Beyond the Status Quo: Planning for a Vital Resource through Research

By Suzanne Gessler & Susan Mulligan (An IUS-UMCP Collaborative Initiative)

As the crisis continues to grow, communities Summary all over North America more so than ever, have to confront the A review of a research possibility of broadening the definition of appropriate housing. report on single room The history of city planning demonstrates that not only have city, occupancy (SRO) regional and federal governments actively minimized housing in Winnipeg that options, they have also played a deliberate role in devastating strives to determine crucial forms of low-income housing, namely that of single room whether practical occupancy (SRO) hotels. For many years, public policy has solutions exist that could dictated that living should preferably be eliminated or at contribute to creating least marginalized and limited to those at the lower-end of the SRO hotels that are affordable and healthful. social and economic spectrum. Often this is meant to include geographic isolation, substandard living conditions and neglect. The results of these efforts have been what many housing Key Words advocates call the “SRO Crisis”. Community-based Research This case study investigates a Winnipeg-based research project Inner-city called “Beyond the Front Desk: The Residential Hotel as ”. Single-room Occupancy Hotels Released by the Institute of Urban Studies in 2005, this research aimed to better understand the dynamics of single-room occupancy hotel life in Winnipeg. Through a comprehensive and Timeline community-based analysis of Winnipeg’s SRO hotels, the 2005 – Present principal researchers sought to determine whether practical solutions exist that could contribute to creating SRO hotels that Outline are affordable and healthful. Context The Research Planners and others interested in housing issues will find this Limitations & Challenges report provides valuable insights by answering questions about Lessons Learned SRO history, the resident base, the regulatory environment and Resources the overall socio-economic impact of maintaining this alternative form of housing. Beyond the Status Quo: Planning for a Vital Housing Resource through Research Context

What is a Hotel?

SRO hotels are predominately located in The decline of Winnipeg’s SROs begins at the central areas of cities. Most persons the outset of World War I. A number of live in these hotels on a month-to-month factors contributed to the downturn of the basis, and pay an average of $250 (or city’s SROs such as the disinvestment in less) for a room that may contain a bureau, the central business district, a decrease in bed and a few chairs. These rooms immigration and travel, and Prohibition. As typically measure 10 feet by 10 feet and in a result of decentralization, business most cases, bathrooms activity in the downtown amenities are located down area greatly diminished the hall and kitchen facilities throughout the decades are limited to a hot plate or a of the 1960s to the small bar fridge in the room. 1980s. The consequence SRO hotel units are the most was a decline in the Main controversial, neglected and Street area, leading to the least understood of all the more common image housing types. The closing of of Winnipeg’s SROs. an SRO hotel is one of the Today, broad spectrums leading causes of of individuals call SRO . hotels home in Winnipeg. The majority of residents Today, SRO hotels are are men (68.3%) and just increasingly being viewed as under a third are women a viable housing alternative to (31.7%). Statistics show both the inadequate and that most residents are insufficient supply of over fifty years old. affordable housing and Typical SRO Hotel Room homeless shelters. Although The regulatory models/approaches are still environment for SRO hotels in Winnipeg is evolving, many governments and ambiguous at best. The Manitoba Liquor community organizations have begun Control Commission (MLCC) has the most investing in SRO hotels and the residents authority as their by-laws outlines that a who choose to call them home. Beverage Room License may be obtained only if there are forty guest rooms SROs: The Winnipeg Experience available to the public. These guest rooms must have adequate furnishings under the SROs have a long tradition in Winnipeg. MLCC regulations, although it is unclear Dating back to the late 1800s to early what adequate is defined as. The hotel 1900s, these buildings provided housing to owners are considered entrepreneurs; young single males at a time of high therefore, various financial grants for growth and development within the city. upgrading or maintaining these buildings By1914, there were ninety-six SRO hotels, are unavailable as they may be for most of them located in and around the non-profit housing organizations in Higgins Avenue and Main Street area. Manitoba.

Beyond the Status Quo: Planning for a Vital Housing Resource through Research Page Two The Research

Impetus for Research

The impetus for the research report lies in the fieldwork of a local police officer, who worked for a number of years in the downtown area of Winnipeg. Through an innovative community-policing model, Constable Gerard Allard began to examine the role of Criminal Prevention Through Environmental Design (CPTED) and SROs. After a review of the research on SROs it was discovered that there were no comprehensive studies in existence neither in Winnipeg nor across Canada. Soon after researchers at the IUS and Constable Allard began to strategize a research plan to address the gaps in the area of SROs research.

Research Strategy

Location of Winnipeg SROs Through a community-based research Where Surveys were Completed effort, a comprehensive analysis of Winnipeg’s SRO hotels was conducted via case studies (Los Angeles and Vancouver) surveys, interviews and a literature review. The report, serves as a useful guide to With the assistance of a local Advisory understanding the development of SRO Group and a Steering Committee, IUS hotels in Winnipeg, what conditions researchers ensured that the voices of currently exist and the impact of SRO residents, hotel owners and the living on tenants, hotel management and surrounding community were heard by the surrounding community. Through its inviting them to write their own personal inclusive and comprehensive research reflections. Observations were drawn from process this study challenges current fifteen hotels that stretched from Broadway professional planning knowledge and Boulevard to Selkirk Avenue (see map for strives to promote a broader public vision locations of SRO hotels in Winnipeg where of crucial housing options. surveys were conducted).

“Owners play a vital role in offering something that mainstream society has not: a place to stay. There are better places, but for some the SRO is their place.” (Disatsio & Mulligan, pp. 65)

Beyond the Status Quo: Planning for a Vital Housing Resource through Research Page Three Research Questions Surveys were completed at meetings

1. What are the general characteristics of held at Siloam Mission, a local the SRO tenants? organization which provides support 2. What are the characteristics of the services to individuals dealing with hotels and surrounding community? poverty and homelessness issues. With 3. Why do persons select this form of the help of two local SRO residents, the housing over others? surveys were developed with the specific 4. Does a sense of community exist intent of shedding light on the within the SRO environment? stereotypes and myths surrounding hotel 5. What is the regulatory environment life. that governs the operation of SROs Members of the Advisory Group and are there viable options for improving this form of shelter? City of Winnipeg 6. What would be the outcome of closing The Salvation Army SROs or what options and alternatives Winnipeg Regional Health Authority Winnipeg Police Department exist elsewhere? Exchange District Biz Siloam Mission Manitoba Hotel Association Manitoba Liquor Control Commission The Downtown Biz The Institute of Urban Studies Community-Based Research Effort Members of the Steering Group

The research was approached from The Bell Hotel three perspectives- the residents, the The Main Street Project physical characteristics of the hotels and The Salvation Army the surrounding community. Over 80 The Winnipeg Police Department surveys were completed via site visits to Community Researchers The Institute of Urban Studies nearly 15 hotels. Demonstrating these The Manitoba Métis Federation perspectives was accomplished through field research with local SRO residents, exploring the viewpoints of community Research Outcomes residents, the Winnipeg Police Services, community-based service providers and SRO Living – the local hotel owners and managers. In Environment & Community order to ensure that the research study was representative of a diverse range of Through the completion of the survey persons, two committees’ representative research, site visits and documentation of community organizations, businesses, of viewpoints from several community individuals and local government stakeholders, a portrait of SRO hotel departments were created. Together, living in Winnipeg was revealed. The they helped to develop a framework to surveys and site visits provided a better direct the research and make sure the understanding of the physical interests of all concerned were environment by examining amenities addressed. such as furnishings, washrooms, hotel facilities, and security. The study uncovered that although Winnipeg’s SRO hotels an estimated 1000 persons in 772 rooms, many hotels are at risk of closure given the high cost of maintenance.

Beyond the Status Quo: Planning for a Vital Housing Resource through Research Page Four The results also revealed that despite Recommendations the often negative aspects of hotel living (e.g.: lack of cleanliness, security A series of recommendations were one of etc…) there exists a “sense of the major results of the research study. community” among residents. The The recommendations are directed at a information gathered indicated that number of key stakeholders who have the many living within Winnipeg’s SRO ability address concerns and range from hotels moved within a small network of the development of strategic partnerships hotels, street life and local missions. to rethinking the regulatory environment of SRO hotels. Best Practices from Other Communities 1. Work with hotel owners, Hotel Association and Residential Within the research study, case studies Tenancies Branch (RBT) to extend to from Vancouver and Los Angeles residents the same rights afforded to provided valuable insights into other others under the existing RTB jurisdictions which have established legislation. new legislation and/or regulations to ensure the proper management of 2. Seek innovative and imaginative ways SROs. Such case studies reveal that to allow hotel owners to access programs can be created to secure the programs, incentives and other means tenure of residents and improve the to improve the quality of housing (such regulatory environment surrounding as extending RRAP). SROs. In particular Los Angeles provided insight into the creation of 3. Find ways to link hotel owners and not-for-profit SROs, while the social agencies (Environmental Health, Vancouver case study demonstrated Employment Income Assistance etc…) innovative legislative changes affecting in ways that provide better support to SROs which benefit residents. those most vulnerable by providing frontline support or delivery within hotels.

4. Create a single act of legislation that recognizes the “rooms” of hotels as being distinct and separate from other functions such as the beverage room and restaurant. This may include a designation as “Residential Hotel.”

5. Encourage hotel owners to seek ways to have monthly rents increased from Employment Income Assistance, especially for housing persons needing supportive care or additional services.

6. Immediately review occupancy Non-profit SRO Hotel For-profit SRO Hotel standards to ensure that rooms are Hallway - Los Angeles Hallway - Winnipeg safe, healthful and afford residents with an acceptable level of furnishing and linen, mattresses bedding etc…

Beyond the Status Quo: Planning for a Vital Housing Resource through Research Page Five

7. Encourage and support residents in Limitations & Challenges forming a “tenants association” to voice concerns or to have a venue from which Gaining access to the rooms of the issues can be addressed. This should residents proved to be challenging include a community component to because of privacy issues. It was allow the community to voice issues and imperative that researchers respected the offer ideas. of the residents while portraying the true conditions of their rooms, good or bad. Partnerships Accessing information from organizations, Aside from the formal partnerships created such as the Manitoba Liquor Control throughout the course of the research, Commission or the hotel owners was also there appears to be a number of difficult. With less than 1% rental vacancy community-based partnerships that have rates within the City of Winnipeg, many stemmed as a result. Such coalitions have stakeholders agreed that without access to begun to work collectively to address the these rooms, many residents would be needs of residents of SRO hotels and the without shelter. Unfortunately, this often surrounding area. meant that a “blind eye was turned “when issues arose such as safety or healthy One such partnership that has resulted is environmental conditions. the collaboration of local providers to advocate for higher per diem Recommendations that safeguard this rates for individuals accessing form of housing and ultimately the homelessness services in the city. residents were also a challenge. For example, if IUS researchers had Another partnership is that between one of recommended that residents be afforded the local hotels and an Aboriginal tenancy rights under the RTB, some hotel organization to transform one SRO hotel owners may feel that their business may into a drug and alcohol free environment. prove to be too costly and decide to close Through the creation of healing programs their doors to the residents. Closing an both the hotel owner and The White SRO in Winnipeg is a direct cause of Buffalo Spiritual Society were working homelessness for the residents; therefore, towards finding innovative ways to ensuring that the residents’ tenure of maintain the hotel stock, assist residents housing was protected was of great and help to revitalize the downtown area. importance. Unfortunately, this program failed and The White Buffalo Spiritual Society has relocated their operation. The hotel remains alcohol free and is now directing Winnipeg Tribune 1978 their business to the local arts community. Describing the Main Street Strip …without anything to replace them, many people would fall into crises were the hotels to disappear.” (Distasio & Mulligan :2005)

Beyond the Status Quo: Planning for a Vital Housing Resource through Research Page Six SROs: The Planning Role Lessons Learned Planners, design professionals and Future of SROs in Winnipeg housing advocates alike all have a role to play in ensuring adequate and affordable In addition to several important outcomes, housing for the communities they work this research provided an opportunity to with. The SRO hotel model of housing sort out some of the myths and represents a “ready-made” and creative misconceptions of hotel life. opportunity to strengthen and provide security to some of the most marginalized Unraveling this phenomenon has revealed families and individuals in our cities. a number of key areas where further work Whether through research, policy is needed: development or community development work, understanding the phenomenon of 1. Examining alternate forms of affordable SRO hotels may provide us with a chance housing raises fundamental issues of to strengthen our affordable housing stock policy. This will undoubtedly require and define and expand the role of planners revisiting if communities are too in this area. Planners may learn that it is flexible, innovative and commit to best to use caution in providing maintaining the existing stock of SRO recommendations within a research report. hotels.

2. The research demonstrates once again that when housing is involved- A Reflection on SROs in Winnipeg

especially for low-income communities, S. Mulligan there exists a complex array of competing issues, interests, regulation This research was both rewarding and and legislation. At the highest level challenging. SRO hotels have a rich history in these competing interests need to be Winnipeg and many buildings are at danger of framed in such a way that positions being destroyed through conversion or demolition. residents in the centre. In fact, close to ten SRO hotels have been lost within the past ten years in Winnipeg. There are many stakeholders that influence the “household” 3. SRO housing is an essential form of condition of the residents. As a researcher the housing in Winnipeg. Given the current main challenge was to report in such a way that state of affordable housing in the city, protects this form of shelter while remaining optimistic that the maintaining the SRO hotels will be key if recommendations will community leaders do not want to see improve the safety and increases in people accessing shelters security of the tenants. and living on the streets. The good news is that there has been an enormous amount of interest stemming from this research. The future of these hotels and the living conditions for the residents looks promising.

Beyond the Status Quo: Planning for a Vital Housing Resource through Research Page Seven Sources

Literature

Butt, L. (1991). Single room occupancy hotel residents of downtown Vancouver. Retrieved February 7, 2006 http://www.city.vancouver.bc.ca/commsvcs/housing/pdf/ ButtSRO.pdf

The Star Group. (2001). Interventions for rooming /SROs and tenants: Final report. Ottawa: Canada Mortgage and Housing Corporation

Groth, P. (1994). Living downtown: The history of residential hotels in the United States. Berkeley: University of California Press.

Hoch, C. & Slayton, R. (1989). New homeless and old: Community and the skid row hotel. Philadelphia: Temple University Press.

Isay, D. & Abramson, S. (2000). Flophouse: Life on the . New York: Random House.

Distasio & Mulligan. (2005) Beyond a Front Desk: The Residential Hotel as Home. Institute of Urban Studies.

Websites

Tenants Rights Action Coalition: http://www.tenants.bc.ca/index.htm

Lakefront : http://www.lakefrontsro.org/

Portland Hotel Society: http://www.sharedlearnings.org/index.cfm?fuseaction=Dir.dspOrg&orgsid=9844e7c3-3123- 406b-b3d2-1af9642d4502

Skid Row Housing Trust Los Angeles: http://www.skidrow.org/

Beyond the Status Quo: Planning for a Vital Housing Resource through Research Page Eight About The Institute of Susan Mulligan Urban Studies

Susan Mulligan joined the IUS team in 2003 as a Research Associate. She holds Since its inception in 1969, the Institute of a Bachelor of Arts degree (Hons.) in Urban Studies at the University of Political Studies from the University of Winnipeg has acted as an innovative, Winnipeg, and is completing her Master’s non-partisan research and educational of City Planning Degree from the Faculty facility with an action-research orientation. of Architecture, University of Manitoba. Her Originally dedicated to addressing the research interests lies in the areas of problems and concerns of the inner city, urban poverty and homelessness, the scope of the Institute’s research marginalized forms of housing, Aboriginal mandate has developed considerably over self governance and urban politics. the years, to now encompass the social, demographic, physical, economic and Suzanne Gessler environmental well-being of Canadian communities and cities. Projects Suzanne Gessler holds both a Bachelor of undertaken by the Institute may be on Arts (Sociology) and Bachelor of Social behalf of, or in partnership with, Work from the University of Manitoba. She government, the private sector and is presently completing her studies in the community-based organizations. Research Master of City Planning program in the specialties include housing, neighbour- Faculty of Architecture at the University of hood change, urban aboriginal issues, Manitoba. The focus of her Masters sustainable urban development and urban research is the creation of a framework for poverty. With extensive experience in the development of emergency shelter project design, implementation and standards for the city of Winnipeg. analysis, the Institute is well a positioned research centre. Photos Institute of Urban Studies Susan Mulligan 346 Portage Avenue Winnipeg, Manitoba R3C 0C3 Tel: 204-982-1140 Fax: 204-943-4695 http://ius.uwinnipeg.ca

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