September 21, 1998

To:Community and Neighbourhood Services Committee

From:Commissioner of Community and Neighbourhood Services

Subject:Progress Report on Seaton House Restructuring, Downtown

Purpose:

To provide Committee with an update on the progress being made on the restructuring of Seaton House specifically in the area of architectural plans, program re-design and human resource planning.

Funding Sources, Financial Implications and Impact Statement:

Funds for the capital renovation are included in the 1997 - 2001 capital budget. Final funding impact of the program and human resource design will be included in the 1999 and 2000 budgets, although it is anticipated that much of the program redesign will be funded through the reallocation of existing resources.

Recommendations:

It is recommended that this report be received for information.

Council Reference/Background/History:

On January 29, 1997 the Council of the former Municipality of Metropolitan Toronto adopted a report which initiated the Seaton House re-structuring process, and established a panel to assist the Commissioner in implementing the changes recommended in that report. On July 3, 1997, Council received and approved a report on the consultations regarding the re-design of programs at Seaton House. Since that time, Council also approved two other reports supporting the process of re-structuring, one regarding the hiring of the architect and the other regarding the hiring of a human resource consultant.

Comments and/or Discussion and/or Justification:

Background

In 1996, the Hostel Services Division (Community Services Department) of Metropolitan Toronto secured funding, cost-shared with the Province of Ontario, for the physical renovation of Seaton House. The January 1997 report regarding the restructuring of Seaton House provided an overview of why change needed to take place in the 40-year old institution. The report established some principles regarding the re-structuring of Seaton House, including: a recognition of the unique and different needs of the individual clients in Seaton House as well as this agency's role in assisting individuals take greater ownership in the direction of their lives and achieve their potential in breaking the cycle of homelessness. In order to support these basic principles, Seaton House needed to move from being a "large inflexible institution" to a setting in which services are provided in smaller units designed around common resident needs. Additionally, there needed to be improvements and changes made to the support programs, with redefined resident-staff relations. The report noted that changes of this magnitude would require major program and structural changes including a physical re-design and a human resource re-organization. The report further recommended the establishment of a panel to assist the Commissioner in moving the restructuring process forward.

The panel, which is made of representatives of the community, Local 79, and Seaton House front-line and management staff began meeting in February of 1997. The first step taken by the panel was the hiring of consultants to conduct discussions with key-stakeholders regarding the proposed restructuring. Jim Ward and David Reville were selected for this process and in May of 1997 provided the panel with a report detailing the reactions of the community to the proposed changes. The consultants' report further provided restructuring recommendations based on the feedback received from stakeholders. The results of the report and the panel's response to it were reported to Council in early July of 1997. At that time, the mandate of the panel was extended in order that they could further support the program redesign and have input into the physical redesign and human resource plan. The panel continues to meet on a monthly basis.

Current Status of Seaton House Re-structuring

The staff of Seaton House and the restructuring panel have made significant progress in moving the planned restructuring of Seaton House forward.

(1)Program Redesign

The panel and staff have refined the original proposal regarding program redesign. The current model provide for four units which will support a maximum of 500 clients. This reduction of capacity will improve the quality of life for residents and the working environment for staff. In setting a ceiling to its numbers, Seaton House is acknowledging its finite resources coupled with its dependence on other agencies and on other City resources. A referral system will be in place when the maximum number of residents is reached.

The four units will be: the emergency shelter with 200 beds and a recreational space; a transitional housing program with 125 beds; a seniors program with 125 beds; and a harm-reduction program with 50 beds. Twenty-four hour reception/intake will be provided at the main entrance. Centralized services available to all clients will include health care, meals/dining rooms, laundry, resource centre and personal supports. Counsellors will be based in all four programs and readily available to the residents, bringing social work to the floor.

(2)Physical Redesign

In May of 1997, Hilditch and Associates were selected as the architects for Seaton House. Since that time, they have engaged in a major consultative process with the staff and clients of Seaton House, as well as the community and panel, in order to advise the development of architectural plans for the renovation. The architects have used the program redesign plans to guide their building design and there have been numerous meetings with the restructuring panel to elicit suggestions and feedback as the drawings have developed. Additionally, staff have met with the local Councillors to inform them of the anticipated changes to the building. It is expected that actual renovations will begin in the spring of 1999 with a completion date of the end of the year 2000. It is anticipated that construction will be done in stages with temporary bed closures, although other temporary site options are being explored to expedite the renovation process, minimize disruption and maximize the budget available.

(3)Human Resource Plan

The scale of change at Seaton House necessitated a review of the existing human resources model. It was apparent that with major program changes there would also need to be a redesign of the organizational structure, a revision of job descriptions and a transition plan to assist staff in adapting to a new structure which responds more effectively to residents' needs in a more holistic approach to service. In January 1998, Brillinger Francis Consulting Inc. were hired to develop a human resources plan for the Seaton House restructuring project. They also have been involved in discussions with staff and clients, with the restructuring panel and community partners. Their work has been guided by a number of principles including:

(a)keeping the organization flat and streamlined;

(b)retaining existing job positions unless there is real and significant change in job content;

(c)"retooling" staff to make positions more effective;

(d)keeping the security and safety of clients and staff a priority while providing a more coordinated and cohesive service to clients; and

(e)developing broad generic positions where possible.

The final report of the consultant was received by the Director of Hostel Services in July 1998, to be distributed in the fall of 1998 as the basis for further discussions and negotiations with CUPE 79, City Human Resource staff, Seaton House staff and the panel.

See attached appendix for more detailed information on program redesign, consultation process and partnerships.

Other considerations

Since 1991, staff at Seaton House have been supported and advised by the Seaton House Advisory Committee. This committee (not to be confused with the Restructuring Panel) meets on a monthly basis and is made up of representatives from community agencies and advocates , local ratepayers, and Seaton House front-line and management staff. Their mandate is to address quality of life issues for residents and identify needs, facilitate and monitor the change process, act as a community support and advocate for residents and promote effective relationships with the community. This committee has met during the restructuring process although the restructuring panel is taking the lead in coordinating the major changes taking place at Seaton House. Once the major changes have been completed, there may need to be a review of the mandate and role of this committee, considering the advisory body's relationship to each of the four program areas. It must be recognized that there is also significant restructuring taking place at the corporate level including the amalgamation of the Hostels and Housing Divisions and that this may affect the role and form of any advisory body.

Conclusions:

Significant progress has been made towards the restructuring of Seaton House. Staff will continue to keep Committee up to date on these restructuring activities.

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

Seaton House

Progress Report: Appendix Notes

98/09/21

(1)Program Redesign: Setting the Stage

The success of a "new Seaton House" depends on a review and renovation of programs. This foundation of the changes currently taking place were begun through the implementation of recommendations in the 1993 report, "Mapping a Model for Change" (see Consultation Process and Recent Progress, below). Some of these initiatives have included:

(a)Hostel Day Program

Since the fall of 1993, hostel residents have the option of staying indoors between the hours of 8:00 a.m. and 4:00 p.m., when the dormitories are closed. With input from the residents, staff have been developing programs, from recreational to self-help to educational. A resource room with computers and job listings is available. While originally two staff were assigned to work within this program, it has developed into five full-time and one part-time staff person, to be able to respond to the needs of the residents.

(b)Housing Worker

Full-time position established in 1995, in recognition of the important role that Seaton House has in assisting residents to re-establish themselves in the community. Statistics are currently being compiled. During the period from May 1996 to September 1997, approximately 150 residents were placed in non-profit, private, seniors' and municipal housing units.

(c)"Cottage Program"

A separate area within Seaton House exclusively for 31 residents who are ready to take specific steps towards ending the cycle of homelessness. Residents in this area have keyed access to a more independent living area, to accommodate the variety of needs, whether working nights, days or participating in programs. Programs include dealing with dependency issues, developing life skills, etc., within the context of each individual resident's needs (based on a service plan). Partnerships have been established with agencies and services in the community, to assist these men. One part-time staffing position has developed into two full-time and two part-time staff.

(d)Seniors' Unit

In response to residents over the age of 50, as well as recommendations in "Mapping a Model for Change", one floor of Seaton House has been re-designated as a seniors' wing. An activities room has been set up in this area, with one full time and one part-time staff (see calendar of activities, attached). Programs have been developed, which respond specifically to the needs of this population.

(e)Annex Harm Reduction Program

In response to the recommendations of the Coroner's Jury from the Inquest into the deaths of Eugene Upper, Mirsalah-Aldin Kompani and Irwin Anderson (July 1996), this new program opened in November of that year. The objective is to assist men who usually avoid the shelter system and the social service sector due to alcohol or "dual diagnosis" issues, by providing a safe haven for about 50 men. It began as a night program and has recently been expanded to 24 hours. Residents store their alcohol on site, staff relate to them on their terms and provide whatever support is welcomed by the men. Through this program, a number of very creative partnerships and projects have been established with other agencies or groups (see Current Partnerships, below), including work with the Mount Sinai palliative care unit.

(f)Health Programs

These have expanded tremendously over the past few years. What used to be a 3 hour doctors' clinic has expanded to 30 hours per week. A nurses' clinic is available 16 hours per day. Medical labs are on site weekly. On a quarterly basis, OHIP card applications are processed on site, available to any person within Seaton House or in the community who requires it. The Annex program has an on-site medical clinic offered through St. Michael's Hospital, with the assistance of an Internist. St. Mike's will also be providing psychiatric services for men living in the Men's Residence. Queen Street Mental Health Centre has committed a $300,000.00 (annual) program for psychiatric support in the emergency shelter, to include an on-site psychiatric social worker and psychiatric nurse 40 hours each per week, two ½-day doctors' clinics on-site and one ½ day per week for a consulting psychiatrist. Community Occupational Therapy Association (Hostel Outreach Program) continues its on-site support, as do other agencies (see Current Partnerships, below). The Temmy Latner Centre for Palliative Care (Mount Sinai Hospital) is assisting Seaton House in designing a palliative care program through the Annex. Currently, an on-call protocol is being developed, for visiting physicians from St. Mike's Hospital to provide Seaton House with "home visits".

(2)Program Redesign: Current

One of the key principles of the current program redesign is to set a ceiling on the number of men that Seaton House is to serve. Metro Council, through earlier reports, set the maximum number of residents to be served at 500.

The "new Seaton House" will be divided into four service units, as follows:

(a)Emergency Shelter

For 200 residents, access to beds 16 hours - all located on one floor, access to recreational space 24 hours.

Dormitories specifically for: first-time hostel users, a dry area, more vulnerable clients, insomniacs, quieter clients...

(b)Second stage

For 125 clients - two smaller groups, all on one floor: 75 in transition to community living (current "cottages") and 50 for clients requiring more support (residents under 50 years of age, FBA/ODSP-eligible)

(c)Seniors

Residents over the age of 50. For 125 clients, on one floor, with special amenities geared to their needs. Note: although the report by Jim Ward and David Reville (see Consultation Process, below) recommended that "consideration be given to phasing out the Men's Residence [seniors' wing]", the Restructuring Panel discussed this at length during its April 23, 1998 meeting and concluded "that the recommendation cannot be fulfilled for the time being, [therefore] that Seaton House must continue to provide services for senior homeless men until another agency or support is in place that can accommodate this need. It was noted that in future there will be more rather than less senior men, who ideally should be in a completely separate residential facility."

(d)Annex

Harm reduction program for 50 clients. This will include a 24-hour palliative care program for 20 residents, currently operating as a pilot.

(3)Consultation Process

(a)Seaton House Restructuring Panel

Approved by Human Services Committee on January 10, 1997, chaired by Olivia Chow, to assist the Commissioner of Community Services in consulting with key stakeholders (residents, ex-residents, staff and community partners/agencies) regarding the proposed changes to Seaton House. The Panel has been meeting monthly and provides a forum for discussing and coordinating all aspects of the restructuring process. A program sub-committee has been formed (including staff and community persons) to review in detail all program issues and bring proposals to the Panel. Current Panel members include: Councillor Olivia Chow (Chair), Gordon Bowes (Toronto Coalition Against Homelessness), Marilyn Campbell (Community Older Persons' Alcohol Program), T.R. Hosier (Maxwell Meighen Centre), Gail Yardy (St. Mike's Hospital/Wellesley), Lyn Crush and Tim Maguire (CUPE Local 79), Mike Selznick (Seaton House Advisory Committee), Sheryl Pollock and Mark Amorosi (City of Toronto), Toby Druce, Boris Rosolak and Rudy Mumm (Seaton House).

(b)Jim Ward and David Reville Consultants

Hired in early 1997, the consultants were mandated to review all previous studies done on Seaton House and solicit stakeholders on the proposed changes to Seaton House. Their report was delivered in May 1997, detailing their consultation process and providing an overview of stakeholders' reactions to proposed physical, program and staffing changes. Generally, the proposed changes were seen as moving Seaton House in the right direction. The report was approved by Metro Council at its July 2 and 3, 1997 session. Subsequently, the Panel received the report and uses it as a base for all further developments.

(c)Architects

Their consultations, beginning in the fall of 1997 and continuing to date, are being carried out in five ways:

(i)the availability of consultants on-site, during day, evening and night hours;

(ii)formal consultation sessions for staff and residents;

(iii)a newsletter for clients and staff, providing information and soliciting feedback;

(iv)draft plans posted in public areas within Seaton House; and

(v)attendance at all Panel meetings.

(d)Brillinger & Francis

The human resource consultants have offered a variety of vehicles for input from staff, clients and community partners. Consultations include one to one interviews, focus groups and opportunities for private calls directly to the consultants. Recently, feedback sessions were held for staff on the findings of the consultations.

(e)Seaton House Newsletter

To date this year two newsletters have been published for residents, staff and community partners. This is intended as a source of information as well as soliciting feedback from the readers. It is anticipated that such a newsletter, titled "Focusing on the Future", will continue to be published on a regular basis through the entire transition period.

(f)Seaton House Advisory Committee

Established in the spring of 1991, this group took a back seat during the life of the Change Team and was re-established in late 1995. Its membership reflects community agencies, residents' association, local business, ex-residents and staff . This committee discusses issues of importance to the daily life of Seaton House, offering advice to management.

(g)TEDRA

Toronto East Downtown Residents' Association holds monthly meetings. A representative of Seaton House management participates at each meeting. The association has been very supportive of Seaton House and the proposed changes. According to the group, Seaton House is a good neighbour and is well-integrated into the local community.

(h)Current Partnerships

(i) Agencies delivering services on site

Community Occupational Therapy Association / Hostel Outreach Program

PACE (satellite of Centre for Addictions and Mental Health)

Community Care Access Centre (Homecare Visitors)

Canadian Medical Laboratories

St. Michael's Hospital - doctors' clinics

Mount Sinai Hospital- Temmy Latner Centre for Palliative Care

Centre for Addictions and Mental Health

John Howard Society

Alcoholics Anonymous

Narcotics Anonymous

Church and religious groups

(ii)Agencies with Official Protocols / Referrals from Seaton House

Addiction Research Foundation

Donwood Institute

Wellesley Hospital

St. Michael's Hospital

Queen Street Mental Health Centre and satellite clinics (e.g. Central Link)

Mount Sinai Hospital

All Toronto Detox Centres (St. Joseph's, St. Michael's, ARF, Toronto Hospital, East General Hospital)

Cityhome

MTHA

MTHCL

Christian Resource Centre

Habitat

Public Guardian & Trustee

Probation and Parole

Toronto Bail Program

John Howard Society

Ecuhome

Beat the Street

Salvation Army

Good Shepherd Refuge

Street Health

Operation Springboard

Open Door Centre

Sojourn House

COTA - Mental Health Court Diversion Program

Gerstein Centre

FBA (ODSP) 252 Parliament Street

GWA (OW) Area Office J

Parachute Employment Program

Addiction Rehabilitation Agencies (various, e.g. Just for Today, Sun Trac...)

* Project Going Home (joint project with other agencies)

(iii)Networking: Staff Representation on Community / External Committees

Downtown Harm Reduction Task Force

Downtown Suicide Prevention Network

COTA - Grant Funds Advisory Committee

Alternative Housing Sub-Committee

Drug Court Advisory Committee

Homeless & Underhoused Advisory Committee (St. Michael's Hospital)

Homes First Society

Jarvis House

(iv)Monthly open meetings between clients and manager

(v)Seaton House Advisory Committee (described above)

(vi)Seaton House Restructuring Panel (described above)

General Remarks: Recent Progress

Seaton House has undergone tremendous changes over the past five years. Clearly, they have been to the benefit of both the residents we serve and the staff who work there. We have seen a transformation from an institution which was quite closed and isolated from the community, to one which has opened up tremendously and has built many more bridges. The partnerships we have been building have made Seaton House more open, more accessible, both for the residents and for the community. The quality of service has improved. Yet there is still further to go. With the convergence of major changes currently underway, namely programmatic, human resource and physical changes, we will see the development of a new Seaton House which will provide excellence of service to the homeless and leadership among social service agencies, into the next millennium.

Our mission statement and goals, developed in 1995, are still relevant today and provide us with the momentum and direction to undertake the transition in which we are currently involved.

Seaton House Mission Statement

Seaton House shelters and supports men with diverse social needs through:

(client centred services, grounded in principles of acceptance, respect and understanding)

(1)innovative programs;

(2)partnerships among staff, clients and community; and

(3)advocacy for community living alternatives.

Seaton House Goals

(1)To provide coordinated client-centred service that focuses on individual growth and development through the collaboration of all staff;

(2)To have a cooperative, committed team of staff who support and respect one another; and

(3)Modernize the building to provide a safe environment that is more accessible and more user-friendly.

Seaton House is well on its way, in the current work plan, to achieving the collective goals set out in 1995.