September 21, 1998
To:Community and Neighbourhood Services Committee
From:Commissioner of Community and Neighbourhood Services
Subject:Extension of the Seaton House Annex
Purpose:
This report proposes that Hostel Services explore the feasibility of developing an innovative
extension of the Seaton House Annex, in a rural setting, for a select group of high needs
clients.
Funding Sources, Financial Implications and Impact Statement:
Preliminary estimates for this 16 to 20 bed rural extension of the Seaton House Annex are
about $740,000.00 annually. This type of service and these costs are not covered under
existing regulations for hostel subsidies. Accordingly, this innovative proposal could not
proceed without Provincial support. The Department has requested this support from the
Provincial Task Force on Homelessness, which is Chaired by Jack Carroll, MPP
(Chatham-Kent).
Recommendations:
It is recommended that:
(1)the concept of developing an extension of the Seaton House Annex in a rural setting be
approved in principle;
(2)staff be directed to seek appropriate support and funding from the provincial government;
(3)staff report back to Committee with a final set of recommendations before proceeding with
the development of this project; and
(4)the appropriate City officials be authorized to take the necessary action to give effect
thereto.
Council Reference/Background/History:
The Coroner's Jury which investigated the freezing deaths of three homeless men,
recommended among other things, that a "wet hostel" be established for the hard to serve
alcoholic man living outside. Hostel Services responded by opening the Seaton House Annex
in the former O'Neill Bathhouse. The Annex operates on a harm reduction philosophy which
views substance abuse as a health issue.
The Annex opened in late 1996 and has been a success from the first day. It now has 51 beds
and is definitely reaching a group of men who previously were not being assisted. The
demand is so great that all the beds are filled every day and many men are turned away who
could be helped.
Comments and/or Discussion and/or Justification:
More needs to be done. The Annex is consistently full and the closure of the St. Lawrence
Shelter, which served a similar client group, requires some sort of action to deal with these
needs.
Additionally, within the Annex program, we have identified some men who continue to be at
great risk and who also have staggering impact on other community services, emergency
services and downtown neighbourhoods. There are better ways to help these men and at the
same time to lessen this negative impact on the community.
Therefore, we are proposing that a pilot program be developed by the Annex staff called the
Annex Sanctuary. This program would assist 16 to 20 men meet their needs by living and
working on an operating farm. It would be an extension of the harm reduction model
developed by the Annex and participation would be voluntary.
The Annex Sanctuary will focus exclusively on men whose needs are not being met by
existing hostels and treatment services, and who are in constant interaction with emergency
services, police, hospitals, corrections, social agencies and local businesses and home owners.
The intent of the program is win-win for both the client and the community.
The focus of the Annex Sanctuary will be to operate a mixed labour-intensive agricultural
farm with an animal sanctuary component. It could include a small variety of livestock, cash
crops, fruit trees and related cottage industries. Experts in agriculture and animal rescue and
care would be brought in to assist the men in the proper management of the farm. Some
produce could be supplied to the hostels in the City.
The program will give the men a chance to learn new routines, social skills, earn and save
some money, and reduce or even eliminate their use of alcohol. This setting and working with
animals can have therapeutic value, and at the same time help men escape the vicious cycle of
skidrow culture, where they alternate between the roles of victims and victimizers.
The Annex Sanctuary proposal can best be described as an innovative diversion program. The
Seaton House Annex has been very successful in bringing men in off of the streets. Some of
these men had been living on the streets for years. But the Annex is not enough for some of
these men. The Annex Sanctuary proposal allows us to take the process one step further and to
test out yet another new approach.
Financial Implications
The Annex Sanctuary will not be self sustaining. The productive revenues are likely to be
very modest relative to the overall cost. We expect that the unit cost (cost for one day per
individual) will be about three times higher than the current unit cost of Seaton House.
However, if this program is successful and if it remains focused on the most needy men, then
the costs are entirely justifiable. We have asked the provincial government to fund this
project.
Staff have consulted with a variety of services impacted by this population including
hospitals, the 911 response system, police, courts, corrections, hostels, and Metro Toronto
Forensic Services. Using the records and costing data from these services, we did a detailed
analysis on three known clients. The results were as follows:
(1)Mr. A: A chronic alcoholic, with an organic brain disorder due to his addiction. Mr. A is
currently barred from every shelter in Toronto except the Annex night program. Before the
opening of the Annex, he had been barred from Seaton House off and on for ten years. In the
last year, emergency services (Police, Ambulance, Fire Department) have responded 27 times
for Mr. A. Police have had 32 official interactions with him, and he has served three months
in jail (predominantly in the forensic unit). The local business association has written letters to
the police claiming this individual alone is costing them thousands of dollars per year because
of his aggressive panhandling techniques and penchant to pass-out in front of businesses who
refuse to give him money to go away.
Current Estimated Annual Cost to Society = $112,704.00 (does not include estimated medical
costs)
(2)Mr. B: This thirty-nine year old man is a diagnosed schizophrenic, crack addicted, and
chronic solvent abuser (inhalants abused include glue, paint thinner, varsol). Mr. B's illness
began when he witnessed his sister committing suicide by jumping in front of a subway. In
the past twelve months emergency services have responded six times to Mr. B., police have
had 47 official interactions with him, he has been incarcerated for three months, and as well
has been assessed at Metfors. Mr. B is continually arrested for shoplifting solvents. As well,
he has the propensity to commit bizarre crimes, such as the theft of emergency vehicles. When
Mr. B is not incarcerated, he is a regular client of the Annex night program ( 19 years on the
street).
Current Estimated Annual Cost to Society = $186,000.000 (does not include estimated
medical costs)
(3)Mr. C: At thirty-three years old, Mr. C has been diagnosed a chronic alcoholic since the
age of fifteen when he first arrived at Seaton House. His severe alcoholism is ascribed to
emotional and physical abuse suffered as a child. Emergency services have responded to Mr.
C 54 times in the past year, he is picked up weekly for public intoxication, and regularly uses
local detox centres for respite. Over the years, Mr. C has spent time abroad in a variety of
treatment programs, none of which, have helped him with his problems. (18 years on the
streets)
Current Estimated Annual Cost to Society = $151,000.00 (does not include estimated medical
costs)
This is a mere sample of the misery and social expense which clients served by the Annex
harm reduction program experience. As the profiles demonstrates, the expense (these
estimates are conservative) caused by these men not having alternative programs, hurts not
only them, but the community as well. The men are suffering terribly, and because they are
also homeless, they do so very publicly.
Conclusions:
New solutions are needed. The City is straining under the burden of these acute social needs.
The men involved are suffering and will never break this cycle without special help. The
Annex staff have proven that they understand these men and know how to help them. The
majority of homeless men do not exhibit such extensive needs. However, we estimate that on
this extreme end of the scale there may be as many as 150 - 200 such individuals on the streets
of Toronto.
The Annex Sanctuary proposal is a medically, socially and economically sound way to help
this population. It is also a unique opportunity for men who need help to care for animals
which are unwanted.
Contact Name:
Joanne Campbell
General Manager of Shelter, Housing and Support Division
Tel.: (416) 392-7885
Fax: (416) 392-0548
Shirley Hoy
Commissioner of Community and Neighbourhood Services
