An Evaluation of the City of Toronto’s Emergency Homelessness Pilot Project By Gloria Gallant, Joyce Brown and Jacques Tremblay June 2004 Acknowledgements We wish to acknowledge the members of the Emergency Homelessness Pilot Project (EHPP) Steering Committee, landlords involved in the project, and representatives of community agencies, all of whom assisted us in gathering the data and provided feedback on our findings. We are especially grateful to Kevin Lee, City of Toronto Shelter, Housing and Support Division, Michelle Haney-Kileeg, Toronto Community Housing Corporation and the WoodGreen Housing and Support Workers for their considerable contribution to this research. Most of all we would like to thank the EHPP tenants, who agreed to participate in this study, offered their time, invited us into their homes, and shared with us their insights and experiences. Graphic Design: Gumbo Design Co. I BACKGROUND History of Tent City...................................................................................... 2 The Creation of the Emergency Homelessness Pilot Project.............................. 3 Overview of the Rent Supplement Program.................................................... 5 II SCOPE OF THE EVALUATION ...................................................................... 6 Contents Methodology .............................................................................................. 7 of III FINDINGS ...................................................................................................... 10 Observations Regarding Housing ................................................................ 10 Interviews with Participants .......................................................................... 10 Housing Satisfaction.................................................................................... 12 able Health Impact ............................................................................................ 15 T Support Needs .......................................................................................... 18 Quality of Life ............................................................................................ 19 Tenant Turnover .......................................................................................... 21 Eligibility Review Policy .............................................................................. 23 Interviews with Housing Support Workers .................................................... 24 Interviews with Landlords ............................................................................ 25 Input from other Stakeholders ...................................................................... 27 Input from Steering Committee Members ...................................................... 28 EHPP Program Costs.................................................................................... 30 IV CONCLUSION ................................................................................................ 33 Recommendations ...................................................................................... 37 V STORIES FROM THE RESPONDENTS............................................................ 38 1 From Tent City to Housing: An Evaluation of The City of Toronto’s Emergency Homelessness Pilot Project HISTORY OF TENT CITY Over the past decade, the homeless population in Toronto has grown at an alarming rate. Background Although the city has an extensive shelter attention for their efforts to build their own system, an increasing number of people do housing and remain self-reliant. However, the not use any of the available shelter services. community was always under the threat of Some find it difficult to adapt to hostel eviction. Various attempts by Home Depot, conditions or cope with the basic rules the City of Toronto, and social housing associated with shelter life, often because of providers to find and/or develop alternative mental health or addiction issues. Instead, housing options were ultimately unsuccessful. these people survive outdoors, living in ravines, open spaces, under bridges or On September 24, 2002, security guards in squats. hired by Home Depot forced the squatters to vacate the site. Some of the inhabitants were Tent City was Toronto’s first major squatter able to carry out a few belongings that day, settlement in recent history. It was formed in or were later escorted in by security to gather 1998 when a group of homeless individuals their possessions. However, many Tent City built shacks and lean-tos on a property on residents lost their valuables in addition to their the waterfront owned by Home Depot. The homes. Within a few days, the dwellings were settlement grew slowly as other homeless demolished and the site was razed. people heard about the small community. With the help of organizations such as the Toronto Disaster Relief Committee (TDRC), a few Tent City was Toronto’s first major squatter settlement in recent history. portable homes and toilets were provided on site for the inhabitants. Various social service agencies including Street Health, Regent Park Health Centre, Street Patrol and Street Outreach Services offered health care and food. This new community was the subject of much public debate and study. The settlement was built on land slated for development; land that was also contaminated by former industrial use. The group received considerable media Photo: John MacLennan 2 In order to address the situation brought on by the eviction of Tent City residents, an emergency response protocol that had been developed for the rooming house sector was implemented. Working with the City, WoodGreen Community with the City to deliver rent supplements in Centre was the primary agency in the response. Toronto, was asked to deliver the pilot project. The Salvation Army, the Red Cross, the TDRC, the Central Neighbourhood House Street City and TCHC staff worked quickly to develop Background Outreach Team and a variety of other agencies and implement this new rent supplement program. also provided assistance. Tent City residents A Steering Committee made up of representatives were initially offered emergency accommodation from the Shelter Housing and Support Division at the Community Centre itself. However, as of the City of Toronto, TCHC, WoodGreen the need for accommodation continued and Community Centre, Toronto Social Services (TSS) WoodGreen required the space for ongoing Ministry of Community, Family and Children’s programs, it became necessary to move Services (MCFCS), the TDRC, and former Tent people between WoodGreen and the Jimmy City residents was established to guide this Simpson Recreation Centre (across the street development and implementation process. Their from WoodGreen). The City’s Seaton House role was to developa plan for housing the Hostel provided additional staffing at the two evicted squatters as quickly as possible, to work centres. Couples were given the option of with the various housing, income and personal staying at motels under contract with the City support systems and services to ensure that or at a hotel in Parkdale. Tent City pets were services were in place and to problem-solve on initially boarded at WoodGreen and later at the an as needed basis. Toronto Humane Society. While many people accepted the temporary lodgings, others chose In many instances, members of this Committee to remain outside in the ravines, under bridges or facilitated changes to the normal process in wherever shelter could be found. As a result, the the way clients access services. For example, community became somewhat fragmented. TSS developed an expedited process that included a centralized support system through the THE CREATION OF THE EMERGENCY Client Services Unit, and TCHC provided a HOMELESSNESS PILOT PROJECT ‘Letter of Guarantee’ to landlords. TCHC streamlined its eligibility application process In an effort to address the needs of those evicted (waiving its requirement to verify identification from Tent City, the City of Toronto took immediate at the outset and providing last months rent). At action initiating the Emergency Homelessness the Steering Committee meetings, WoodGreen Pilot Project (EHPP) on September 26, 2002. staff provided information on their negotiations The EHPP provides rent supplements to former with landlords and data on the availability of occupants of Tent City and assists them in finding apartments. The Tent City representatives were and maintaining housing. WoodGreen able to provide the Committee with information Community Centre was contracted to assist the about how the former squatters were coping participants of the program to access housing with the situation. They also conveyed new and facilitate relationships between landlords information from the Committee to other former and tenants. The Toronto Community Housing Tent City residents. Corporation (TCHC), already under contract 3 WoodGreen quickly hired three Housing Housing Support Workers in undertaking tasks Support Workers to work with the former Tent such as “attending the lease signing, reviewing City residents. The initial challenge was to the tenant’s responsibilities under the Tenant determine who had actually been living at Tent Protection Act, and assisting the Tenant with City and to remain in touch with those who were budgeting and other related skills.” not staying at one of the emergency shelters. Although participants in the program had the In order to be eligible for the rent supplement option