SUBJECT SUNNYSIDE SENIORS SUPPORTIVE HOUSING PROJECT UPDATE

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					                                                      Report: CR-FM-08-024/SS-08-035/P-08-080
                REGION OF WATERLOO

                SOCIAL SERVICES
                Seniors Services
                CORPORATE RESOURCES
                Facilities Engineering
                PLANNING, HOUSING AND COMMUNITY SERVICES
                Housing


TO:            Chair Ken Seiling and Members of Council

DATE:          July 2, 2008                                    FILE CODE: D08-08

SUBJECT:       SUNNYSIDE SENIORS SUPPORTIVE HOUSING PROJECT UPDATE

RECOMMENDATION:

THAT the Regional Municipality of Waterloo approve the following with respect to the Sunnyside
Seniors Supportive Housing Project as outlined in report CR-FM-08-024/SS-08-035/P-08-080,
dated July 2, 2008:

   a) Approve the inclusion of a Wellness Centre and an addition to the K-W Seniors Day
      Program space in the scope of the project,

   b) Authorize the Commissioner, Corporate Resources to execute funding agreements with the
      Sunnyside Home Foundation for the Wellness Centre and the K-W Seniors Day Program
      area for an expansion to be fully funded by the respective parties, subject to the satisfaction
      of the Chief Financial Officer and the Regional Solicitor,

   c) Amend the 2008 Capital Budget and Forecast to include $400,000 for a Wellness Centre to
      be funded by the Sunnyside Home Foundation,

   d) Amend the 2008 Capital Budget and Forecast to include $102,300 for an addition to the K-
      W Seniors Day Program to be financed by the issuance of debentures for a term not to
      exceed ten years,

   e) Amend the 2008 Capital Budget and Forecast to increase the budget by up to $900,000 to
      address increased cost escalation and change in scope of the project to be funded by
      debentures for a term not to exceed 20 years, and

   f)   Direct staff to continue to explore funding opportunities from other sources for infrastructure
        and energy efficiency;

AND THAT the project budget of $7,525,000 be increased to $8,927,300 as outlined above.

SUMMARY:

On March 12, 2008 Regional Council approved $7.525 million to design and construct a 30 unit
supportive housing apartment building adjacent to Sunnyside Home with some expansion space to
meet Sunnyside Home growth needs including pandemic storage (see report SS-08-010/CR-FM-
08-005/P-08-036 dated March 4, 2008). Council also approved, as part of this report, the inclusion
of a Wellness Centre in the project, subject to it being fully funded by a community partner, and
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further directed staff to work with the K-W Seniors Day Program to define their expansion needs
and to report back to Council on the results.

The Sunnyside Home Foundation has passed a resolution confirming the Foundation’s intent to
conduct a fund raising campaign upon approval by Regional Council of the inclusion of a Wellness
Centre in the project. They anticipate a major fund-raising campaign of 2 to 3 years duration to
raise the $400,000 for construction as well as any additional funds for unfunded equipment. Also in
an exchange of letters, the KWSDP has requested the Region to include this program expansion in
the Supportive Housing project and agreed to fund the $102,300 over a ten year period. Based on
these actions it is recommended that Regional Council approve the inclusion of a Wellness Centre
and an addition to the K-W Seniors Day Program space as outline din this report.

Since the approval of the project in March 2008, a design consultant has been hired, the functional
plan reviewed, tours conducted, and a series of iterative design options with detailed floor plans
developed by the architect for consideration by the Project Team A preferred option or schematic
design was developed over a two month time period (see Appendices A to D). The cost consultant
CM2R subsequently completed a cost estimate in June 2008. This cost estimate was significantly
greater than the budget and the Project Team conducted a detailed cost review which identified a
substantial list of items which could be reduced without impacting significantly the look or function of
the building. Despite this effort the cost estimate still remains approximately $900,000 over the
authorized budget. The factors contributing to this increased cost include a greater than expected
cost escalation, a small increase in space to provide a more functional building, higher costs for
achieving the LEED® Silver standard, and higher costs than anticipated to install air conditioning.
The report lists four options and recommends that Option #3, that is to increase the budget by
$900,000, be selected as the preferred option as it best meets the community needs, will not impact
meeting the supportive needs of the clients, avoids other inflationary increases if the project is
delayed, and enables the design and tendering to proceed on schedule to meet the Ministry of
Health and Long Term Care operating funding availability in late 2009.

REPORT:

Background

During the original functional planning for the redevelopment of Sunnyside Home in 1999, the need
for supportive housing services for seniors was identified and a site reserved for this purpose
adjacent to Sunnyside Home. Since that time, the redevelopment of Sunnyside Home has been
completed and a 32-unit affordable seniors housing complex constructed on the campus. The site
initially reserved for supportive housing is still available and can accommodate an estimated 30
units of supportive housing.

In September 2007, Council approved hiring a consultant to complete a functional program for the
new facility (P-07-106/SS-07-036 refers). This study was completed in February 2008 and a report
(SS-08-010/CR-FM-08-005/P-08-036 dated March 4, 2008) was forwarded to Council for
consideration. Council approved the functional program summarized in the report and authorized
the expenditure of $7.525 million for the construction of the supportive housing facility and minor
renovations and expansion requirements for Sunnyside Home. The approved project includes 27
one-bedroom and 3 two-bedroom apartments with space to accommodate supportive services
including dining, fitness, social activities, therapy and staff offices. The building will be physically
linked to Sunnyside Home, thus providing convenient and accessible access to many services
provided at the Home, such as clinics, gift shop, café and hairdressing. The project also includes
funds for a minor expansion of Sunnyside Home to meet the need for increased pandemic and
general storage as well as the expansion and reconfiguration of the existing food services, offices,
gift shop and other miscellaneous areas to better serve the entire seniors population at the

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Sunnyside campus.

Council also approved, as part of this March 4, 2008 report, the inclusion of a Wellness Centre in
the project, subject to it being fully funded by a community partner, and further directed staff to work
with the K-W Seniors Day Program to define their expansion needs and to report back to Council on
the results. The attached site plan, Appendix A, indicates the proposed location of each of these
programs in a combined Supportive Housing, Wellness Centre and Seniors Day Program complex.
The floor plans for the Supportive Housing apartments are shown at Appendix B while those for the
Wellness Centre and expansion to the Seniors Day Away Program are shown in Appendix C.

Wellness Centre

The Wellness Centre, which is included as part of the new Supportive Hosing complex, will be
accessible to the residents of Sunnyside Home, as well as all tenants living on the campus, and
seniors living in the community. The Sunnyside Wellness Centre is envisioned to encompass
rehabilitation services, health promotion and esthetic services. A fitness centre designed for
seniors with a range of abilities, a therapeutic bathing area and clinic rooms for a range of
professional services, such as massage, physiotherapy therapy, occupational therapy, optometry
and foot care will be included. The construction of this space will also enable the existing
physiotherapy and occupational program area currently in Sunnyside Home to be relocated to the
new larger and more comprehensive Wellness Centre in the Supportive Housing building. This will
create much needed expansion space in Sunnyside Home. The operation of the Wellness Centre
will enhance the rehabilitation services currently provided at the Home through a contracted
service, at no cost to the Region. Staff will apply for one-time funding through the next Local Health
Integrated Network (LHIN) Aging at Home proposal call anticipated this summer for purchase of
furnishings and equipment.

The inclusion of this critical health support for the aging in place population would add
approximately 2625 sq.ft. to the project at an estimated construction cost of approximately
$400,000. As no provincial funds, including the Aging at Home Strategy, are currently available for
capital, the Sunnyside Foundation was approached to ascertain their interest in assuming the
responsibility for raising the funds to construct and support the purchase of the critical unfunded
equipment for the Wellness Centre. After extensive review and deliberation of the project, the
Sunnyside Foundation Board has agreed to undertake this role. They see the Wellness Centre as a
key contributor to the health of our aging population and a critical element in the new strategy to
support aging in place, benefiting all seniors in the region. The Sunnyside Home Foundation has
passed a resolution confirming the Foundation’s intent to conduct a fund raising campaign upon
approval by Regional Council of the inclusion of a Wellness Centre in the project. They anticipate a
major fund-raising campaign of 2 to 3 years duration to raise the $400,000 for construction as well
as any additional funds for unfunded equipment. Accordingly it is recommended that Council
approve the inclusion of the Wellness Centre in the Supportive Housing project.

K-W Seniors Day Program

When the Region discussed the planned construction of a supportive housing building with the staff
at the K-W Seniors Day Program (KWSDP), their staff and board indicated a strong interest in
expanding their program area to address current space constraints and to enable the program to
serve additional clients, including some eligible tenants of the new Supportive Housing complex.
As a result, the functional program recommended that any construction for KWSDP should be
integrated into the construction of the Supportive Housing complex to minimize both cost and the
disruption of the division’s programs and services. Council directed staff to work with the KWSDP
and assist them to define their expansion needs and to report back to Council on the results. These
discussions have been completed and a modest plan developed to address their needs. This plan

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includes a 580 sq.ft. expansion and minor reconfiguration of current offices at an estimated cost of
$102,300. In an exchange of letters, the KWSDP has requested the Region to include this program
expansion in the Supportive Housing project and agreed to fund the $102,300 over a ten year
period as per the terms and conditions below:

    1. Payment would begin on the occupancy of the new space.
    2. The term of the repayment is 10 years
    3. Payments would continue only as long as there is an operating lease for the rental of the
       space
    4. The interest rate of the lease would be equal to the interest rate on the Region's debenture
    5. Over the term of the lease the payments of principal and interest would be equal.

Based on this commitment it is recommended that Regional Council approve the inclusion of a 580
sq. ft. expansion for the K-W Seniors Day Program as well as minor renovations to their existing
space in the Supportive Housing project.

Budget

Backgound. A budget of $7.525 million was approved by Regional Council to design, construct and
furnish the Supportive Housing Project at its meeting on March 12, 2008. The budget breakdown
and scope of work for this project was outlined in report SS-08-010/CR-FM-08-005/P-08-036 dated
March 4, 2008. The scope of work includes the construction of 30 supportive housing units with
support services, and minor renovations and expansion to Sunnyside Home. The functional plan
identified the need to construct a total of 39,430 sq. ft. and to renovate a further 1,700 sq. ft of
space to meet the above requirement.

Since that report in March 2008, a design consultant has been hired; the functional plan reviewed;
tours conducted; and a series of iterative design options with detailed floor plans for the supportive
housing apartments, the support services area, the Wellness Centre and the Seniors Day Program
expansion have been developed by the architect for consideration by the Project Team. A preferred
option or schematic design was developed over a two month time period. This review, which would
normally take four months, was completed in two months to meet the targeted completion date of
December 2009.

Schematic Design Cost Estimate: A cost estimate for the schematic design was completed on June
18, 2008. As this estimate was significantly over the budget allocation, the project team undertook a
detailed review of the project and was able to reduce the shortfall considerably. However, the
revised cost estimate is still over budget by approximately $900,000.

Costing Review: As part of the costing review the Project team deleted the following items from the
cost estimate:
   • space reduced to more closely align with the functional plan ($415,000 reduction). The
       resulting design is still 5% or 2,000 sq. ft. larger than that set out in the functional plan. This
       is primarily due to a decision to reorient the apartment tower to be perpendicular to the
       parking lot as opposed to being parallel;
   • landscaping reduced ($210,000 reduction). A proposed retaining wall at the back of building
       was deleted and some related garden area reduced. $100K is still available in the budget
       for gardens and landscaping;
   • architectural features of building revised ($272,000 reduction). Brick envelope changed to
       stucco and wood; glulam beams eliminated; feature stone wall deleted; etc. The resulting
       building will still present a pleasant exterior and provide a functional durable interior as set
       out in the functional plan to meet the special needs of these tenants;
   • mechanical and electrical systems revised ($172,500 reduction). This reduction includes

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         general reductions in areas such as metering and the amount of conduit, but also includes a
         decision to reuse the existing emergency generator rather than upgrading it;

    • LEED® features deleted ($70,000 reduction). The estimate included a green roof over the
       wellness centre. This was deleted to reduce the overall cost of the project. The new building
       will continue to be designed and constructed to the Canada Green Building Council
       Leadership in Energy and Environmental Design (LEED®) Silver Standard in accordance
       with Regional policy for all new construction projects and will include such items as
       increased insulation, cool white roofs, a gray water system and solar hot water heating;
    • miscellaneous revisions ($269,000 reduction). Elevator capacity reduced; some non-
       essential equipment deleted, etc; and
    • allowances automatically revised due to reduced construction cost ($360,000 reduction).
       Since the construction cost has been reduced, this results in a reduction in the amount for
       the general requirements and fees, the design contingency and cost escalation which are
       percentages of the construction total. The project still contains an 8% design contingency
       ($559,000) and 3.5 % escalation in construction costs from 2008 to 2009 ($237,500).

The Project Team does not feel any further reductions can be made without either impacting the
supportive housing program, reducing the scope of the project or redesigning the building which is a
Council prerogative. Either of these options will result in a five or more month delay to the project.

Factors Impacting Cost: A number of factors have resulted in the increase of approximately
$900,000 in the project cost. They are:
   1. Greater than expected cost escalation. As the budget was set in February 2008 a 5% cost
       escalation contingency was carried in the project for increased cost up to October 2008
       when the project was to be tendered. This contingency is now insufficient to address
       growing costs which include a 20% to 30% increase in steel since April 2008 due to demand
       from China, a settlement with the electricians union in May 2008 which is greater than
       forecast, a continuing demand for curtain wall glass which has added 20% to the cost of this
       material, continuing high cost of asphalt, etc. Some of these costs may be temporary but it
       is not possible to say with certainty. If some costs retreat between now and the time the
       project is tendered, then the tender will come in under the cost estimate. The exact impact
       of these increases is unknown without a more detailed analysis but it is estimated to be in
       the $300,000 to $400,000 range.
   2. Area of new construction has increased modestly by 5% or 2,000 sq. ft as discussed above.
       The primary reason for this increase is the reorientation of the building to be perpendicular
       to the parking lot. This was done for three reasons: to minimize the profile of the building to
       adjacent residences; to provide all tenants of the building with either the morning or
       afternoon sun; and to maximize green space around the complex. The estimated cost for
       this new space is $175,000 to $250,000. This orientation of the building was preferred by
       the neighbours on Kenneth Street at the Public Information Centre.
   3. Higher Costs to achieve LEED® Silver Standard. The normal cost budgeted to achieve
       LEED® Silver for Regional office and similar buildings have been in the range of 3%.
       However the cost consultant has indicated that the cost to achieve this same standard for
       low rise residential construction is more in the area of 6% to 8% since standard residential
       construction has a much lower mechanical and construction standard than commercial
       construction. Since this is the first residential building to be built by the Region to a LEED®
       Silver standard this increased cost factor was not taken into account. It is estimated that the
       increased cost to achieve Silver is in the range of $200,000 to $250,000.
   4. Air Conditioning. The cost to install air conditioning in the low rise apartment building
       ($310,000) is much higher than anticipated. Consideration was given to deleting it in the
       above cost review but heat-related health risks for the frail elderly and those with mental
       health conditions are of significant concern. Sunnyside Home, as a long-term centre, has

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         provided temperature and humidity control for their medical fragile population through the
         provision of air-conditioning in the core areas and tempered air in the resident bedrooms. As
         the supportive housing units are complete suites this approach is not feasible in the
         supportive housing apartment. At the Public Information Centre held on June 25, 2008 at
         Sunnyside Home, several individuals expressed strong opinions on the need for air
         conditioning for their spouse or others, related to their age and medical conditions. Many
         expressed concern that the health of the tenants would be compromised in extremely hot or
         humid weather. In addition, representatives from Waterloo Region Homes for Mental Health
         (a partner in this project) strongly recommended the inclusion of air-conditioning, advising
         that their clients' conditions can be negatively impacted in hot humid environments,
         specifically related to their medication regimes.

Options

In assessing the way forward, four options were developed for consideration. They are:

    • Option #1. Reduce the scope of the project and redesign it.
      One option to reduce the scope of the project would be to reorient the tower so it is parallel
      to the parking lot, reduce the number of apartments from 30 to 27 and delete air
      conditioning. These changes should reduce the cost estimate so it is less than the current
      budget. Other reduction options may be identified after a more detailed study.
              Advantages –
              o Does not require any additional funds
              Disadvantages –
              o The reduced number of apartments will possibly result in less grants and
                 reduced revenue. The finances for the project would need to be re-evaluated to
                 determine the full financial impact.
              o There would be no air conditioning which may impact the health of the tenants
              o Reduced service to the public in this critical area as there will be three less
                 apartments available for seniors in the community
              o The project completion would be delayed by approximately five months until
                 April 2010.

    • Option #2. Increase budget by $590,000 and delete air conditioning or LEED
      As noted earlier the projected shortfall between the cost estimate and the budget at this
      time is $900,000 which includes $310,000 for air conditioning. If air conditioning or the
      necessity to meet the LEED® Silver standard was deleted, the shortfall would be reduced to
      $590,000.
              Advantages
              o Allows project to proceed with design development and tendering in Oct/Nov,
                  mitigating escalation costs
              o Target date for occupancy of Dec 2009 met for Provincial operational funding
              o Project team will have the financial capacity to deal with issues as they arise
              o Provides financial cushion against further cost escalation outside the norm
              Disadvantages –
              o Increased cost
              o The deletion of air conditioning would probably impact the health of tenants as
                  discussed above
              o The deletion of the necessity to meet LEED Silver standard would result
                  increased water, electricity and gas consumption impacting the operating budget

    • Option #3. Increase budget by $900,000
       This option proposes that Council approve an increase of $900,000 to fully meet the

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         shortfall identified in the cost estimate and construct the building to meet the original intent
         outlined in the functional plan.

              Advantage
              o seniors with compromised medical conditions can live more safely and
                  comfortably
              o Allows project to proceed with design development and tendering in Oct/Nov,
                  mitigating escalation costs
              o Target date for occupancy of Dec 2009 met for Provincial operational funding
              o Project team will have the financial capacity to deal with issues as they arise
              o Provides financial cushion against further cost escalation outside the norm
              Disadvantage
              o Increased capital and operating cost
    • Option #4. Do not approve an increase at this time but direct staff to proceed with the design
      including air conditioning and to bring a revised cost estimate back for Council consideration
      at 60% of design. This Option does not resolve anything, but defers the final decision until a
      more detailed design is complete.
              Advantage
                  o allows project to proceed with design development and tendering in Oct/Nov
                  o Project team will have the ability to deal with most issues as they arise
                  o Allows time for a more accurate cost estimate to be developed thus
                      providing a better estimate of the budget shortfall
              Disadvantage
                  o It is not anticipated that the cost estimate will decrease significantly if at all.
                      Thus deferring the decision until more information is available will probably
                      not change the outcome

In all of the above options, it is expected the project team will manage the project closely to
eliminate any unnecessary increase in project design and resulting cost. Another cost estimate will
be completed at 60 % of design to ensure the project is within budget

It is also important to note that we are dealing with a cost estimate and not a tender. An increase in
a budget allocation at this time will not automatically incur an automatic increase in actual
expenditure, as the low tender bid is normally less than the cost estimate.

It is recommended that Council approve Option #3 as it best meets the needs of the community and
will enable the design to proceed expeditiously to avoid other inflationary increases.

Preliminary Feedback from Public Consultation

As outlined in report CR-FM-08-021/SS-08-032/P-08-079, dated June 24, 2008, design of the
project has progressed quickly through Schematic Design in order to meet the timelines associated
with Federal and Provincial funding requirements. The Schematic Design was presented for public
input at a Public Information Centre on June 25, 2008 at Sunnyside Home. Approximately 40
persons visited the Centre. Attached are two of the display boards from that meeting showing the
size and character of the new building in context of the Sunnyside campus. People attending the
Centre were very positive on the need for the specialized housing, the location and look of the
building. Several people expressed strong support for the inclusion of air conditioning in the suites
as discussed above.

Project Schedule

The proposed project schedule has been structured to meet the Ministry of Health and Long Term

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Care operating funding availability in late 2009. This schedule is aggressive and tendering and
construction start must happen in Fall 2008 for completion and occupancy at the end of 2009.


CORPORATE STRATEGIC PLAN:

The construction of supportive housing at Sunnyside Home will complete one of the Actions under
the Strategic Focus Objective to “Enhance programs and services to address the growing needs of
Seniors” which is part of Focus Area Four (Human Services) of the Corporate Strategic Plan.

FINANCIAL IMPLICATIONS:

The approved 2008 Supportive Housing Capital Budget includes $7,525,000 for this project. A
formal agreement for the contribution from the K-W Seniors Day Program is currently under
negotiation in the amount of $102,300 and a commitment of $400,000 in fund-raising has been
secured from the Sunnyside Home Foundation. In addition, the estimated project cost has
increased by $900,000 (Option #3) as discussed above. The following table summarizes these
costs.

Description                                              Region Cost ($)     Partner Cost ($)
Supportive Housing Construction                                 6,669,650
Increased construction cost (Option #3)                           900,000
Wellness Centre Construction & Design (funded by                        0             400,000
Sunnyside Foundation)
Sunnyside Home Renovations/ Expansion and design                Incl above
KW Seniors Day Program Expansion                                         0            102,300
Design, construction administration and supervision,              825,350
furnishings, fees, and Regional Engineering
Contingency (10%) and cost escalation for 2008 to               Incl above
2009 (5%)
LEED Silver                                                     Incl above
Public Art                                                          30,000
TOTAL                                                          $8,425,000            $502,300


The total cost of the project, including the contributions from the Sunnyside Home Foundation and
the K-W Seniors Day Program is $8,927,300. The following chart summarizes the financing of the
project, assuming Option #3 is selected by Council:

Source of Financing                    Present Value ($) Comments
Federal / Provincial Housing Grant               711,600
Federal / Provincial Housing Grant             1,067,400 Amount is to be debentured and funds
                                                         received monthly over twenty years
Net Operating Contribution                       731,000 Amount to be debentured. Funded by net
                                                         revenues of the facility
Wellness Centre                                  400,000 Funded by Sunnyside Home Foundation
K-W Seniors Day Program                          102,300 Funded by debentures and recovered
                                                         over 10 years
Property Tax levy / Housing Reserve            5,915,000
Total                                        $8,927,300


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As per Council’s past direction when the budget was approved on March 12, 2008, staff will
consider funding from the Housing reserve and report back at the time that Regional Council
considers awarding a tender to construct the building. For information purposes the following
calculations have been completed to show the impact of the revised project assuming no reserve
fund contribution to offset the capital cost. In this case the entire project will require the issuance of
debentures in the amount of $7,713,400 for a term not to exceed twenty years and the K-W Seniors
Day Program in the amount of $102,400 for a term of ten years. At current interest rates, the
following table outlines the projected impact on the Region’s property tax levy.


                Annual Financing Charge * (Projected)                        $632,131
                Funded By:
                       Provincial / Federal Grant                             $86,311
                       Net Operating Contribution                             $59,907
                       Total Revenues                                        $146,218
                Projected Net Operating Impact                               $485,913
               *Excludes K-W Seniors Day Away Program

The Net Operating Impact has increased by $73,757 (or 17.9%) per year over the March report.

As indicated in a previous report, staff are in the process of requesting the Province (Ministry of
Health and Long Term are) to provide funding related to the space dedicated to the delivery of
supportive housing services, currently estimated at $685,125. In addition, staff will continue to
monitor and explore other opportunities for funding including energy efficiency grants, infrastructure
funding and other eligible funding programs. If additional funding is obtained, it will be used to
reduce the above funding requirements.


OTHER DEPARTMENT CONSULTATIONS/CONCURRENCE:

This project is a joint initiative between Social Services and Planning, Housing and Community
Services and Corporate Resources. Finance has assisted in the preparation of this report. Legal
Services will provide assistance for the preparation of agreements between the Region and the K-
W Seniors Day Program.


ATTACHMENTS:

Appendix A - Overall Site Plan
Appendix B - Floor plans for the Supportive Housing Building
Appendix C - Wellness Centre and K-W Seniors Day Program Floor Plan
Appendix D - Supportive Housing Elevations and Prespective


PREPARED BY: Ken Noonan, Director Facilities Management & Fleet Services
             Gail Carlin, Director, Sunnyside Home
             Jennifer Murdoch, Manager, Housing Programs

APPROVED BY: Gary Sosnoski, Commissioner of Corporate Resources
             Michael Schuster, Commissioner of Social Services
             Rob Horne, Commissioner of Planning, Housing and Community Services


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