REPORT TO COUNCIL City of Kingston Ontario

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					                   CITY OF KINGSTON
                   REPORT TO COUNCIL


                                                                         Report No.: 12-044

TO:                         Mayor and Members of City Council

FROM:                       Lanie Hurdle, Commissioner, Community Services

RESOURCE STAFF:             Lee Campbell, Acting Manager, Housing Department

DATE OF MEETING:            December 20, 2011

SUBJECT:                    Emergency Shelter at 333 Kingscourt Avenue


EXECUTIVE SUMMARY:
The City of Kingston has one of the lowest vacancy rates in the Country and is second
only to Toronto in the Province. The lack of rental housing that the City is experiencing
is pushing the cost of rentals upwards. Average rents in the City of Kingston are the
fourth highest in the Province behind Barrie, Ottawa and Toronto. City Council has
recognized these issues and has committed municipal funding towards housing
incentives to help increase housing stock, however, it is anticipated that sufficient
increases in supply will not occur in the short term. These market conditions are having
a direct impact on the number of individuals unable to find safe, affordable and suitable
housing and on the increase of individuals needing to access the shelter system. As a
result, the City has seen an unprecedented increase in shelter usage over the last few
months with the local emergency shelters turning clients away because they are at
capacity.

The City of Kingston currently funds 64 shelter beds by way of Administration
Agreements with five (5) non-profit agencies. Funding for these shelter beds is paid on
a per diem basis through Ontario Works funding and is cost-shared with the Province
currently on an 81.2% / 18.8% basis.

Home Base Housing has recently put forth a proposal to purchase from Bridge House
(Kingston) Incorporated their vacant building at 333 Kingscourt Avenue. This facility has
now been vacant for about two (2) years. The intent is to open a 12 to 14 bed Family
and Women‟s Shelter at the facility to help address the growing need for additional
shelter beds. The facility is zoned for this purpose. In addition, Home Base Housing is
proposing to offer daytime services at this facility to meet an identified gap in services in
the community including: a drop in centre with support services, a family suite, a



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resource centre to assist clients in their housing searches, one on one and group
counselling sessions, and a Resource Centre open to residents and former residents
who continue to experience issues, though permanently housed, to assist them in
maintaining their tenancy. Home Base Housing also hopes to eventually be able to
renovate the facility to provide an accessible unit.

Staff are proposing funding on a per diem basis as well as funding for day support
services. As a result of the recent Council approval of the 2012 Consolidated
Homelessness Prevention Program (CHPP) funding, there was a total of $175,000 that
was left unallocated. Staff are proposing that $155,000 of the unallocated CHPP funds
be allocated to provide this increase in service. Funds to provide these services are
included in the 2012 operational budget. The remaining $20,000 of CHPP funding
should be set aside for Dawn House. All shelter providers will be required to submitted a
proposal in 2012 for funding reallocation from 2013-2015.

RECOMMENDATION:
THAT The City of Kingston supports Home Base Housing‟s purchase of 333 Kingscourt
Avenue from Bridge House (Kingston) Incorporated and that Council authorize the
City‟s commitment to fund an additional 14 emergency shelter beds if required, early in
2012 on an 82.8/17.2 cost shared basis with the Province through available Ontario
Works per diem program funding; it being understood that any year end budgetary
shortfall for this expenditure will be funded by an allocation from the Social Services
Stabilization Reserve Fund to an upset limit of $20,000; and

THAT Council approve the allocation of $155,000 in CHPP funds to Kingston Home
Base Non-Profit and that the City of Kingston enter into an agreement with Kingston
Home Base Non-Profit for the support services described in Exhibit „A‟ until December
31, 2012; and

THAT the remaining $20,000 in CHPP funding be retained until an assessment and
review of services at Dawn House is completed in 2012.




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AUTHORIZING SIGNATURES:


ORIGINAL SIGNED BY COMMISSIONER
________________________________________
Lanie Hurdle, Commissioner, Community Services

ORIGINAL SIGNED BY CHIEF ADMINISTRATIVE OFFICER
_______________________________________
Gerard Hunt, Chief Administrative Officer

CONSULTATION WITH THE FOLLOWING COMMISSIONERS:


Cynthia Beach, Sustainability & Growth                       N/R

Denis Leger, Transportation, Properties &
                                                             N/R
Emergency Services

Jim Keech, President and CEO, Utilities Kingston             N/R


(N/R indicates consultation not required)




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OPTIONS/DISCUSSION:

Housing and Shelter Bed Shortage
The City of Kingston, as Consolidated Municipal Service Manager (CMSM), is
responsible for the administration of the provincial Consolidated Homelessness
Prevention Program (CHPP) funding, the emergency hostel per diem funding, rent-
geared-to-income (RGI) housing programs and affordable housing funding.

The City of Kingston is currently experiencing a housing crisis with a shortage of
affordable housing. With a growing student and military population, a reduction in
housing stock and fewer monthly affordable motel rentals, the lack of availability of
overall rental housing is problematic and is having a direct impact on affordability. With
a vacancy rate around 1%, it is clear that the housing market in Kingston requires much
growth in order to be considered to have a healthy rental market which would be at
about 3%. A healthy market would help stabilize rent increases as there would be more
competition and provide more housing options.

City Council recently made a commitment of municipal investment into this issue.
However, it will take a considerable amount of time to properly and sufficiently address
the housing shortages that the City is currently experiencing. In the meantime,
residents, and most especially those living in poverty, are experiencing difficulty in
finding places to live which is having a direct impact on the emergency shelter system.
The shelter system has been experiencing an unprecedented bed shortage over the last
few months. Shelters are turning clients away as they are at capacity as outlined in
Table 1 within this report. With the imminent winter weather, this is becoming an
increasing concern for the community agencies which assist homeless clients including
the shelter providers. Table 1 outlines the number of residents that have been turned
away by the shelters in the last few weeks.




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Table 1 – Number of Turnaways by Week
         Emergency Shelter Tracking Sheet – Number of Turnaways by Week
                              October 2 – November 19, 2011
 Note: As there is no centralized client tracking system for the shelters the same
 client may be counted more than once.
                     Oct 2      Oct 9 Oct 16 Oct 23 Oct 30 Nov 6 Nov 13
 Shelter
              # of      Turn        Turn           Turn     Turn    Turn    Turn     Turn
              Beds     aways       aways          aways    aways   aways   aways    aways
   Dawn
  House        10           6          9           17       18      12      10       11
  In from
 the Cold      24           0          0            0        2       0       0        5
 Kingston
   Youth
  Shelter      8         0             0           0         0      0       0         0
 Ryandale      15       11             0           20        5      14      15       10
 Salvation
   Army        7         1             0           0         2      0       6         0
  TOTAL        64       18             9           37       27      26      31       26

Shelter usage does fluctuate and though all factors are not known, increases are often
based on weather conditions, when monthly motel rentals are not available during
summer tourist season and when students return to the City in September. Table 2
shows the increase in shelter beds during the last months since 2006.

Table 2 – Increase in Shelter Beds Usage

 YEAR        MAY     JUN        JUL        AUG      SEP     OCT    NOV     DEC      TOTAL

  2006       1408    1377       1235       1429     1243    1457   1263    1169     10,581
  2007       1505    1365       1600       1592     1407    1490   1304    1357     11,620
  2008       1246    1488       1577       1480     1539    1511   1370    1493     11,704
  2009       1346    1292       1448       1583     1469    1566   1434    1518     11,656
  2010       1147    1099       1266       1452     1440    1551   1396    1452     10,803
  2011       1297    1072       1558       1725     1868    1851                     9,371

Workers at the Housing Help Centre report that they are experiencing very difficult
challenges in finding safe, suitable and affordable housing for clients who are homeless
or at risk of becoming homeless. This is also resulting in longer shelter stays.


333 Kingscourt Avenue – Former Bridge House Location



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Bridge House is a former community house which provided short term, low cost,
temporary accommodations and support services for women and children from out of
town visiting family members incarcerated in area correctional institutions. Due to
financial difficulties experienced by the agency, in February 2010, Council gave its
approval for the City to enter into a supervisory management agreement with Bridge
House (Kingston) Incorporated. Council also approved the issuance of a Request for
Proposal (RFP) in order to measure the interest in the transfer of the building and
assets owned by Bridge House at 333 Kingscourt Avenue to another community
agency. Any transfer or disposal of the building was conditional to both Council approval
and Ministerial Consent. Ministerial consent and Councils approval of the disposal have
since been received.

Staff prepared a Request for Proposal (RFP) in order to identify opportunities within the
Kingston housing community of a possible transfer of the property to another Social
Housing Provider. The RFP was issued on April 20, 2010. Following this unsuccessful
attempt to dispose of the property to community agencies, Council passed a resolution
(July 20, 2010) to put the property on the market:

     THAT Council authorize the sale of the property, building and assets located at
     333 Kingscourt Avenue owned by Bridge House (Kingston) Incorporated, subject
     to Ministerial consent;
                                      - and further -
     THAT Council approve the transfer of any surplus funds arising out of the sale of
     the building, after the payment of all related costs, to Bridge House (Kingston)
     Incorporated, to be disposed of in accordance with the Social Housing Reform Act,
     Bridge House’s Letters Patent, and any other relevant legislation, through a
     transfer to another Housing Provider, Charitable Organization, not-for-profit agency
     or the City of Kingston as Service Manager, subject to Ministry concurrence;
                                      - and further –
     THAT Council authorize the Service Manager to re-allocate the ten (10) rent
     geared-to-income subsidies to another Housing Provider or through the City’s Rent
     Supplement Program in order to maintain the City’s legislated inventory of 2,003
     social housing units.

Bridge House listed 333 Kingscourt Ave. for sale with Re/Max Realty Concepts Corp. in
September 2010 after Ministerial consent to sell the house was received. The only
conditional offer on the property was not successful as the zoning of the property limited
residential development options. The property was specifically zoned as a facility for
residents from out of town visiting incarcerated individuals which limited development
options.

In the few past years, Bridge House received a few proposals from not-for-profit
agencies that were either considered to be not viable or that were withdrawn.
Bridge House as a Shelter Facility




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In November 2011, Council directed staff to report back on options to increase
emergency shelter bed capacity in the community.

Even though attempts have been made in the past few years to either transfer or sell
the property at 333 Kingscourt, it is still owned by Bridge House and remains vacant. In
August 2011, the property was re-zoned as a crisis care centre with the permitted use
as an emergency shelter facility. The zoning was amended as a result of a shelter
agency which was interested in acquiring the property. This proposal was withdrawn.
Recognizing the current housing crisis in the City of Kingston and the subsequent need
for additional shelter beds, the Bridge House Board of Directors asked that the City
approach the other shelters in the City to see if they may be interested in purchasing
333 Kingscourt Avenue to provide an emergency shelter facility in the City of Kingston.
On behalf of the Bridge House Board, an Expression of Interest was issued to the
emergency shelters in the City of Kingston on October 21, 2011, to ascertain if there
was any interest in purchasing the Bridge House facility as an emergency shelter.

In response to this Expression of Interest, Home Base Housing has put forth a proposal
to purchase the property and to open a 12 to14 bed emergency shelter facility for
women, mothers and their children and fathers with children under the age of 16 years.
Home Base Housing‟s vision for the facility includes the following services:
        Support services for residents to assist them in working through the barriers that
        prevent them from securing long-term housing;
        A family suite to accommodate a family of up 5 children and their parents;
        Plans for an accessible unit for disabled clients;
        A resource centre equipped with phone, computers and meeting space to assist
        clients in their housing searches;
        Access to the Hostel Case Manager currently located at the Housing Help
        Centre who would assist clients in obtaining permanent housing;
        Counselling - one on one and group sessions geared to residents‟ needs;
        Resource Centre open to residents and former residents who continue to
        experience issues, though permanently housed, to assist them in maintaining
        their tenancy – other services available in the Resource Centre would include:
        parenting support; literacy and education support; partnerships with Queen‟s
        Sociology Department to research the root causes of homelessness and
        develop programs to address the identified issues; volunteer and community
        education.

Home Base Housing‟s proposal and vision for Kingscourt Women and Family Shelter is
attached as Exhibit „A‟ of this report.

On November 27, 2011, the Bridge House Board of Directors unanimously accepted
Home Base Housing‟s proposal to purchase 333 Kingscourt Avenue for $150,000.
Home Base Housing intends to commit some of its own funding towards renovations
and upgrades to the facility. A condition of the purchase by Home Base is that if there



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was no longer a need for the emergency shelter facility in the City or the property was
no longer sustainable and it became necessary to sell the house within 10 years, any
equity in the house would be put towards another community project/undertaking as
agreed to with the City of Kingston. It is hoped that the shelter facility will be operational
early in 2012.

Hostel Per Diems
The City purchases emergency hostel services to fund our shelter beds using a
purchase of service for bed nights on a per diem basis through Ontario Works‟
“Emergency Hostel Services” funding, which is currently (2011) cost-shared with the
Province on a 81.2 /18.8 basis. The municipal cost-share portion is being reduced as
OW allowance and benefit costs are slowly uploaded back to the province over a 9 year
period ending in 2018. The per diem rate is presently $43.50 with an additional $4.40 for
added costs related to the provision of personal needs assistance (PNA). Hostels
receive the shelter bed based on the per diem and PNA amounts and client eligibility.
Some hostels provide PNA funds back to the clients and absorb personal needs item
provisions into other non-municipal/provincial resource lines. The OW emergency hostel
service per diem rate is prescribed (capped) by the Province. In order to operate 333
Kingscourt as a shelter facility Home Base Housing would require hostel per diem
funding.

Table 3 illustrates the approximate amounts (gross dollars) spent on emergency hostel
per diems in the past six (6) years which is cost shared with the Province at 80/20 for
years 2005 to 2009 and 80.6/19.4 for 2010. Under this current model, emergency
hostels are paid to provide board, lodging and personal needs to eligible homeless
people on a short term and infrequent basis. Residents of emergency hostel services
may or may not be in receipt of social assistance, and represent individuals in crisis
seeking temporary housing and supports, pending resolution of the issues that gave rise
to the emergency.

      Table 3 – Amounts Spent on Emergency Hostel Per Diem
      2010         2009       2008       2007         2006                       2005
    $671,000     $703,000  $700,000    $665,000    $628,000                    $685,000

The City of Kingston has not exceeded the amount budgeted for shelter per diems over
the past several years and with the increase of up to 14 beds into the system staff do
not anticipate exceeding the budgeted amount as shelter usage fluctuates and usage
does not generally remain at capacity throughout the entire year. Should the City
experience any year end budgetary shortfall for this expenditure, the net municipal
share would be funded by an allocation from the Social Services Stabilization Reserve
Fund to an upset limit of $20,000. It should be noted that the number of shelter beds in
the City has increased by 13 beds since 2009 with the addition of bunk beds to add nine
(9) beds at the In From the Cold shelter and the addition of a family unit to add four (4)




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beds at Ryandale Family Shelter from which there has been little or no increase in
municipal contributions to shelter per diems.

Programming and Services at 333 Kingscourt Avenue
In addition to per diem funding, Home Base Housing is requesting operating funding in
the amount of $155,000 per year to allow it to provide the daytime services at this
facility as described in Exhibit „A‟. The daytime services proposed by Home Base
Housing at Kingscourt Women and Family Shelter would meet the goals of the
Consolidated Homelessness Prevention Program (CHPP) which are as follows:

   1) To improve access to service and connect households that are homeless with
      the system of community services;
   2) To support households experiencing homelessness to obtain and keep longer-
      term housing; and
   3) To assist households at risk of homelessness to retain their housing.

From 2007-2011 the City has extended the yearly agreements with the seven (7)
agencies which receive a portion of the $1.3M in CHPP funding and $150K in municipal
Housing and Homelessness Stabilization Funding (HHSF) to provide services to assist
in homelessness prevention. 2012 CHPP and HHSF funding was approved by City
Council on November 1, 2011 with six of the seven agencies having their funding
renewed. The seventh agency, Dawn House Women‟s Shelter, received interim funding
from the Social Services Stabilization Fund and will receive a follow up review by City
staff in March 2012 to determine next steps. There is currently a balance of $175,000 in
CHPP funding which is unallocated for 2012.

On November 15, 2011, City staff held a second targeted community consultation to
review and to discuss the services being provided today that are viewed as essential to
homelessness services, and to identify the gaps that have been identified as requiring
immediate attention. Those in attendance at this consultation rated these gaps in
services based on how important they felt these services were to homeless clients as
described in Table 4.

Table 4 – Gaps in Services Identified during Community Consultation
                                              Importance to Homeless Clients
 Identified gap in homelessness services:     Lower -------------------------------Higher
                                              1 2 3 4 5 6 7 8 9 10
 1. Increased hours for drop-in centre‟s             1                     3 3 5 3
 2. Increased life skills programming         1                            2 2 4 6
 3. Improved coordination of homelessness     1 1                               1 1 11
    services within City of Kingston and
    County of Frontenac
 4. Increased supportive services for those          1          1          1 3 4 5
    already housed



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5. Improved transportation for those at risk                2        1    1       2   7    2
   of Homelessness or homeless
6. Increased homelessness services for the                  1                     1   5    6
   rural areas
7. Increased intensive case management                               1        1   4   3    6

The daytime services being proposed by Home Base Housing to be available at
Kingscourt Women and Family Shelter would meet the goals of the Consolidated
Homelessness Prevention Program (CHPP) and would meet many of the gaps
identified in homeless services – i.e. increased hours for drop-in services; increased life
skills programming; increased supportive services for those already housed; and
increased intensive case management. City staff is recommending that $155,000 of the
unallocated CHPP funding be allocated to Home Base Housing for 2012 to enable it to
operate Kingscourt Women and Family Shelter. City staff have also encouraged Home
Base Housing to pursue fundraising and donation opportunities to decrease the need
for CHPP funding in the future.

Future Funding and Sustainability
As part of the Housing Services Act (HSA) which comes into effect on January 1, 2012,
a range of changes to the housing and homelessness landscape will occur.
Municipalities will be given the flexibility to consolidate provincially funded housing and
homelessness programs including the following: Consolidated Homelessness
Prevention Program (CHPP); Emergency Energy Fund (Provincial Utility Bank);
Emergency Hostels (shelter per diems); Domiciliary Hostels (Kingston has none); and
Rent Bank (Provincial). The final details on this consolidation have not yet been
released, but it is expected that the consolidated funding will begin in 2013.

On November 1, 2011, Council approved the allocation of $14,500 per month from the
Social Services Stabilization Fund to Dawn House Women‟s Shelter for a period of four
(4) months, until April 30, 2012 and until City staff report back to Council. This funding is
to be applied to the provision of daytime services. Dawn House also receives per diem
funding to provide emergency beds. If the review of Dawn House Women‟s Shelter in
March 2012, results in a continuation of funding for the balance of 2012, the remaining
$20K CHPP funding will be allocated to Dawn House with the remainder coming from
the social services stabilization fund, which currently has a balance of approximately
$1.8M. Dawn House is currently focusing on stabilizing its operations in order to be able
to provide both support services and emergency shelter beds. In the event that Dawn
House cannot provide daytime homelessness services, Dawn House will still be able to
remain open as an emergency shelter and City staff will report back to Council with a
recommendation on the remaining 2012 CHPP funding.

As a result of discussions with community agencies and as committed by City staff to
City Council on November 1, 2011, City staff will proceed with a request for proposal in
early 2012 for the allocation of the Consolidated Homelessness Prevention Program



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(CHPP) funding for the period 2013-15. Staff have not anticipated any increase in
municipal funding as CHPP is a program funded by the Province and the distribution of
the funds will be re-evaluated through the RFP process.

EXTERNAL CONSULTATION:
Susan Beckel, Deputy Clerk, County of Frontenac

EXISTING POLICY/BY LAW:
None

NOTICE PROVISIONS:
No notice requirements

ACCESSIBILITY CONSIDERATIONS:
This report is available in alternative formats upon request.

FINANCIAL CONSIDERATIONS:
CHPP funding is annualized 100% provincial funding and there will be no impact on the
2012 municipal operating budget. Should it be necessary to provide further interim
funding of $14,500 per month to Dawn House Women‟s Shelter beyond April, 2012, this
may be provided through the Social Services Stabilization Fund and with some CHPP
funding.

With the development of Kingscourt Women and Family Shelter, it may be necessary to
fund an additional 12 to 14 emergency shelter beds in 2012, on an 82.8%/17.2% cost-
shared basis with the Province through available Ontario Works per diem program
funding, however, past shelter usage indicates that shelters do not always operate at
full capacity. It is understood that any year end budgetary shortfall for the net municipal
portion of the per diem expenditure will be funded by an allocation from the Social
Services Stabilization Reserve Fund to an upset limit of $20,000.

There is currently a balance of about $1.8M in the Social Services Stabilization Fund.

CONTACTS:
Lanie Hurdle, Commissioner, Community Services                  613-546-4291 ext. 1231



OTHER CITY OF KINGSTON STAFF CONSULTED:
Lee Campbell, Acting Housing Manager, Housing Department
Katie Clarke, Manager of Program Delivery, Community & Family Services Dept.
Adele Lafrance, Director, Community & Family Services Department

EXHIBITS ATTACHED:




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Exhibit „A‟   Kingscourt Women and Family Shelter Proposal
Exhibit „B‟   Kingscourt Women and Family Shelter Operational Budget




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Council Meeting 3 December 20, 2011   138
Council Meeting 3 December 20, 2011   139
Council Meeting 3 December 20, 2011   140
Council Meeting 3 December 20, 2011   141
Exhibit B - Kingscourt Women and Family Shelter Opreational Budget
                                  New Shelter 2012 Draft Budget
Revenues                                                          2012
CHPP Funding                                                             $155,000
Per-Diem                                                                 $119,720
Donations                                                                  $7,000
Other
Total                                                                    $281,720

Expenditures

 Salaries                                                                $164,283
 Benefits                                                                 $27,014
Relief Salary                                                             $15,807
Supplies/Office/House                                                      $3,800
Supervision / Administration                                               $8,500
Purchased Services                                                           $600
Client Supplies                                                            $7,480
Telephone                                                                  $2,400
Insurance                                                                  $1,300
Food Supplies                                                             $16,000
Personal Needs Allowance                                                   $5,000
Utilties                                                                   $8,160
Loan Repayment                                                            $11,000
Maintenance                                                                $6,000
Transfer to Reserve                                                        $4,100
Total                                                                    $281,444
Surplus / Deficit                                                            $276



               Salary 2012
                                                                  FTE              Salary
Hostel Support (days/evenings)                                                  2 $65,910
Hostel Support (overnights)                                                     2 $73,819
Community Workers (15 hr each)                                                0.9 $24,554
Relief Staff                                                                  0.3 $15,807
Total                                                                         5.2 $180,090




                                 Council Meeting 3 December 20, 2011                 142

				
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