homelessness tion is based upon an address; but the home­ CD results from the inter- relations among a num­ less have no address. In addition, enumeration CD ber of contributing sources, its effective resolu­ confronts other issues: who should be included, tion will entail multi-dimensional responses. and why? If only those who have no shelter are CD The above definition implicitly assumes that counted, a low estimate results; if those who CD homelessness in Canada is subject to public use emergency shelters are included, a larger CD policy resolution, of which employment and number results. However, if the definition of CD housing are vital, but not exclusive parts. It the homeless is correlated with the principal CD also recognizes that solving homelessness is not, sources of homelessness as outlined above, a CD and cannot be exclusively a matter for govern­ much greater figure is involved. CD ments. The viability of systematic, sustained and The precise number of homeless nationally or CD cost-effective strategies to alleviate problems of in any one of the major cities at any given CD urban poverty and homelessness rests with the time depends upon the definition chosen, and CD willingness and commitment of the public and on the descriptive boundaries of selected so­ CD non-governmental sectors to co-ordinate their cial, economic and geographic factors. Since CD efforts and to work in concert with the poor these criteria have not been consistently ap­ and disadvantaged. Canada has the resources plied in local studies, the estimates which have CD and the capability to eradicate homelessness; it been produced must be interpreted with caution: CD must now harness the current political will and CD demonstrate its continuing commitment. no reliable and accurate count of home­ O less people in Canada currently exists. O O NUMERICAL ESTIMATES Prior to the findings of the National Inquiry O The current political debate over homelessness on Homelessness by the Canadian Council on o in economically advanced countries such as Social Development in September 1987, it was o Canada and the United States is best under­ generally suggested that there were between o stood as a contest over the policy status this 20,000 and 40,000 homeless people across issue will eventually obtain. It could break Canada.20 These figures were based on esti­ o through into the arena of serious public mates derived from studies of the use of emer­ o consideration and public action, or it could gency shelters and soup kitchens, and generally o be dismissed as relatively insignificant and correspond to those who have been classified as o gradually blend into the accepted order of "street people".21 o things. This explains why much of the pub­ The CCSD generally agreed with this estimate, o lic discussion of homelessness, at this stage of although their first report in 1986 defined o its development as a public issue, is preoc­ homelessness as being synonymous with poverty, o cupied with making numerical and normative and evidence was produced indicating that o claims.19 there were over 4.5 Million people in Canada o living in poverty. When the results of the o Establishing reliable estimates of the homeless National Inquiry on Homelessness were released, o is complex, difficult and sometimes confusing. the estimate had been revised to either 100,000 o 12 A large part of the confusion stems from the (the number of beds provided to the homeless o o and destitute during 1986), or between 130,000 monotonous regularity, into the tangled web of - 250,000 (those who do not have secure homes the social service system; re-emerging frustrated, and those whose housing is grossly inade­ out onto the streets to continue a well-defined quate).22 but essentially meaningless itinerary until it is Effective and continuing governmental policies dark enough to hole up for the night, perhaps to alleviate homelessness demand a reliable, with some distilled elixir to block out the fear factual base. To date most surveys have revealed and loneliness for a short time. definitional, conceptual, and methodological These homeless individuals, the flotsam and inconsistencies, which threatens government sup­ jetsam of urban society, are not a new phe­ port, particularly at the provincial level. nomenon to anyone familiar with urban life. While the importance of reliable numbers and What is new and disturbing is that they repre­ the need for accurate measurement and valid sent only a fraction of the homeless in Canada statistical analysis are recognized as important today. The homeless are the visible tip of a and pressing problems, their absence should situation whose roots are to be found in the not delay immediate and concerted action. The structure of Canadian society - homelessness. lack of absolute and accurate numbers cannot Increasing interest in and concern for the home­ become an excuse for the lack of public and less have produced a rich and varied assort­ private initiatives to reduce homelessness. The ment of descriptive vignettes and "human inter­ 23 issue should not be establishing a grand numeri­ est" stories in the media. Usually evocative cal total (a highly suspect enterprise given the and often sensational, they reflect a growing, synergistic nature of the issues), but rather albeit reluctant recognition that there are home­ determining the causes and effects of the struc­ less people who do not fit the traditional stere­ tural transformations which are occurring, and otype of the indigent vagrant who has opted eliminating the incidence and the risk of out of society and into a bottle. Opinions differ homelessness through public policies at appro­ widely as to the exact numbers involved, and priate levels. more particularly, on the reasons why people become homeless in such an affluent and civi­ lized society. While there is no consensus on CANADA'S HOMELESS the scope and scale of the problem, or indeed In practically every Canadian city there are that a problem exists, with each additional homeless people who for a variety of reasons, newspaper article, television and radio report, and for varying lengths of time, sleep in door­ journalistic expose and academic treatise, the ways, under bridges, in derelict buildings, in reality of what is all too often an unwanted back alleys, in the parks, or in makeshift shel­ situation is slowly permeating the Canadian ters which are dismantled with the first light consciousness. It remains to be seen whether of dawn. During the day they may wander the the interest which has been generated by the streets, trying not to appear conspicuous so as media will become the catalyst for a new not to draw undue attention to themselves. public policy and action resulting in the elimi­ Their routine often involves frequenting public nation of the causes of homelessness. buildings or the sympathetic drop-in centres The homeless are not homogeneous - their which afford some respite from the daily drudg­ social, economic and demographic diversity ery of securing food at the soup kitchen or the make them difficult to quantify or classify. food bank; entering the revolving door with However, from a variety of documentary sources INTERNATIONAL YEAR

and field observations it is possible to identify a significant reductions in low cost rental spectrum of categories which make up a con­ accommodation; tinuum from the "urban nomads" who inhabit * * the non-urban homeless including, inter the streets or take refuge in the emergency alia, rural farm workers and on-reserve shelters, to the growing number of Canadians natives.24 who are "at risk" of becoming homeless be­ cause of their fragile hold on economic and What defines Canada's economically disen­ social stability. franchised and socially marginalized homeless From the conferences, regional workshops and is the lack of a home. reports which occurred prior to and during As a result of the various reasons for and the International Year, evidence suggests that precipitants of homelessness, there are, to var­ significant increases have occurred in the inci­ ying degrees: dence of homelessness among: * * people with no physical shelter for varying * * seasonally, temporarily or chronically un­ lengths of time; employed men and women; * * people who have no permanent shelter; ** the underemployed and so-called "new * * increasing numbers relying on emergency poor" whose economic marginality places shelter for sustained periods; them at risk; * * people living in inappropriate or substand­ * * the unemployable and socially marginalized; ard dwellings for which they are paying * * single parent families, especially young in excess of 30% of their income; mothers with children; * * those whose housing security and stability * * mature and older women and men living are highly susceptible to changes in pro­ alone; vincial policies and local economic condi­ * * disaffected youth, euphemistically identified tions. as runaways, some of whom have only recently entered their teens; Until recently, a common perception was that * * Native Canadians, particularly in western the homeless were "skid row bums or bag Canada, who have moved to the major ladies". This stereotype served a double func­ cities in search of jobs and better living tion of allowing people to separate "them" conditions, but who are significantly at from "us", and also to enable society to differ­ risk because of limited skills and problems entiate between the "deserving" and the coping with urban life; "undeserving" poor. The literature contains many * * deinstitutionalized people, particularly but depictions of "life on the skids" and the not exclusively the mentally ill, who lack "demise" of the indigent who are unable to diverse community support systems; retain their prescribed place in mainstream * * the physically disabled for whom home­ society, serving to reinforce and legitimate nega­ lessness is as much a design and environ­ tive stereotypes. While images depicting the mental issue as it is a social and economic homeless are changing in response to more concern; thorough investigation and analysis, adverse * * long time residents of inner city communi­ public reaction and prejudice persist. It is still ties experiencing displacement brought common to hear that the homeless are lazy, 14 about by gentrification, revitalization and shiftless, or undisciplined; that they are living off the largesse of the state, or that they choose to be homeless. Many programs and activities during the IYSH have served to dispel some of the prevailing myths in Canada and around the world. The homeless in Canada are invariably poor and usually rely upon government to provide social assistance. Obtaining accommodation which is affordable, secure and adequate for the needs of an individual or family must be seen within the context that there is not one single jurisdiction in Canada where social assistance allowances meet the poverty level, let alone are above it.25 The suggestion that people choose to be homeless is based on the argument that there is sufficient housing for all Canadians, and as a result, no one need be homeless. However, recent reviews of the shelter options available to the poor, including emergency shelters, rooming houses, dormitories and hostels, reveal that as the more secure and affordable alterna­ tives disappear, a range of "inappropriate" shel­ ter options are by default becoming permanent quarters for some (including abandoned build­ ings, public spaces, emergency shelters and hostels). None of these options constitute an adequate home. They reinforce and perpetuate homelessness and do little to address the con­ flict inherent in the structure of the economy which pits the needs of the poor and unem­ ployed against the marketplace; or relegates them to fragmented public support systems which differ considerably from province to province.26 n

CANADIAN INITIATIVES DURING THE INTERNATIONAL YEAR

The government of Canada, in co-operation REGIONAL INITIATIVES with the provinces, territories, the housing Activities initiated during IYSH varied considera­ industry and public interest groups organized bly among the ten provinces and two territo­ many programs throughout 1987 to focus at­ ries. Specific initiatives included the establish­ tention on the national and international need ment of provincial secretariats in Ontario and for shelter for the homeless. Canada Mortgage Quebec, inter-ministerial committees, advisory and Housing Corporation in addition to an committees representing the various regions expanded social housing program developed a and interest groups, as well as conferences, five-point action program in consultation with surveys, competitions and research studies. In other federal departments to observe the Inter­ many of the regions, specific community-based national Year including: support programs, as well as shelter and hous­ (1) Acting as the national focal point for IYSH ing projects were developed as part of a com­ for the purpose of: mitted effort to improve the living conditions * * identifying and publicizing housing poli­ of the poor and disadvantaged. These included cies and projects that will have a practi­ strategies to raise public awareness and con­ cal, worthwhile, concrete and lasting ef­ cerns regarding homelessness and the needs of fect on the improvement of housing the homeless. conditions; The following illustrates the range of activities * * receiving and distributing information about generated across Canada during the International IYSH activities; Year: * * encouraging provincial, territorial, non­ In the Atlantic provinces (Nova Scotia, New governmental and private sector participa­ Brunswick, Prince Edward Island and New­ tion under the Canadian program for the foundland/Labrador), and the two territories IYSH. (Yukon and Northwest Territories), IYSH-related (2) Providing grant aid to UNCHS (Habitat) to activities were generally incorporated into existing assist developing countries to participate in and ongoing housing programs for the poor IYSH, and partial funding to non-govern­ and disadvantaged. Rather than establish new mental and private sector organizations to initiatives or homeless-specific programs, the help them observe the year in Canada. governments reviewed their policies and programs (3) Providing annual status reports about IYSH for allocating and targeting social and public and related housing activities in Canada to housing units, and attempted to address the UN sessions dealing with IYSH. needs of the homeless using existing resources. (4) Undertaking and funding studies outlining the In Prince Edward Island for example, 170 evolution of housing and future prospects new units of housing are being constructed for housing in Canada. during 1987/88 for low income households, (5) Designating demonstration projects that meet financed through a combination of federal and UN-IYSH criteria, and have practical, con­ provincial government programs. Three family crete and lasting effects on the improvement housing projects (totalling 20 units), three sen­ of housing conditions; and making this in­ ior citizens housing projects (15 units), and formation available as required under the three group homes for adolescents (space for IYSH program. 22 children), are being constructed by the pro­ The Canadian focal point program of action vincial housing corporation with federal assis­ for 1987 is described at the end of this section. tance under the public non-profit housing pro- CANADIAN INITIATIVES

gram. Canada Mortgage and Housing Corporation level, focussing on priority areas including pub­ is financing approximately 72 of the 170 new lic housing tenants; finance; education/resource units as private non-profit housing for families planning; design and community planning, and and seniors, 30 units as rural and Native hous­ worker co-operatives. The conference and the ing and 8 as rent supplement units. The initia­ action which it initiated established the basis tives during the IYSH are similar to those of for effective improvement in the living condi­ previous years (144 units 1985/86 and 135 tions for women in Atlantic Canada which may units 1986/87), and reflect a well established be replicable in other regions.29 and effective relationship between the federal The largest number of IYSH activities were and provincial governments.27 undertaken in Quebec and Ontario, where the In New Brunswick, a similarly effective part­ provincial governments established separate sec­ nership exists between the federal and provin­ retariats to plan and co-ordinate IYSH activities. cial housing corporations resulting in the pro­ In Quebec, a plan of action for the IYSH duction of a wide variety of social housing (AILSA) was co-ordinated by the Societe d'habi- programs including a federally assisted residen­ tation du Quebec, and has been successful in tial rehabilitation program for homeowners and bringing agencies working with the homeless those disabled, non- profit housing; rent supple­ and the poorly housed into closer contact; ment; rural and native housing; emergency implementing programs and projects to help repair program and the co-operative housing solve the problems facing homeless people in program. Provincial programs include home Quebec particularly in the short and medium improvement loans, basic shelter and public terms; and raising the awareness of the people housing units. In the 1987/88 fiscal year the of Quebec to the problems faced by the home­ provincial housing corporation is expecting to less locally, nationally and internationally.30 expend $44,522,000 on social housing includ­ In Ontario, the Ministry of Housing funded a ing $14,741,000 on RRAP/HIL, up to $16,220,000 special housing initiative to help non-profit on non-profit housing (increasing the stock by housing sponsors produce 3,000 rental housing 328 units), and $13,561,000 on 227 rural Native/ units for a broad range of groups, but particu­ basic shelter units.28 Nova Scotia participation larly homeless individuals, battered spouses, physi is discussed subsequently. cally, developmentally and psychiatrically-handi- One of the significant activities arising from capped adults, and low-income single persons. IYSH-related initiatives in Atlantic Canada was The 3000 units are in addition to the 6,700 the Atlantic Women and Housing conference in units coming on-stream under the federal-pro­ April 1987. The conference became a catalyst vincial non-profit housing program in 1986. for women's groups to come together and iden­ Also, as part of a comprehensive action plan, tify major housing issues, and through their funding (in amounts not exceeding $10,000) collective efforts, plan and implement appropri­ was provided for projects which "propose ap­ ate solutions. Housing issues identified included propriate and innovative solutions to homeless- tenant protection, income policies, community ness, raise public awareness of homelessness or development and education, domestic violence, add to the knowledge of homelessness in On­ changes to current housing policy, minimum tario." A total of 44 projects received funding standards/zoning and housing for Native women. assistance from approximately one hundred Task groups were established to plan and co­ applications. The secretariat also assisted with ordinate strategies of action at the community the organization of a series of regional work- shops which brought together local organizers regions. The Societe d'habitation supported the and administrators whose work affects the renovation of rooming houses (for example, homeless, to discuss and share information on L'Auberge Communautaire du Sud Ouest, Chambre the problems, needs and innovative solutions en Ville, and Maison Ste. Dominique in Mon­ related to homelessness. As with the other treal), to compensate for the loss of almost half regions across the country, Ontario implemented of the existing stock since 1977. a general public awareness/communications strat­ In Quebec, the IYSH initiatives were instru­ egy which was targeted to local governments, mental in drawing attention to the problems communities, businesses, churches, service pro­ associated with homelessness among two groups, viders and educational institutions.31 youth and women, and also on the severity of An IYSH secretariat was given the responsibil­ the housing problems among different sub-sections ity of co-ordinating activities among four Min­ of the provincial population. A report by the istries (Health and Social Services, Manpower homeless committee to the municipal council in and Income Security, International Relations, Montreal has been particularly instrumental in and Municipal Affairs), and three secretariats highlighting the increasing risk of homelessness (Youth, the Status of Women, and Intergovern­ facing those who depend upon low cost mental Affairs), to reduce homelessness. rooming houses.32 $2,500,000 was made available to the Societe Initiatives varied considerably among the four d'habitation for special projects relating to the western provinces (Manitoba, Saskatchewan, Al­ IYSH, including $2 million allocated to organi­ berta and British Columbia), reflecting in part, zations working with the homeless to provide the degree of co-operation between the provin­ furnishings and equipment. In addition $400,000 cial governments and non-governmental organiza­ was allocated for special projects providing di­ tions, but also, indicative of the public policy rect or indirect aid to the homeless, research, significance ascribed to the issue. In Manitoba, consciousness raising and two pilot projects. A for example, considerable effort was made by further $100,000 was budgeted for a communi­ the provincial Ministry of Housing to spearhead cation plan to publicize and promote activities inter-ministerial action toward incorporating throughout the province. housing and support services into the on-going A major aspect of the plan formulated by the social and public housing programs, thereby Societe d'habitation involves the investment of integrating solutions to homelessness within the $13 million for special projects for the perma­ broader society.33 The focus in Alberta, on the nently and temporarily homeless. To this end, other hand was on improving the housing con­ 118 case reports were analyzed, 55 dealing with ditions among the rural and Native Indian the temporarily homeless and 63 with the communities in the northern part of the prov­ permanently homeless. A jury representing both ince, and surveying the needs of the urban the federal and provincial housing corporations homeless in the large metropolitan centres.34 A and other provincial ministries was established similar initiative was established in Saskat­ to select proposal calls for new shelters for the chewan.35 In British Columbia, IYSH-related ac­ homeless. A total of 567 units (rooms, beds tivities were initiated principally by non-gov­ and bachelor apartments) in forty-two housing ernmental organizations, building upon the tradi­ projects were selected, 27 (59%) of them for tional foundations established by the charitable the temporarily homeless and 15 (41%) for the organizations and church groups. These included permanently homeless, primarily in the Montreal a conference held at the University of British (59.6%) and Quebec City (21.1%) Metropolitan Columbia in May 1987.36

TRADITIONAL SUPPORT FOR THE efforts of these individuals and groups over the POOR AND DISADVANTAGED many years, and to look for "solutions" with­ out consultation from those whose very exist­ Canada's voluntary sector has a rich and accom­ ence over such a long period of time must be plished history of providing assistance to the indicative of at least some measure of success. homeless, poor and disadvantaged, particularly When the International Year has come and through church groups, charitable and not-for- gone, these groups will continue to support profit organizations. While there has also been a and advocate on behalf of the homeless and to considerable increase in the media attention focus attention on the causes of homelessness focussed on the homeless and those providing in Canadian society. Their contributions have assistance and relief, there has also been a been, and will continue to be highly effective tendency at times to overlook the relentless and essential in finding lasting solutions.

CANADIAN FOCAL POINT PROGRAM OF ACTION - 1987.

PROJECT: HOUSING PROGRESS IN CANADA: PERSPECTIVES AND PROSPECTIVES

PARTICIPANT: CANADA MORTGAGE AND HOUSING CORPORATION (CMHC)

PROJECT. HALIFAX METRO DEMONSTRATION PROJECT

PARTICIPANTS: PROVINCE OF NOVA SCOTIA CITY OF HALIFAX CITY OF DARTMOUTH TOWN OF BEDFORD HALIFAX COUNTY CMHC

PROJECT. INTERNATIONAL CONFERENCE: NEW PARTNERSHIPS - BUILDING FOR THE FUTURE

PARTICIPANTS: CANADIAN ASSOCIATION OF HOUSING AND RENEWAL OFFICIALS INTERNATIONAL COUNCIL ON SOCIAL WELFARE CMHC CANADIAN INTERNATIONAL DEVELOPMENT AGENCY (CIDA) PROVINCE OF ONTARIO

•"-)

PROJECT. ENHANCEMENT OF THE CONTRIBUTION OF CANADIAN NON-GOVERNMENT, PROFESSIONAL, AND PRIVATE ORGANIZATIONS IN MEETING THE SHELTER NEEDS OF THE HOMELESS

PARTICIPANTS: ROOFTOPS CANADA FOUNDATION CMHC CIDA

PROJECT: A SURVEY TO ASSESS THE SITUATION OF THE HOMELESS, AND A SERIES OF 10 WORKSHOPS, ONE IN EACH PROVINCE OF CANADA, TO PROVIDE A FORUM TO DISCUSS LOCAL LEVEL SOLUTIONS TO PROVIDING SHELTER FOR THE HOMELESS IN CANADA

PARTICIPANTS: CANADIAN COUNCIL ON SOCIAL DEVELOPMENT CMHC

PROJECT. SYMPOSIUM TO DEVELOP AND RECOMMEND IMPROVED COOPERATION BETWEEN PRIVATE AND PUBLIC SECTORS TO MEET THE NEEDS OF LOW-INCOME HOUSEHOLDS

PARTICIPANTS. CANADIAN REAL ESTATE ASSOCIATION YORK UNIVERSITY CMHC

PROJECT. ATLANTIC WOMEN AND HOUSING CONFERENCE

PARTICIPANTS. NOVA SCOTIA ASSOCIATION OF SOCIAL WORKERS CMHC SECRETARY OF STATE

PROJECT. CASE HISTORIES OF AFFORDABLE SHELTER PROJECTS IN CANADA DESIGNED BY PROFESSIONALS

PARTICIPANTS: ROYAL ARCHITECTURAL INSTITUTE OF CANADA CMHC

PROJECT. HOLDING OUR GROUND, A FILM ABOUT WOMEN AND SHELTER IN THE DEVELOPING WORLD

PARTICIPANTS: NATIONAL FILM BOARD CMHC

PROJECT. CASE STUDIES OF SUCCESSFUL SOLUTIONS TO HOUSING THE HOMELESS IN CANADA PARTICIPANTS: UNIVERSITY OF BRITISH COLUMBIA CENTRE FOR HUMAN SETTLEMENTS CMHC

PROJECT. A SPECIAL THEME ISSUE OF WOMEN AND ENVIRONMENTS MAGAZINE ON HOMELESSNESS AS IT AFFECTS WOMEN

PARTICIPANTS: WOMEN AND ENVIRONMENTS CMHC

PROJECT. BRIEFING PAPER BY THE UNITED NATIONS ASSOCIATION IN CANADA ON THE TOPIC OF SHELTER AND THE HOMELESS

PARTICIPANTS: UN ASSOCIATION IN CANADA CMHC EMPLOYMENT AND IMMIGRATION

PROJECT. CONTINUING ANNUAL SUPPORT FOR INFORMATION PROGRAMS IN CANADA, THE U.S. AND THE CARIBBEAN

PARTICIPANTS: UNCHS (HABITAT) CMHC YORK UNIVERSITY FACULTY OF ENVIRONMENTAL STUDIES CENTRE FOR HUMAN SETTLEMENTS, UNIVERSITY OF BRITISH COLUMBIA

PROJECT. CIDA INITIATIVES IN SUPPORT OF IYSH

PARTICIPANTS: CANADIAN INTERNATIONAL DEVELOPMENT AGENCY (CIDA) FEDERATION OF CANADIAN MUNICIPALITIES SELECTED CANADIAN SOLUTIONS

CRITERIA FOR SELECTION tat) established a series of criteria to guide the The United Nations and UNCHS (Habitat) in­ design, selection, implementation and monitoring tended the IYSH to be a transition period of projects to ensure some degree of compara­ rather than an end in itself. 1987 marks the bility among participating countries. To be transition between the demonstration and testing considered a shelter demonstration project as phase (1984-1986) of a range of options and defined by UNCHS (Habitat), projects must: methods for practical action, and their incor­ poration and widespread application during 1988 (a) serve that segment of the population which - 2000 in new or strengthened national strate­ is considered by national definition to have gies, policies and programs.37 an income below the poverty line; Through the use of "shelter demonstration (b) contribute to or result in a clear and projects," special efforts are being made to visible improvement in the shelter or neigh­ examine the contribution of housing and settle­ bourhoods of at least some of the poor and ments programs to economic and social devel­ disadvantaged by 1987; opment, to assess their policy implications and (c) either benefit all of the nation's poor (for to provide an improved basis for developing example: special legislation and regulations) new policies and institutional arrangements. The or contain development features in support of aim is to strengthen housing and settlement the poor which can be replicated at least in programs on the one hand, and economic de­ other locations within the country, and pref­ velopment policies and plans on the other. erably in other nations; Such an approach recognizes that successful (d) lead to affordable improvements for many provision and improvement of shelter and re­ of the poor and disadvantaged rather than lated infrastructure and services for the poor major improvements for a few; and disadvantaged must be pursued as an inte­ (e) seek a practical balance between what is gral part of national and regional development desirable (in terms, of basic health require­ strategies.38 ments and structural safety), attainable (tech­ Shelter demonstration projects reflect two of nically, administratively, and using local skills, the fundamental principles of the IYSH: methods and materials), and affordable by the poor themselves and the nation as a whole.39 (a) action to meet the basic shelter and neigh­ In addition, projects must demonstrate support bourhood needs of the poor can only be for one or more of the eight action areas effective within the context of national and identified by UNCHS (Habitat): local strategies; (b) solutions to shelter and neighbourhood needs ought to be defined and implemented DEVELOPMENT ACTION by the poor themselves, supported by the effective technical skills, professional experi­ SHELTER provide and improve shelter, ence and resources of local and national particularly through individ­ governments. ual and community action The projects are intended to explore, test and SERVICES provide and improve com­ demonstrate existing or innovative ways and munity facilities and serv­ means of improving the shelter and neighbour­ ices for the majority of the hoods of the poor. Accordingly, UNCHS (Habi­ poor and disadvantaged CONSTRUCTION extend the use of local ma­ eral government providing selected program terials, methods and skills support and incentives for development. Within Canada's mixed market economy, settlement EMPLOYMENT generate jobs in the formal investments and expenditures usually are made and informal construction by private enterprise with infrastructure sup­ sectors port provided by local and provincial govern­ DEVELOPMENT SUPPORT ments. Traditionally, there has also been sub­ ACTION • stantive leadership and assistance provided by the charitable and voluntary non-governmental LEGISLATION include special provision in organizations. & REGULATION national policies, legislation The vitality and resilience of the contempo­ and regulations for security of rary Canadian settlement system are therefore tenure and improved services intimately linked to regional, provincial and for the poor and disadvantaged national economic development strategies in MANAGEMENT extend institutional and finan­ which public policy responsibility for the growth & FINANCE cial arrangements to help the and development of settlements rests with the poor and disadvantaged im­ provincial governments, with the mixed market prove their shelter and neigh­ economy creating the setting for a public/private bourhoods. sector partnership. Accordingly, effective solutions to homelessness in Canada must be based not RESEARCH identify and test low-cost tech­ only on the reliable identification of those fac­ niques for construction and tors which precipitate or exacerbate homeless­ upgrading of community serv­ ness, but also on identifying the ways in which ices, especially those using the relevant factors combine at various spatial local materials, methods and and temporal scales. Then it becomes possible skills to ascertain what specific contributions by the EDUCATION provide education, training and three levels of government, and the private and TRAINING & information for the improve­ voluntary sectors, can provide the most appro­ INFORMATION ment of local construction priate and practical balance between what is capability and community desirable and what is affordable, attainable and organizational skills.40 where possible, replicable in other jurisdictions across the country. The criteria established by UNCHS (Habitat) The criteria used in the selection of Canadian provide a general framework for identifying initiatives to solve homelessness are generally demonstrable methods for resolving homelessness. consistent with those established by UNCHS However, their applicability in the search for (Habitat), while reflecting the unique constitu­ effective solutions to homelessness in Canada tional, geographic and socio-economic variations must be viewed within the context of the which influence the way homelessness mani­ country's federally constituted system of govern­ fests itself across the country. With the co­ ment. Settlement policy and the strategic man­ operation of the provincially designated focal agement of settlements in relation to economic points for IYSH activities, and many individuals and social development are a provincial responsi­ and organizations working directly with the bility under Canada's constitution, with the fed­ homeless across Canada, it has been possible to 27 CANADIAN SOLUTIONS

establish strategic correlations between the main possible, the descriptive text has been comple­ sources of homelessness in different geographic mented by relevant graphic information. locations, the specific groups of the homeless The specific Canadian criteria reflect the pre­ most directly affected, and types of intervention vious analysis, and are functionally related to strategies established to reduce homelessness. the sources of homelessness identified, and to The types of successful intervention strategies the economic and social diversity among the chosen fall into two categories: one to assist homeless. The criteria include-. the homeless directly,.the other to eliminate (1) Initiatives which are designed to assist the homelessness. They range from public policy homeless, and those which reduce home­ implementation to the establishment or reinforce­ lessness; ment of community based support programs, (2) Policies, programs and projects to demon­ and to specific shelter and housing projects strate that shelter solutions alone are not designed for emergency, transitional or perma­ sufficient to eliminate homelessness; nent use. They also reflect the economic and (3) Solutions which reflect the constitutional social diversity among the homeless in Canada jurisdiction of the provinces in the area since it is now apparent that the needs of of public policy determination and imple­ different categories of the homeless are not the mentation; same, and consequently solutions to their prob­ (4) Geographic representation to reflect the lems will not be the same in all cases. The range of conditions which contribute to examples which follow illustrate the variety of homelessness; solutions which are currently being tested in (5) Geographic representation to reflect the Canada. The list is not intended to be exhaus­ spatial distribution among different cate­ tive, nor does it presuppose that a specific gories of the homeless across Canada; initiative is restricted to the geographic region (6) Initiatives which highlight the critical role identified (or concomitantly that a given region played by non-governmental organizations, contains only the type of initiative identified). A the voluntary sector and charitable groups framework has been developed which provides While the criteria outlined above were devel­ a synopsis of the policy, program or project oped in response to analyses of the scope and under consideration. This is followed by a scale of homelessness in Canada, they may also more detailed description of the specific goals represent a contribution to the global under­ and objectives of the initiative, the target group standing of types of successful strategies to to which it is principally directed, and the address structural conditions related to home­ results of any preliminary evaluation. Wherever lessness.

28 DEMONSTRATING SUCCESSFUL Government response must be predicated on a systematic process whereby federal funds and INITIATIVES local government support is co-ordinated with, Any lasting solution to homelessness requires and has as its foundation, the development a committed partnership combining the resources and implementation of provincial public policies of the federal/provincial/municipal governments which reflect regional differences and jurisdic­ with the ability of private market investment, tion. Such an integrated approach requires the held together by the continued enthusiasm of provision of appropriate short term, medium volunteer and charitable institutions, and in­ range/transitional shelter and permanent housing cluding the homeless themselves - - co-operating in appropriate locations at a human scale, in to improve local and regional living and hous­ conjunction with the provision of and ready ing conditions. Specifically, resolving homelessness access to locally available social and economic in Canada requires the concerted partnership services. Access to and provision of these serv­ of six groups: ices involves financial support, social counsel­ ling and a process of aided self-help, plus (a) The homeless themselves, to identify needs, training and re-training to increase employment expectations and aspirations; opportunities. It requires rehabilitation and pre­ (b) the volunteer and local charitable organiza­ vention of sickness, disease, and substance tions with extensive pioneer experience in abuse, to improve health and personal strength. providing shelter and temporary health and The rehabilitation of the whole person, able food services for the poor; and willing to manage his or her own life and (c) private industry providing investment, con­ be responsible for his or her own needs and tracting and building services; the needs of their respective families must be (d) the municipalities and local governments who the goal. Access to and provision of services influence location and availability of land alone will not help the homeless. Simply ware­ and buildings for housing projects, while housing the poor in old or new buildings will being responsible for establishing norms not help either. Resolving homelessness requires and regulations through local by-laws and an integrated and concerted attack involving ordinances; new partnerships and the effective use of pub­ (e) the provinces and their agencies who have lic, private, and co-operative resources, build­ the Canadian constitutional jurisdiction for ing on the substantial success achieved by indi­ housing and social services. The provinces vidual charitable and non-profit organizations represent a major source of policy initia­ in Canada's major cities. tives and the critical opportunity for co­ Efforts to assist the homeless are currently ordinating the delivery of health and social initiated by local organizations, especially vol­ services to the homeless in relation to shel­ unteer and non-governmental agencies. Since ter provisions and appropriate accom­ homelessness is manifest principally at the com­ modation; munity level, these initiatives try to compensate (f) the federal government through its taxation for inadequate income, shelter or housing. power is able to raise and allocate appropri­ They are predominantly project or less frequently, ate resources to housing and social service program responses to immediate problems, and programs including social housing on a represent the first step toward providing long national basis. term solutions to chronic, structural problems. CANADIAN SOLUTIONS

At the Tenth (Commemorative) Session of the tial background information. Second, the type United Nations Commission on Human Settle­ of initiative (policy, program or project), and ments in Nairobi, Kenya, representative exam­ the principal objective (new construction, reno­ ples of resolving homelessness from four of vation of an existing building; the importance the largest urban centres were used to illustrate of the management structure or an emphasis on the variety of solutions which are currently providing support services), are identified in a being tested in Canada. Initial analysis revealed correlational matrix. Third, the source of home­ certain general characteristics which were sub­ lessness addressed, the homeless group(s) tar­ sequently used to construct a framework within geted and the type of solution demonstrated which to correlate the main initiatives. are displayed along the vertical axis of the The framework contains four related sets of matrix. Finally, the lessons learned from prelimi­ information in addition to the name, location, nary evaluations of the initiatives are docu­ capacity and geographic scale of the particular mented below the matrix. It should be noted initiative. First, details concerning the purpose, that the framework is primarily descriptive and duration and the relevant combination among as a result not all of the correlational squares the six partners are used to provide the essen­ will be used in every example.

30 NAME: INITIATIVE OBJECTIVE

LOCATION: 0 z Z h- 1—1 O z CAPACITY: a UJ 10 1- _i H 2: HI >- < u 1—» > HI O (_> a. HI CO > CD U> -3 O < > GEOGRAPHIC _l o 0 Z Z SCALE: o a. <* HI UJ < HI 0. Q. Z o: in

UNEMPLOYMENT IYSH PROJECT ? CO • U_ CO POVERTY • O HI AFFORDABLE HOUSING PURPOSE FAMILY BREAKDOWN INCOME SECURITY SOURC i ASSIST HOMELESS DEINSTITUTIONALIZATION HOMELE S REDUCE HOMELESSNESS DISPLACEMENT UNEMPLOYED WORKING POOR DURATION UNEMPLOYABLE SHORT TERM O ELDERLY CC <£> SINGLE PARENT FAMILIES TRANSITIONAL CO CO YOUTH LU PERMANENT _J DEINSTITUTIONALIZED sLU: o DISABLED NATIVE INDIANS PARTNERSHIPS NON-URBAN HOMELESS FEDERAL GOVERNMENT PROGRESSIVE ADAPTATION PROVINCIAL GOV'T FACILITATIVE MANAGEMENT STEWARDSHIP MUNICIPAL GOV'T COMMUNITY-SUPPORTIVE LIVING PRIVATE SECTOR NON-CONVENTIONAL FINANCING

NON-PROFIT AGENCY SOLUTIO N SECURE, AFFORDABLE HOUSING

DEMONSTRATE D CO-OPERATIVE PARTNERSHIPS POOR THEMSELVES POLITICAL COMMITMENT

LESSONS LEARNED:

31

QUALITY SHELTER AND AIDED SELF—HELP THROUGH n PROGRESSIVE ADAPTATION

D D Z) VANCOUVER, BRITISH COLUMBIA

VETERANS' MEMORIAL MANOR NAME: VETERANS' MEMORIAL MANOR 1 INITIATIVE OBJECTIVE

LOCATION: VANCOUVER, BRITISI\ COLUMBIA 19 Z t—* z 1- o CAPACITY: 134 units in 5-st(Dre y building j i o z 01 _i 1- UJ UJ < o n < 3E o H > a. UJ m > UJ *j CJ "3 o C9 »—» GE GR INNER CITY COMMUN o o z < ° SCALE- [TY 1" aL u. UJ UJ z > 4 <" a. a. z < UJ • a. T. (/I IYSH PROJECT ? UNEMPLOYMENT POVERTY AFFORDABLE HOUSING NHAIflB! £ PURPOSE FAMILY BREAKDOWN INCOME SECURITY I ASSIST HOMELESS SOURC E O F DEINSTITUTIONALIZATION w HOMELESSNES S REDUCE HOMELESSNESS DISPLACEMENT

UNEMPLOYED WORKING POOR DURATION D. UNEMPLOYABLE ZD SHORT TERM CD ELDERLY 1 t a: • • CD TRANSITIONAL SINGLE PARENT FAMILIES 1 CO CO YOUTH 1 LU PERMANENT _J • LU DEINSTITUTIONALIZED s: • o DISABLED 3= • PARTNERSHIPS NATIVE INDIANS 1 • NON-URBAN HOMELESS FEDERAL GOVERNMENT • PROGRESSIVE ADAPTATION jT PROVINCIAL GOV'T FACILITATIVE MANAGEMENT 1 STEWARDSHIP MUNICIPAL GOV'T • • COMMUNITY-SUPPORTIVE LIVING PRIVATE SECTOR • • NON-CONVENTIONAL FINANCING

NON-PROFIT AGENCY • SOLUTIO N 1 SECURE, AFFORDABLE HOUSING POOR THEMSELVES DEMONSTRATE D CO-OPERATIVE PARTNERSHIPS 1 • POLITICAL COMMITMENT f

1 n

LESSONS LEARNED: The oroiect exemDlifies the stewardship underlying the process whereby experienced public and private organizations can work with the homeless where they choose to live. It is possible to humanize the life-space of marginalized people without precluding previous community ties and associations.

0 Primary correlation 1 ^"Secondary correlation

34

VANCOUVER BRITISH COLUMBIA 310 Alexander Street; Quality Shelter and Aided Self-help Through Progressive Adaptation.

In Vancouver, many of the problems associated with homelessness are concentrated in the older downtown and eastside neighbourhoods, where older single men on welfare and the majority of World War II veterans who have chronic illnesses reside in Skid Row hotels and sleeping rooms when they are not sleeping "under the stars". Approximately 80% of the residents of the area receive some form of fixed income assistance or have incomes which are not keeping pace with the increases in the cost of living. Although it is considered by many to be a hard and unforigiving place, there is a strong sense of community in the area, and residents consider the local streets to be an extension of their living rooms. It is a milieu which is both home and a neighbourhood. A number of highly innovative initiatives have been designed for the long term residents of the downtown eastside, providing them with secure, affordable and quality accommo­ dation enabling them to live with dignity in the area of their choice. The projects demonstrate many ingenious, user-sensitive architectural and urban design features, which imaginatively over­ come or compensate for many of the difficulties which prevail. New and converted buildings have been designed in harmony with existing structures. The obvious efforts to have new projects enhance the sense of community reflect the long term commitments and personal ideals of those who work with the poor and disadvantaged in this area. A new five storey building containing 134 units for World War II veterans has recently opened for the long-term, hard to house residents of the area to enable them to regain choice and control over their housing, their environment, and ultimately their lives. At its core is a simple but vital concept: it is possible to humanize the life-space of marginalized people through a process of progressive adaptation, by combining physical shelter with aided social self-help and ready access to a range of essential support services. The five floors provide a reasonable upward progression of help and care from full dependence on staff (on the ground floor) to complete independence with private bathroom and kitchen for those who have learned to regain self management and health. Forty units on the first and part of the second floors are designed for

36 residents who require some degree of physical or health assistance. These units (185 square feet net) contain a sink, a bed and basic furniture. The remaining units are designed with larger space and more facilities for those who are able to function with less supervision. These units range from those with a toilet and sink only, to a bath and kitchenette, and ultimately to fully self-contained facilities. Funding for the $4.5 million project comes from three sources. Canada Mortgage and Housing Corporation provides assistance under the Non-Profit Rental Housing Program (approximately $324,000 per annum which is applied to reduce rental charges). Veterans' Affairs Canada has committed $50,000 annually over the next five years to cover additional service staffing costs. The City of Vancouver provided a write-down on the land lease to 75% of market value, thereby retaining public ownership and protecting against land speculation. A significant aspect of the building's management is the conviction of the staff that the residents require ready access to a variety of social and personal services all under one roof. The emphasis is on helping them to help themselves. Although there exists a built-in inspection system operated by the residents for the residents, the aim is not to enforce "rehabilitation", but to facilitate, encourage and support whatever developments or improvements in lifestyle that can occur. The attempt is "to put the paths where the people walk" by providing a safe and supportive environment that engenders self-respect. The project exemplifies the stewardship underlying the process whereby experienced public and private organizations can work with the homeless where they choose to congregate, and reflects the importance of having a committed partnership between, in this case, the Federal and Municipal governments co-ordinating efforts with the private sector and voluntary groups. The Veteran's Memorial Manor literally takes people off the street and provides them with the opportunity to put their lives back together in a supportive, sensitive environment. The building design includes a subsidized low cost public cafeteria called Club 44, for residents and the surrounding commu­ nity, reflecting the desire to maintain and strengthen long established community ties. It is intended that when veterans no longer require the units provided, they will become available to non-veteran homeless, and that ultimately, the success of this project approach can be replicated for other homeless and in other regions of Canada. it-CTYTlrtf- BTf^BT

LEVEL 1

LEVEL 2 VETERANS MEMORIAL HOUSING SOCIETY 300 BLOCK ALEXANDER ST. VANCOUVER BC

•we Y.WAI • jgtMCunnE ASSOCIATED ARCHITECTS

LEVELS 3-5 n-xrr- n—f* e 4

fe a ^ fl ear' I I T

i 4- 0-

VETERANS MEMORIAL HOUSING ! SOCIETY 300 fllOCK ALEXAHOCR 51 3 rf VANCOUVER BC VjM2E2a_ ^o m E \ ji-T J i" riff"'. r. UNIT PLANS

39 o

^ 1 1 --J

/I < J "J

- • •—» *•

y ** •• SECURITY OF TENURE FOR LOW-INCOME SINGLES IN ROOMING HOUSE SETTING

TORONTO, ONTARIO

90 SHUTER STREET m NAME: HOMES FIRST SOCIETY, 90 SHUTER STREET INITIATIVE OBJECTIVE LOCATION: TORONTO, ONTARIO o z 1—1 z o CAPACITY: 77 low-income singles in ll-storey building; 17 apartment a in I- UJ units with 4 or 5 single rooms per apartment >- < o < o o a. UJ CD > i—i »—» IS "3 o > GE0GR INNER CITY _i o 3 z a. SCALE; COMMUNITY o a. o UJ UJ UJ a. a. a. z (/> ^JL^ IYSH PROJECT ? UNEMPLOYMENT • 1 U_ GO POVERTY • O UJ AFFORDABLE HOUSING PURPOSE FAMILY BREAKDOWN mi ] [ ]•[ in INCOME SECURITY ASSIST HOMELESS SOURC E • • DEINSTITUTIONALIZATION • l HOMELES S • REDUCE HOMELESSNESS DISPLACEMENT [ ] EL1U UNEMPLOYED [1 - WORKING POOR n DURATION * UNEMPLOYABLE n ZD • SHORT TERM O ELDERLY [ i OH * <£> TRANSITIONAL SINGLE PARENT FAMILIES C/O oo YOUTH UJ PERMANENT _J • UJ DEINSTITUTIONALIZED E: o DISABLED • DC s • PARTNERSHIPS NATIVE INDIANS NON-URBAN HOMELESS n • FEDERAL GOVERNMENT u PROGRESSIVE ADAPTATION PROVINCIAL GOV'T \icl • FACILITATIVE MANAGEMENT LIU STEWARDSHIP MUNICIPAL GOV'T • f COMMUNITY-SUPPORTIVE LIVING [in PRIVATE SECTOR * NON-CONVENTIONAL FINANCING NON-PROFIT AGENCY • SOLUTIO N SECURE, AFFORDABLE HOUSING : 3 [] DEMONSTRATE D CO-OPERATIVE PARTNERSHIPS POOR THEMSELVES * * POLITICAL COMMITMENT

LESSONS LEARNED: Security of tenure based on adequate resources is considered a necessary prerequisite for this type of permanent housing. Jurisdictional responsibility for housing and support services can be problematic without political will to co-ordinate inter-ministerial actions. Flexibility in design permits groups to tailor their living spaces to their liking. Facilitative management approach promotes resident participation and sense of pride and belonging. TORONTO ONTARIO 90 Shuter Street: Security of Tenure for Low-Income Singles in a Rooming House Setting.

90 Shuter Street is a specially designed eleven storey apartment building in the downtown core based on the building form, management and social features of good rooming houses, to reverse the effects of inner city displacement. The clientele are the homeless who have been using emergency hostels as long-term housing and whose income is based on a variety of social assistance programmes which make it difficult for them to find and keep a home, and therefore stabilize their lives. In addition to quality, affordable housing, the residents have the support of community services provided both in the building and nearby. The design of the building provides maximum privacy, choice and the opportunity for groups and individuals to interact. Security of tenure, based on adequate resources is considered a necessary prerequisite for this type of permanent housing. The sponsor, the Homes First Society, is a community based charitable and non-profit organization which grew out of the experience of organizations providing and managing "public housing", and in meeting the needs of single persons displaced by urban redevelopment. Each of the 17 apartment units has four or five single rooms. These are large enough to be furnished as bed-sitters. A bed and dresser, built by residents of the complex, are provided. Each resident has private acccess to a bathroom which is shared with one other person. The rooms have individually controlled electric heat. The four or five rooms in each apartment share a kitchen and dining area, with an adjacent living room and sun room. The design is flexible and permits each group to tailor the spaces to their liking. The typical floors have been designed to accommodate people with certain types of handicaps (from fully featured handicapped facilities to minor adjustments). Each apartment has developed its own set of rules and expectations for behaviour, and the general building rules were developed with and by the residents. Shuter Street is close to public transportation, shopping, public recreation facilities and services which the residents are accustomed to using. Funding for the project is diverse, and securing it has been problematic because of the question of jurisdictional responsibility concerning support housing in general and the nature of the client group in particular. Canada Mortgage and Housing Corporation provided the capital and operating funds under the National Housing Act (Section 56.1) special purpose housing allocation. The mortgage interest is being subsidised down to 2% interest with a 35 year amortization. The Provincial Ministry of Municipal Affairs and Housing provides funding under the Ontario Commu­ nity Housing Assistance Programme which ensures affordable rents ($320 per month), and residents pay no more than 25% of their income in rent. The Provincial Ministry of Community and Social Services in conjunction with the Municipality of Metropolitan Toronto cost-shares funding of on-site support staff through the Municipal Purchase of Counselling Programme under the General Welfare Assistance Act. > < 0) (0

PI PI H

SHUTER STREET GROUND FLOOR PLAN

APPLICANT'S PROPOSAL

OH Of IOIONIO MANNING AND OtvUOMttM' OUWHMMI IONINC »ND OMlCIAl HAN OIVIIION MAY. 1983

TYPICAL FLOOR PLAN

APPLICANT'S PROPOSAL

44 ClirOMOtONIOriANNINOANO IWVtlOWMNI Ot»«»«»tNI IONINO ANO Off ICIAI HAN OlVltlON MAY lv«] Major Components of 90 Shuter Street Program

1. Building Location:

* access to community services * in neighbourhood familiar to most residents * tenant population similar in composition to neighbourhood population

2. Building Design:

* externally consistent with local housing types * internally emulates rooming house form familiar to tenants * graduated opportunities for socializing in manageable groups * provides individual privacy * maximizes physical security and personal safety * creates opportunities for a variety of social contacts 3. Affordability: * security of tenure at minimal cost to residents * assurance that housing costs will not increase beyond the level of affordability of low- income singles * guarantee of adequate standard of upkeep and maintenance

4. Management Structure and Functions:

* property management * facilitative management - to facilitate the development of community relationships among residents - to link residents with support services according to needs - participation of residents in all aspects of property management of the building - apartment and building rules drawn up by residents

5. Provision of Support Services:

* contracts with outside agencies * referrals to other social services as required

6. Resident Status:

* licensees, not tenants, and not covered by Landlord Tenant Act * can be evicted for breach of rules after arbitration process. Source: Evaluation of 90 Shuter Street. Prepared for: Community Services Department, Municipal­ ity of Metropolitan Toronto, September, 1987.