Windsor-Essex HARS Special Initiative Study. Background Report Three: Social Housing Policies and Programs. Final June 2010

Transcription

1 Windsor-Essex HARS Special Initiative Study Background Report Three: Social Housing Policies and Programs Final June 2010

2 Acknowledgements The Windsor/Essex Housing Analysis and Recommended Strategy Special Initiatives Study was undertaken on behalf of the City of Windsor. We would like to thank the Housing Advisory Committee for their input and assistance during the preparation of the report. Alan Halberstadt, City Council Gary McNamara, County Council Jim Steele, Housing Provider (Windsor Essex Community Housing Corporation) Janette Calendra, Housing Provider Marina Clemens, Chair, Central Housing Registry Anna Angelidis, Labour Community Joelle Chase, Consumer & Tenant Representative Lorena Shepley, Consumer & Tenant Representative Heather McNamara, Community Groups (Multicultural Council) Steve Govette, Community Groups (Canadian Mental Health Association) Rob Catford, Community Groups (Legal Assistance of Windsor) Shelley Hodare, Community Groups (Housing Information Services) Elayne Isaacs, Community Groups (Can-Am Urban Native Non-Profit Homes) Linda Wilson, Emergency Housing (Salvation Army) Bill Bijl, Lodging/Rest Homes (Bruce Villa Inc.) We also wish to thank the many representatives from the community, including various social service agencies, social housing applicants and tenants, social housing providers, municipal departments and the private sector for providing valuable input into key components of this study. In particular we would like to thank the individuals who completed a survey, participated in interviews and attended the various focus group sessions. i

3 Consulting Team The Windsor/Essex Special Initiative Study was prepared by SHS Consulting. The consulting team for this study was comprised of: Ed Starr, Principal, SHS Consulting, Study Manager Christine Pacini, SHS Consulting, Study Manager Jodi Ball, SHS Consulting, Senior Research and Policy Analyst Glenda Lucas, SHS Consulting, Senior Research and Policy Analyst Michel Sereacki, SHS Consulting, Research Analyst Zainab Habib, SHS Consulting, Research Analyst ii

4 Table of Contents 1.0 Delivery of Social Housing Programs Inventory of Social Housing Programs Windsor Essex Community Housing Corporation (CHC) Affordable Housing Initiative Homelessness Partnering Strategy Residential Rehabilitation Assistance Program Rent Supplement Consolidated Homelessness Prevention Program (CHPP) Domiciliary and Emergency Hostels Emergency Shelters Rent Bank Keep the Heat Energy Fund Shelter Allowances Hostels to Homes Pilot Program Summary of Program Coordination and Service Delivery Organizational Structure Dynamics of Program Delivery Overview of Focus Group Results Anticipated Changes over the Next Five to Ten Years Effective and Efficient Programs and Policies Rent Supplements Local Priorities Opportunities Available in Windsor-Essex to Improve Access to Affordable Housing Partnerships for Supportive Housing New Spaces in Newer Places Flexibility in Addressing Poverty and Housing Recognition of Other Marginalized Groups Central Housing Registry Policies, Practices, and Procedures Current Practice Process for Identifying Need Need for Service Chronological and Priority Applications Proof of Status Appeals Process Access for and Needs of Applicants with Disabilities Applicants and Tenants on the Application Process Changes to the Application Form Capacity to Deliver Supports Waiting List Meeting the Needs of Persons with Disabilities Funding for Technology...45 iii

5 2.3.4 Funding for Hiring and Staff Development Location and Hours of Operation Summary of Challenges in the Delivery of Social Housing Programs Approaches to the Delivery of Social Housing Programs in Other Municipalities Organizational Structure and Programs Partnerships and Networks with Stakeholders in Delivering Housing and/or Homelessness Programs Opportunities for Integration of the Delivery of Housing and Other Social Assistance Programs Addressing Barriers for Persons with Physical Disabilities Evaluation of Housing Model Produced by the Homeless Coalition Summary of Issues in Improving the Delivery of Social Housing Programs and Policies...58 iv

6 List of Tables Table 1: Comparison of Shelter Allowances and Average Market Rents in Windsor, Table 2: Summary of Housing Programs Table 3: Central Housing Registry of Windsor-Essex County's Waiting List by Type of Applicant, December Table 4: Comparison of Social Housing Demand and Supply, December Table 5 : Summary of Feedback from Central Housing Registry Staff on Operational Issues List of Figures Figure 1: Selected Organizational Chart under Social and Health Services at the City of Windsor, Figure 2: Flow of Funding for Selected Funding Programs from the Province, Figure 3: Application Process at the Central Housing Registry Windsor-Essex County Figure 4: Number of Applications to the Central Housing Registry Windsor-Essex County, April 2005 to October v

7 1.0 Delivery of Social Housing Programs Background Report Three examines the delivery of social housing policies and programs in the City of Windsor and County of Essex. This report includes an inventory of social housing programs administered by the City of Windsor. This inventory includes an overview of intended goals/objectives of the program, current structure and delivery, as well as funding. Following the inventory of housing programs, this section of the report provides an overview and analysis of the structure and delivery of social housing programs in Windsor-Essex. This analysis is based largely on focus group results and information provided by various stakeholders including municipal staff and staff at the Central Housing Registry (CHR). 1.1 Inventory of Social Housing Programs The following programs comprise the inventory of social housing programs. All programs are administered by the City of Windsor as Service Manager. Programs include: Windsor Essex Community Housing Corporation (CHC) Affordable Housing Initiative/Canada-Ontario Affordable Housing Program Homelessness Partnering Strategy Residential Rehabilitation Assistance Program Rent Supplement Program(s) Consolidated Homelessness Prevention Program (CHPP) Domiciliary Hostels Emergency Shelters Rent Bank Keep the Heat (Energy Fund) Shelter Allowance Programs Hostels to Homes Pilot Program A brief overview of each program is provided in the following sections, followed by a summary table of program goals, structure, delivery, funding and partnerships (Table 2) Windsor Essex Community Housing Corporation (CHC) Windsor Essex Community Housing Corporation is the largest social housing provider in the City of Windsor and County of Essex. Managing 3,538 public housing units, WECHC provides affordable housing for seniors, families, single persons, and persons with special needs in homes ranging from low-rise apartments to town homes to single detached homes. In addition CHC administers a further 829 social housing units throughout the City and County. 1

8 The Windsor Essex Community Housing Corporation was formed in January 2007 through the amalgamation of Winhome and the Windsor Essex County Housing Corporation. The City of Windsor is the Service Manager for Windsor/Essex and the sole shareholder of the CHC Affordable Housing Initiative The Affordable Housing Initiative (AHI) is the federal government s affordable housing funding initiative implemented in 2001 and originally provided $1 billion in contributions. Agreements were signed with each province and territory that established the terms of the program, under which the provincial/ territorial governments matched the federal investment. In Ontario, it is administered by the Ministry of Municipal Affairs and Housing. The Ministry directs the allocation of units to the various Service Managers who are responsible for establishing the local council-approved program requirements for their areas. It has the following objectives: Provide economic stimulus in Ontario; Provide Service Managers and housing proponents with the flexibility to meet local housing needs; Provide dedicated units for seniors and persons with disabilities; Incorporate energy efficiency requirements and accessibility into the new units; Improve the health and safety of residents living in social housing communities; Support the development of a green economy; Contribute to the reduction of social housing project operating costs; and, Assist in the reduction of social housing wait lists. On March 20, 2009, the provincial government announced an investment of $622 million to match funding announced in the federal government s 2009 budget. This brings the overall investment for affordable housing in Ontario to $1.2 billion. The current AHP has three components: Rental Housing Component this provides funding for the creation of new affordable rental housing units, with a specific focus on housing for low-income seniors and persons with disabilities. Funding of $120,000 to a maximum of $150,000 per unit is available for eligible projects. Homeownership Component this component was developed to assist low- to moderate-income rental households to purchase affordable homes by providing down payment assistance in the form of a forgivable loan. A maximum of $50,000 per unit, or 10% of the purchase price, is available to eligible households. 2

9 Northern Component the provides assistance in the form of a forgivable loan in order to provide low- and moderate-income individuals and families with an opportunity to repair their homes, bring them up to health and safety standards, and improve accessibility for persons with disabilities. It also aims to encourage the repair of modest and affordable rental housing and prevent the loss of affordable housing stock in Northern communities. Funding of $25,000 to $50,000 is available to eligible households Homelessness Partnering Strategy The Federal government announced a new homelessness program in 2006, the Homelessness Partnering Strategy (HPS), which replaced the previous National Homelessness Initiative (NHI). The HPS is based on a housing-first approach, which emphasizes transitional and supportive housing followed by supports for the individuals. The Strategy is composed of three main components: The Homelessness Partnership Initiative (HPI) is a community-based program in which Designated Communities are eligible for funding based on identified needs. The approach encourages community involvement through the use of a community planning process and Community Advisory Boards to include local stakeholders. Funding must be matched from other sources, but can be used to support community planning efforts as well as chosen projects. Two other funding streams, for Outreach Communities and Aboriginal Communities are also available to respectively service the needs of smaller outlying communities and homeless Aboriginal people in cities and rural areas. The Homelessness Accountability Network builds on research and data initiatives such as HIFIS (Homeless Individuals and Families Information System) with the goal of developing knowledge of homelessness and improving networking and sharing opportunities. The Surplus Federal Real Property for Homelessness Initiative (SFRPHI) compensates federal departments and agencies for the transfer of surplus properties to be made available for a variety of housing uses. In 2006, the government renewed HPS funding for $526 million over two years, starting as of April The January 2009 federal budget announced new funding for social/affordable housing including $1 billion over two years for energy retrofits and renovations for up to 200,000 social housing units, $400 million over two years for new low-income seniors units, and $75 million over 3

10 two years for new supportive housing units for people with disabilities. Additionally, $150 million of this funding will be allocated to renovations and retrofits of the CMHC administered portion of the social housing stock Residential Rehabilitation Assistance Program The Residential Rehabilitation Assistance Program (RRAP), which is administered by CMHC, is designed to help low-income Canadians, people with disabilities, and Aboriginals live in decent, affordable homes by providing funding for improvements, repairs, or renovations to housing units. The general goals of this program are to provide funding to: Fix up owner-occupied or private rental properties; Modify homes for occupancy by people with disabilities; Repair and rehabilitate community shelters; Convert buildings from other uses to low-cost housing; Facilitate neighbourhood revitalization projects; and, Maximize the impact of funds from other sources. RRAP consists of eight distinct chapters, each with specific target groups or goals: Rental RRAP the component is designed to provide assistance to landlords of affordable housing in order to pay for mandatory repairs to self-contained rental units to be occupied by tenants with low incomes. Funding of up to $24,000 per unit is available to eligible applicants. Rooming Housing RRAP intended to provide assistance to owners of rooming houses to pay for mandatory repairs to housing intended for permanent accommodation at rents which are affordable to low-income individuals. RRAP for Non-Residential Conversion this component provides assistance to owners of non-residential buildings to convert their structure for use as permanent rental accommodation at rents that will continue to be affordable. Funding of $16,000 per bed or $24,000 per unit is available. Homeowner RRAP designed to provide assistance to low-income homeowners to bring their properties up to minimum health and safety standards. Properties must be lacking in basic facilities or require major repairs in one of five key areas: structural, electrical, plumbing, heating, or fire safety. Funding of up to $16,000 per home is available to eligible households. RRAP for Persons with Disabilities this provides support to low-income households with persons with disabilities who require special modifications to their residence to improve access. A maximum of $24,000 is available for eligible applicants. On-Reserve Non-Profit Housing Program designed to provide assistance to low-income homeowners on reserves in the construction, purchase and rehabilitation, and administration of suitable, adequate and 4

11 affordable rental housing on-reserve. The loans can be up to 100% of the total eligible capital of a project. CMHC delivers the program in partnership with Indian and Northern Affairs Canada (INAC) and First Nations to determine allocations of funding for eligible reserves. Home Adaptations for Seniors Independence (HASI) designed to provide assistance to homeowners and landlords to pay for home adaptations which can extend the time low-income seniors can live in their own homes independently. To be eligible occupants must be over the age of 65, have difficulty with daily activities brought on by ageing, have a total household income at or below a specified limit for the area, and have the dwelling unit in question as a permanent residence. Assistance is a forgivable loan of up to $3,500, applicable to installing elements that include handrails, easy-to-reach work and storage areas in kitchens, lever handles on doors, walk-in showers with grab bars, and bathtub grab bars and seats. RRAP for Secondary/Garden Suites this component is designed to provide assistance to homeowners to assist in the creation of secondary rental and garden suites. A secondary suite involves the creation of a unit within an existing dwelling or an addition to the home. A Garden Suite is a separate self-contained living area created on the owner s property. Homeowners, private landlords, and First Nations owning a single-family residential property that can accommodate the creation of an affordable self-contained secondary suite or garden suite will now be eligible to apply for RRAP funds. Assistance is in the form of a forgivable loan up to $24, Rent Supplement Rent supplement units provide a much needed affordable form of accommodation for low-income households. The City of Windsor administers a range of rent supplement programs including; AHP Housing Allowance (175 units), Strong Communities Rent Supplement Program (201 units), Commercial Rent Supplement (160 units) and the Stack Rent Supplement program (293 units). These programs are outlined below. Housing Allowance Program An additional component of the Affordable Housing Initiative is the Housing Allowance program. The Housing Allowance program is designed to provide immediate assistance to applicants on or eligible to be on the social housing waiting list. The program differs from rent supplement, as it is a short-term program intended to assist households for five years only and is based on flat-rate assistance per unit. Strong Communities Rent Supplement 5

12 Originally this program was 100% provincially funded, however as of September 1, 2004 it was converted to fixed funding. This program assists municipalities to provide affordable housing, based on local needs. This program was implemented prior to the recent Housing Allowance program under the new Canada-Ontario Affordable Housing Program. This funding is based on tenants income and provides them with rent-geared-to-income rent levels. The program provides a rent supplement funding for a twenty year period unlike the Housing Allowance program which is short term (five-year) program. Commercial Rent Supplement Program The Commercial Rent Supplement Program was established in the early 1980s and was transferred to local Service Managers in January of The rent supplement is provided by the Service Manager and is the difference between a tenant s geared-to-income rent and the full rental rate negotiated between the landlord and CHC. Stack Rent Supplement Program The Stack Rent Supplement Program combines the former Community Sponsored Housing Program and the former Ontario Community Housing Assistance Program. The Stack Rent Supplement Program enables nonprofit housing companies and cooperatives to offer geared-to-income units where it is determined there is a need Consolidated Homelessness Prevention Program (CHPP) This program is designed to help individuals who are homeless and those at risk of becoming homeless. This includes supportive services for hard to house populations, such as ex-offenders or individuals with mental illnesses, which can help establish and maintain living independence in their communities. The programs are developed by each municipality and community partners Domiciliary and Emergency Hostels Under CHPP, the province provides funding for the 280 domiciliary hostels and numerous emergency hostels throughout Ontario. The domiciliary facilities serve individuals with mental health and addiction issues, developmental disabilities, as well as frail and elderly individuals by providing accommodation and supportive services. Emergency hostels emphasize short-term accommodations, board, and personal needs items as well as various supports needed by individuals and families who are homeless and help provide transitional services by moving people off the street and connecting them with resources and community services that can help them. The per diem costs are shared between the province and municipalities. 6

13 1.1.8 Emergency Shelters There are six emergency and transitional housing facilities in Windsor/Essex. The City of Windsor has agreements with both the Salvation Army and the Well- Come Home Emergency Shelter for Women. Cost sharing with the province, funding is provided for 11 beds at the Well-Come Home Shelter and 59 beds through the men s shelter. Funding is also provided on a case-by-case basis for families to use motels as emergency housing Rent Bank The province s Rent Bank program is administered and funded through the Ministry of Municipal Affairs and Housing, and was first launched in 2004 to provide funding to existing municipally-run rent banks, or help service managers set-up rent banks. The program is intended to promote housing stability by assisting low-income people who have short-term rental arrears in avoiding eviction. It is also intended to divert people from emergency shelters, thus creating cost savings for the Province and municipalities who share responsibilities for shelter costs. Rent bank programs are generally administered directly by the Service Manager or by a community agency. The City of Windsor rent bank program is available for low income tenants who, as a result of an emergency, are in short-term arrears and are facing eviction. Funding must not exceed two times the average market rent for the area. Assistance may only be issued once every two years. An applicant applying for assistance must: Be a resident of the Service Manager area and meet requirements for status in Canada Have an income that is not from Ontario Works or the Ontario Disability Support Program. Be in immediate danger of losing his or her residence due to unpaid rent N4/mediated agreement. Not be receiving Rent-Geared-To-Income assistance. Be at the residence for a minimum of one year Have household income below the household income limits as set by the Ministry Keep the Heat Energy Fund Keep the Heat is an emergency energy assistance program which provides funding for heat and energy for individuals and families experiencing financial difficulties and who have received a notice of termination of heating utilities. The program also offers workshops to educate consumers on how to conserve and better use energy within their household. 7

14 Shelter Allowances There are two shelter allowance programs in Ontario which provide income and employment support for eligible households: Ontario Works and Ontario Disability Support Program. Ontario Works (OW) provides financial and employment assistance to individuals who are in temporary financial need. Financial assistance helps cover the costs of basic needs such as food, housing, and clothing and some health benefits are also covered such as dental and drug coverage. Employment assistance provides job-skills training, and education programs. The Ontario Disability Support Program (ODSP) provides income and employment supports to individuals with disabilities and their families who are in financial need. The income supports helps pay for food, housing, as well as some health benefits such as dental and drug coverage. The employment support provides a variety of help to individuals to train for a job, find employment, or keep a job. It also includes software or mobility devices that can help individuals with their job. The 2006 Provincial Budget of March 2006 provided for a 2% increase to both Ontario Works (OW) and ODSP payments. This announcement resulted in an increase to the shelter allowance of an individual on OW by approximately $7 per month, and $9 per month for an individual on ODSP. This change was implemented as of November (ODSP) and December (OW) A further 2% increase to OW and ODSP rates was made as of November The 2008 Provincial Budget included a further increase of 2% to the OW and ODSP basic adult allowance and maximum shelter allowance rates, with a $123 million funding commitment for 2008 to The 2009 Ontario budget included an increase of 2% for the basic and shelter allowance components of Ontario Works and ODSP. An important component, and barrier to affordability, is how much people earn as it directly affects their capacity to access housing. This is especially true for lower income households. Table 1 below shows that the current maximum shelter allowances available are not sufficient for households receiving financial assistance to afford the average market rents in Windsor. This severely limits the housing choices of low-income families and households. 8

15 Table 1: Comparison of Shelter Allowances and Average Market Rents in Windsor, 2009 Unit Size Maximum Shelter Allowance Ontario Works Ontario Disability Support Program Average Market Rents 1 Bedroom $364 $464 $682 2 Bedroom $572 $729 $ Bedroom $620 $791 $829 Source: CMHC Rental Market Report, 2008; Ontario Works Act; Ontario Disability Support Program Act Hostels to Homes Pilot Program The Hostels to Homes (H2H) Pilot Program is an MCSS initiative with the purpose of assisting chronic hostel users in attaining safe, appropriate, affordable and stable accommodation. It is based on a Housing First approach where the emphases is on helping homeless people to quickly access and sustain housing. The program is premised on research findings that homeless people are more responsive to intervention and social service supports after they are in their own housing. The three key components of the H2H Program are: 1. Crisis intervention and needs assessment 2. Re-housing to more permanent accommodation. 3. Wrap-around supports based on individualized case management. These supports include health, addictions services, life skills training, informal counselling, and employment supports. The H2H Program aims to return the use of emergency hostel services to its original intent, which is for short term and infrequent use. It also aims to enhance coordination and integration of housing and other support services and to produce long-term savings for the province and municipalities. Phase I of the program began in January 2007 and Phase II began in January 2008 with the expected final end date of the pilot program to be June There are six municipal pilot sites: Hamilton, Kingston, London, Ottawa, Toronto, and Windsor. All pilot sites involve working in collaboration with hostels and other community service providers although the level of integration for service delivery varies among the sites, resulting in two major service delivery models: purchase of service agreements and direct delivery. The target population of the H2H program are single adult males, families, youth, single women, and the hard-to-house who are chronic hostel users, spending 30 days or more in a hostel per year, and who are eligible for Ontario Works assistance. The benefit is provided in full for the first 12 months of 9

16 participation in the program with phase-out services beginning in the 12 th month and is completely phased out after 18 months. After the 18 months, eligible participants receive regular income assistance and benefits. The amount of funding provided is the difference between the maximum monthly emergency hostel per diem and the Ontario Works basic needs and shelter and shelter allowance. Approximately $800 is provided for a single participant. 1 1 Ministry of Community and Social Services, Ontario Works Branch (2009). From Hostels to Homes: Presentation to the National Housing Research Committee 10

17 Program Community Housing Corporation (CHC) Canada-Ontario Affordable Meeting Community Needs Largest social housing provider in Windsor/Essex Provides homes to seniors, families, single persons and persons with special needs Includes high rise apartments, low rise apartments, town homes, row housing and detached homes An agreement between Ontario Table 2: Summary of Housing Programs Program Structure Program Delivery Funding/Costs CHC was created in January 2007 through the amalgamation of two organizations; Winhome and Windsor-Essex County Housing Corporation The City of Windsor is the sole shareholder of CHC Operates at arm s length from the City with a Board of Directors of 15 members; including City of Windsor Councillor representation, Essex County representation, members at large from community and two tenant representatives Four components; rent supplement, CHC operates under a decentralized district management system with strong centralized support The districts are supported by Operations, Asset Management, Finance and Corporate Services Social housing units as well as rent supplement units are managed by six districts Units are accessed through the Central Housing Registry which administers all applications for social housing in the city of Windsor and County of Essex The City of Windsor is Forecasted capital expenditures include general building maintenance, heating and plumbing, and energy conservation. The CHC has a total budget of $29,697,665 for capital expenditures between 2010 and 2015, with 41.8% of the budget to be spent during the first year. Non-profit family and seniors units are estimated to need $2,740,000 instead about 9.1% compared to the CHC s requirements. Under the homeownership Partnerships (departments/programs/ committees) Rental inquiries for the public housing stock are made through the Central Housing Registry Summer Recreation Program offers free day camp for kids aged It was offered in six communities in Programs such as fire safety, income tax workshops are offered periodically by location VON Program Community Living Essex County and Windsor Hiatus House Canadian Mental Health Association Windsor Essex County Children s Aid Society Citizens Advocacy of Windsor Essex Grandview Youth Centre University of Windsor Community Revitalization Partnership Support for Daily Living Program 7 of the homeownership units were committed to 11

18 Program Housing Program (AHP) Homelessness Partnering Strategy Meeting Community Needs and Canada to each commit to $734 million to the development of affordable housing Funding extends to March 31, 2010 Recent announcements include new funding for energy retrofits and renovations to social housing units HPS replaced the previous National Homelessness Table 2: Summary of Housing Programs Program Structure Program Delivery Funding/Costs rental and supportive, brownfields, northern, and homeownership Program is administered by the Ontario Ministry of Municipal Affairs and Housing (MAH). The Ministry directs the allocation of units to the various Service Managers (i.e. City of Windsor) across the province. The Strategy is composed of three main components; responsible for establishing the local councilapproved program requirements for Windsor/Essex Program is administered through the City component the City of Windsor and County of Essex received an allocation of $981,000, resulting in the addition of 104 units with an additional 15 committed to purchase Under the Rental and Supportive stream, the City of Windsor was allocated $9.1 million, resulting in 130 new units of affordable housing built The City of Windsor was allocated 140 units or $1.848 million under the Housing Allowance program The City of Windsor received $661,534 Partnerships (departments/programs/ committees) Habitat for Humanity 12

19 Program Residential Rehabilitation Assistance Program (RRAP) Meeting Community Needs Initiative Based on a Housing First approach which emphasizes transitional and supportive housing followed by supports for the individual RRAP is designed to help low-income Canadians, persons with disabilities and Aboriginals live in decent affordable housing by providing funding for improvements, repairs, or renovations to housing units Table 2: Summary of Housing Programs Program Structure Program Delivery Funding/Costs Homelessness Partnering Initiative, Homelessness Accountability Network; and the Surplus Federal Real Property for Homelessness Initiative Under the HPI designated communities (including the City of Windsor) are eligible for funding based on needs RRAP consists of eight chapters with specific target groups or goals: Rental RRAP, Rooming House RRAP, RRAP for Non-Residential Conversion, Homeowner RRAP, RRAP for Persons with Disabilities, On-Reserve Non- Profit Housing Program, Home of Windsor Six projects and served 1,167 individuals in 2008 Under the program a homeowner would meet with a City of Windsor Housing Loans Officer to review the application and its process Upon completion the application would go to CMHC for approval Once approved a Building Inspector Funding must be matched from other sources Funding can be used to support community planning as well projects Funding is in the form of forgivable loans The Building Department at the City of Windsor receives approximately $500,000 for all components of RRAP. They bring in about $40,000 a year but estimate that it Partnerships (departments/programs/ committees) CMHC 13

20 Program Rent Supplement Meeting Community Needs Rent supplement units provide rentgeared-to-income accommodation in buildings owned and operated by private sector landlords (45%) and non-profit housing providers (55%). Table 2: Summary of Housing Programs Program Structure Program Delivery Funding/Costs Adaptations for Seniors Independence, RRAP for Secondary/Garden Suites The City of Windsor administers a range of rent supplement programs including; Strong Communities Rent Supplement Program (201 units), AHP Housing Allowance (175 units), Commercial rent supplement (160 units) and the Stack Rent Supplement program (which combines the former Community Sponsored Housing Program and the Ontario Community Housing Assistance Program) (293 units) would approve the work Payment is requested by the contractor through the Housing Loans Officer to CMHC Rent supplement units are first offered to the private sector and failing full take-up of the units, they are allocated to non-profit providers takes twice as much to run the program. Units under the Strong Communities are funded until 2023 Units under the Commercial Rent Supplement have a maximum life span of 35 years some which will expire in 2011 Units under the Housing Allowance will expire in 2013 $1.848 was allocated to the City of Windsor/County of Essex under the Housing Allowance program Partnerships (departments/programs/ committees) Private landlords Non-profit housing providers 14

21 Program Consolidated Homelessness Prevention Program Domiciliary Hostels Emergency Shelters Meeting Community Needs Homeless prevention program to assist persons who are homeless or at-risk of homelessness Residential care for persons who have mental health or intellectual challenges or who are frail/elderly and who require supervised care Domiciliary hostels provide permanent housing, room and board, personal support and some assistance with activities of daily living to vulnerable adults There are six emergency and transitional housing facilities in Windsor/Essex as Table 2: Summary of Housing Programs Program Structure Program Delivery Funding/Costs Program offers various types of assistance with the aim of providing emergency assistance to lowincome families and individuals that are at-risk of becoming homeless The City of Windsor partners with community agencies to provide domiciliary hostel services and support to individuals with special needs The Social Services Department has an arrangement with two Emergency Hostels in the City 7 agencies in Windsor/Essex served 27,000 households in 2008 Funding for domiciliary hostels if for permanent housing with limited supports with limited financial resources for persons who require some supervision and supports Subsidies with 13 homes in Windsor serves 367 persons per month The City of Windsor, through cost sharing with MCSS, provide funding for 11 Funded through MCSS Receive $401,607 annually Annual funding is $2,832,724 Cost shared with MSCC 80:20 Funding is provided by way of per diem Spent approximately $930,000 in 2008 Cost shared with MCSS 80:20; 1 Partnerships (departments/programs/ committees) Shelters with funding provided by the City are run by Salvation Army (men s shelter) and Well-Come Home 15

22 Program Meeting Community Needs well as emergency beds available through Canadian Mental Health Association and the Windsor Y Residence Provide food and shelter to homeless men and women in Windsor/Essex Table 2: Summary of Housing Programs Program Structure Program Delivery Funding/Costs (Salvation Army and the Well-Come Home Emergency Shelter for Women) beds in the women s shelter and 59 beds in the men s shelter as well as funding for families to use motels Served 2,918 individuals in 2008 women shelter (11 beds) and 1 men's shelter (59 beds) and motel use Partnerships (departments/programs/ committees) (women s shelter) Rent Bank Program provides funds to assist low income households with rental arrears to prevent eviction Applicants can apply for assistance through the City of Windsor Program is administered by the City of Windsor and funded through MMAH Provides up to 2 months ($1,500) rental arrears to individuals and families in imminent danger of eviction in Windsor/Essex Applicants can only receive assistance once in a two-year period Rental arrears must be not greater than 2 months Applicants must be at the residence for a min. of one year Applicants must be able to maintain the units after arrears are paid Served 195 households in 2007 and 247 in Funded through MMAH No set funding amount In 2007 received $478,662 and in 2008 received $88,089 16

23 Program Emergency Energy Fund (Keep the Heat program) Shelter Allowances Meeting Community Needs Provides funds to low-income residents to assist with energy arrears, security deposits and reconnection fees Provides income and employment support for eligible households under the Ontario Works (OW) program and Ontario Disability Support Program (ODSP) OW provides assistance to those in temporary financial need ODSP supports individuals with disabilities and their families who are in financial need Table 2: Summary of Housing Programs Program Structure Program Delivery Funding/Costs Application sites are located throughout City and County Applications are then submitted to the City of Windsor Both application processes must be initiated through the Ontario Works offices located at City Hall and in Leamington, along with proof of financial criteria For ODSP, medical proof must be provided with OW application to show eligibility for ODSP 2008 Program is administered by the City of Windsor Applicants must be in receipt of a notice of termination of heating utilities Served 119 households in 2008 Ontario Works is administered by the City of Windsor and ODSP is administered by the Ministry. The Employment Resource Centre is located at City Hall as well, and proof must be provided that recipient is looking for work Funded through MCSS Receive $64,310 annually Both programs are funded by MCSS City of Windsor budgeted $82,352,351to run the OW program in 2009 $20,403,426 to run ODSP program in 2009 Partnerships (departments/programs/ committees) Applicants may be eligible for ODSP Employment Supports while participating in Human Resource and Service Development Canada (HRSDC) Employment Assistance Services if they have exhausted the services and supports available from HRSDC/ Employment Insurance but require further supports to remove disability-related employment barriers 17

24 Program Hostels to Homes Pilot Meeting Community Needs To stabilize the use of emergency shelters and return its service delivery to its original intent (short-term and infrequent) by providing permanent housing and supports to chronic shelter users Table 2: Summary of Housing Programs Program Structure Program Delivery Funding/Costs This is an MCSS initiative It is based on a Housing First approach Program includes 3 key components; crisis intervention, re-housing to more permanent accommodation, and wrap around supports based on individual case management. 15 participants funded in Phase I (2007/2008) and 15 during Phase II Funded through MCSS and Ontario Works 80:20 Partnerships (departments/programs/ committees) 18

25 1.2 Summary of Program Coordination and Service Delivery Organizational Structure Employees at the City of Windsor addressing housing and homeless programs are housed under the service area of Social and Health Services. Comprised of Ontario Works, and Housing and Children's Services, this service area provides a diverse range of human services to City of Windsor residents. They aim to enhance the quality of life of individuals and families as they deliver or partner with community agencies to provide employment, financial assistance, housing supports and children's services. The Housing and Children s Service portion oversees the staff who are responsible for social and public housing policies and programming, homelessness (such as shelters and domiciliary hostels), and children s services. Social Services deals with the provision of social assistance, mainly through Ontario Works and its partner programs such as the Resource Centre and family support. Additionally, each of these departments are also comprised of administrative staff and additional roles, such as the Diversity and Accessibility Officer, clerks, and a Staff Development Coordinator, the last of whom works specifically with Ontario Works staff. These departments also work with additional staff members, particularly with programs such as the Residential Rehabilitation Assistance Program (RRAP), which is offered jointly with the Building Department; and with the office of the Chief Administrative Officer (CAO) to continuously improve the delivery of City services and programs. They also act as resources to the Housing Advisory Committee; which advises, educates, and advances the awareness of City Council on issues relating to affordable housing in Windsor and Essex County. As members of Council do sit on this Committee and staff members here interact with these representatives, they can help inform and raise awareness about the way programs operate. The following chart illustrates the organizational structure of Social and Health Services at the City of Windsor. 19

26 Figure 1: Selected Organizational Chart under Social and Health Services at the City of Windsor, 2009 General Manager, Social and Health Services Executive Director of Social Services Executive Director of Housing and Children's Services Administrative Assistant Administrative Assistant Diversity and Accessibility Officer Manager, Ontario Works and Staff, including Policy and Proceduure Coordinator, Family Support Workers, Intro/Intake Workers, and Job Developer Manager, Ontario Works and Staff, including Ontario Works Supervisors and Caseworkers Manager, Residential Support Services with Clerk Steno (1) Supervisor, Domicillary Rest Homes with Social Worker (1), Caseworkers (Rest Home) (5), Clerk Junior (Team) (1) Coordinator, Housing Administration and Policy Coordinator, Housing Administration and Development Maintenance/ Technical Support Person Social Housing Analyst Manager, Ontario Works and Staff, including Social Workers, Job Developers, and Resource Centre staff Children's Services System Manager and Staff Manager of Administration and Staff, including Clerks and Staff Development Coordinator Manager of Municipal Early Learning & Child Care Centres and Staff 20

27 The City staff then fit into the larger picture of program and funding delivery in Ontario. Figure 2 illustratesa segment of the funding programs and how they are delivered from the Government of Ontario down to the City and/or other community members and agencies. The Ministries that fund such programs are comprised mainly of the Ministries of Community and Social Services (MCSS), Municipal Affairs and Housing (MMAH), and Health and Long-Term Care (MOHLTC). Most funding programs from the MCSS are administered by the Service Manager, with funding flowing first to the City of Windsor. The Ontario Works shelter component is the only part of the Ontario Works package funded by the Ministry (the remaining is funded through the City). This portion goes directly to the household in the community, so that they are able to look for their shelter wherever they may choose as long as it fits within the allowance. Some funding programs, such as the emergency shelters and Consolidated Homeless Prevention Programs, stop right at the City level and do not redirect funding again to the individual household. MMAH provides funding to the City mainly through programs that have an emphasis on infrastructure, such as the Affordable Housing Program (AHP), the Residential Rehabilitation Assistance Program (RRAP), and the Rent Bank. The MOHLTC recently implemented the Local Health Integration Networks (LHINs) and their affiliated Community Care Access Centres (CCACs) in a move to localize healthcare; following regionalization efforts in provinces like Quebec and Saskatchewan. The LHIN is the head body on the planning and funding of healthcare while the CCAC provides community and health care services, long-term care placement and referrals. The LHIN provides funding to community and social service agencies, who may work with housing providers in order to provide certain tenants with support services. The three ministries also provide a joint program called the Strong Communities Rent Supplement, a long-term rent-supplement program which is designed to provide funding for regular and supportive housing units. While the MMAH designed the guidelines and monitors the project, the MCSS and the MOHLTC provide the funding required for supports. Having various programs strives to ensure that different needs are addressed. As emphasized below, this is only a selective portion of funding programs available to the City of Windsor in order to address housing and homelessness. It does not account for federal dollars, other sources of funding, or other programs that indirectly fund housing and homelessness work and activities. 21

28 Figure 2: Flow of Funding for Selected Funding Programs from the Province, 2009 Ministry of Community and Social Services (MCSS) Ministry of Muncipal Affairs and Housing (MMAH) Ministry of Health and Long- Term Care (MOHLTC) Strong Communities Rent Supplement MMAH develops and monitors guidelines while MCSS and MOHLTC designates support services. Ontario Works (Shelter Allowances) Provincially administered Emergency Shelters Consolidated Homelessness Prevention Program Domicillary Hostels Ontario Disability Support Program (ODSP) Social Housing funding Canada-Ontario Affordable Housing Program (AHP) Residential Rehabilitation Assistance Program (RRAP) Rent Bank Erie-St. Clair Local Health Integrated Network (LHIN)/ Community Care Access Centre (CCAC) LHIN decides where the funding should go when it is recieved by the MOHLTC; while CCAC provides nformation and locations of community and health care services, long-term care placement and referrals. Individual and/or Family (Household) Homelessness Partnering Hostels to Homes Pilot Emergency Energy Fund City of Windsor All program funding is distributed here (see previous Figure for organizational breakdown) Ontario Works Municipally funded - Residential Rehabilitation Assistance Program (RRAP) - Ontario Disability Support Program (ODSP) Provincially funded, municipally administered Community healthcare and social services providers, particularly those who provide services for seniors Long- Term Care Homes In supportive housing, an agreement is reached between a) community healthcare and social services providers, or in some cases long-term care homes, and b) housing providers. The former provides the support services (as the service provider) while the housing provider will provide the housing (the "bricks and mortar"). This allows partnerships to build upon existing infrastructure and organizational capacities. Community Housing Corporation (CHC) and Non-Profit Housing Providers 22

29 1.2.2 Dynamics of Program Delivery This section provides an overview of discussions with City staff, including their perspective on operations. Overall, most agencies and organizations that work within the realm of housing and homelessness interact closely and are well coordinated. Through committees and groups like the Housing Advisory Committee (HAC, a City council committee), the Central Housing Registry Advisory Committee (CHRAC), and the Homelessness Coalition of Windsor Essex County (HCWEC or Homeless Coalition),agencies involve each other on a regular basis and usually keep each other informed of their work and explore opportunities to integrate their efforts and services. Housing Administration, Policy, and Technical Support The housing administration and policy staff have an overarching role in the delivery of housing administration and policy.. Areas of concern expressed by staff include working with providers around changes; substantiating their budgets; and developing policies and rules. Priority Two status, though a current policy, is one example of a change that required immediate attention by providers. With 39 providers, staff and providers acknowledge the need to meet more often to ensure effective communication on policy and other arising issues. The administration of various funding sources also was expressed as a challenge. There are seven different financial programs available within the City of Windsor for housing, and each one is required to provide annual reports. Generally, costs are rising faster than funds are being brought into the system, and though they are meeting their financial obligations, there are still budget restraints from the City. Staff mentioned that there were often roadblocks during the program delivery process, particularly around the requirements for reporting, as the social housing format is binding. If staff members would like to be proactive and go beyond the bare minimum in order to tailor the programs and funding to the area s needs, they are required to go through Ministerial Consent and then council, and these approval processes take time and work that may not be realized in the end. Municipal funding, particularly, is very tightly controlled since the City is often held liable by the Ministry to make such initiatives happen if they are approved. Staff point out that the Social Housing Reform Act dictates how funding should be allocated for different providers; although they expressed that this does not fit the realities on the ground in the City of Windsor. The administration also could use some assistance with information technology. For example, the administration s tracking sheet is basic and staff would welcome the possibility of having more specialized software.. Although 23