Update on Hostel Occupancy

(City Council on March 2, 3 and 4, 1999, deferred consideration of this Clause to its next regular meeting to be held on April 13, 1999.)

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(Clause No. 24 of Report No. 5 of the Strategic Policies and Priorities Committee, headed"Update on Hostel Occupancy")

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The Strategic Policies and Priorities Committee recommends the adoption of the Recommendation of the Budget Committee embodied in the following communication (February 22, 1999) from the City Clerk:

Recommendation:

The Budget Committee on February 19, 1999, recommended to the Strategic Policies and Priorities Committee, and Council the adoption of the report (February 11, 1999) from the Commissioner of Community and Neighbourhood Services, as amended by Community and Neighbourhood Services Committee.

Background:

The Budget Committee on February19, 1999, had before it a communication (February 11, 1999) from the City Clerk, advising that the Community and Neighbourhood Services Committee on February 11, 1999, recommended to the Budget Committee and Council the adoption of the report (ii) dated February 11, 1999, from the Commissioner of Community and Neighbourhood Services, subject to amending Recommendation No. (2) by deleting the word "only", so that such recommendation reads as follows:

"(2)the commitment by the Community and Neighbourhood Services Department to expand hostel services by adding smaller full-standard facilities and developing a range of harm reduction shelters be supported; and".

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(Communication dated February 11, 1999, addressed

to the Budget Committee from the City Clerk)

Recommendation:

The Community and Neighbourhood Services Committee on February 11, 1999, recommended to the Budget Committee and Council the adoption of the following report (ii) dated February11, 1999, from the Commissioner of Community and Neighbourhood Services, subject to amending Recommendation No. (2) by deleting the word "only", so that such recommendation reads as follows:

"(2)the commitment by the Community and Neighbourhood Services Department to expand hostel services by adding smaller full-standard facilities and developing a range of harm reduction shelters be supported; and".

The Community and Neighbourhood Services Committee reports, for the information of the Budget Committee, having:

(1)supported the following Recommendation No. (3) of the Advisory Committee on Homeless and Socially Isolated Persons, contained in the aforementioned communication (iv) from Councillor Jack Layton:

"The Advisory Committee send a letter to the Medical Officer of Health to work with hostels to deal with the health and safety issues associated with the current overcrowded conditions in the hostel system (such as TB, scabies, lice).";

(2)referred to the Commissioner of Community and Neighbourhood Services, in consultation with Mayor Mel Lastman, communications (i) dated January 8, 1999, from the City Clerk and (iv) dated February 11, 1999, from Councillor Jack Layton, Don River, with a request that she report thereon to the Community and Neighbourhood Services Committee for its meeting on March 24, 1999;

(3)referred the following motion to the Commissioner of Community and Neighbourhood Services, in consultation with the Medical Officer of Health, with a request that she report thereon to the Community and Neighbourhood Services Committee for its meeting on March24, 1999:

"That the expansion of hostel services should include the expansion of public health initiatives to reduce the spread of communicable diseases, in particular TB."; and

(4)directed that the Commissioner of Community and Neighbourhood Services be requested to develop the concept of "full-standard facility" guidelines and the implications of this definition for the program, and report thereon to the Community and Neighbourhood Services Committee.

Background:

(i)(January 19, 1999) from the City Clerk advising that the Council Strategy Committee for People Without Homes on January18,1999, had before it a communication (January8,1999) from CouncillorJackLayton, Co-Chair, Advisory Committee on Homeless and Socially Isolated Persons, recommending that:

(1)the City of Toronto adopt a no "No Room at the Inn" policy with respect to the provision of emergency shelter thereby ensuring that no one will be turned away from a hostel in Toronto due to lack of space;

(2)the City of Toronto make a commitment to replace all emergency shelter beds expected to be lost in the Spring of 1999 due to the closure of temporary winter hostels and renovations scheduled for Seaton House resulting in a loss of 150 beds; and

(3)the Shelter, Housing and Support Division report on the development of standardized rules for hostels;

and that the Council Strategy Committee recommended that:

(1)the Community and Neighbourhood Services Committee be requested to adopt Recommendation No. (1), as adopted by the Advisory Committee on Homeless and Socially Isolated Persons, at its meeting of December 18, 1998, regarding a no "No Room at the Inn" policy; and

(2)the Commissioner of Community and Neighbourhood Services be requested to review Recommendations No. (2) and (3), as adopted by the Advisory Committee on Homeless and Socially Isolated Persons, and address these recommendations in her report on spring hostel capacity and standard rules as requested by the Community and Neighbourhood Services Committee, with a copy of this report to be sent to the Council Strategy Committee for People Without Homes for information;

(ii)(February 11, 1999) from the Commissioner of Community and Neighbourhood Services providing a current update on the occupancy levels in the hostel system; and recommending that:

(1)the existing contract with the Salvation Army, for the Lighthouse shelter at 37Dundas Street, East, be increased by 30 beds on Monday, Tuesday, Wednesday and Thursday nights effective February 15, 1999 to April 15, 1999;

(2)the commitment by the Community and Neighbourhood Services Department to expand hostel services only by adding smaller full-standard facilities and developing a range of harm reduction shelters be supported; and

(3)the appropriate City officials be authorized and directed to take the necessary action to give effect thereto;

(iii)graphs outlining Shelter Services for Single Adults and Youth from January 1-31, 1999, and from February 1-9, 1999, submitted by the Shelter, Housing and Support Division; and

(iv)(February 11, 1999) from Councillor Jack Layton, Don River, advising that the Advisory Committee on Homeless and Socially Isolated Persons on January 22, 1999, passed the following motions:

"(2)That the Mayor be asked to:

(a)convene the Emergency Planning Committee to develop a plan to establish permanent emergency shelters in both the east and west end of the City;

(b)declare a state of emergency in the City of Toronto in response to the homeless crisis; and

(c)open the armouries immediately as a short-term response to the current capacity shortage in the hostel system until such time as the new east and west sites are opened.

(3)The Advisory Committee send a letter to the Medical Officer of Health to work with hostels to deal with the health and safety issues associated with the current overcrowded conditions in the hostel system (such as TB, scabies, lice).

(4)That City officials meet with representatives of Oxfam, the Red Cross, Doctors without Borders and the Toronto Disaster Relief Committee to consult on emergency relief strategies.

The following persons appeared before the Community and Neighbourhood Services Committee in connection with the foregoing matter:

-Ms. Kira Heineck, Toronto Disaster Relief Committee, and submitted a petition, headed "House the Homeless! Open up the Armouries!", with approximately 500 signatures;

-Ms. Cathy Crowe, Queen West Community Health Centre, and submitted a brief from the Toronto Disaster Relief Committee, headed "Why Open The Armouries?";

-Ms. Denise Toulouse, Anishnawbe Health Toronto;

-Mr. Gaetan Heroux;

-Mr. Michael Skidd; and

-Councillor Jack Layton, Co-Chair, Advisory Committee on Homeless and Socially Isolated Persons.

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(Report dated February 11, 1999, addressed to the

Community and Neighbourhood Services Committee from the

Commissioner of Community and Neighbourhood Services)

Purpose:

This report provides the Community and Neighbourhood Services Committee with a current update on the occupancy levels in the hostel system and recommendations for meeting needs during the balance of the winter period.

Funding Sources, Financial Implications and Impact Statement:

The costs associated with this report are part of the normal expense of providing hostel services, and included in the Department's 1999 budget request.

Recommendations:

It is recommended that:

(1)the existing contract with the Salvation Army, for the Lighthouse shelter at 37 Dundas Street, East, be increased by 30 beds on Monday, Tuesday, Wednesday and Thursday nights effective February 15, 1999 to April 15, 1999;

(2)the commitment by the Department to expand hostel services only by adding smaller full-standard facilities and developing a range of harm reduction shelters be supported; and

(3)the appropriate City officials be authorized and directed to take the necessary action to give effect thereto.

Council Reference/Background/History:

The Department was asked by Committee to provide regular updates on hostel occupancy. This report is current as of the occupancy data up to and including Monday, February 8, 1999.

Comments and/or Discussion and/or Justification:

This report addresses the specific concerns around adults and youth.

The actual figures for Monday, February 8, 1999, show the following:

It is staff opinion that the spare capacity for youth and for adult women is adequate. The occupancy numbers do not fluctuate very much from day to day, and relatively few women or youth are living rough (outside). Shelter serving these populations are not expressing serious bed shortages.

Therefore, our focus should be on adult men. Traditionally, this is the largest group of hostel residents and the group most likely to remain outside during cold weather. While the vacancy rate on Monday night (February 8) was still about 3.9 percent, staff feel this is too low and that more reserve is needed.

In particular, we are concerned about the adequacy of services during the days of Monday through Thursday when the Out of the Cold churches offer fewer spaces. Weekend capacity (Friday, Saturday and Sunday) is not a problem.

In summary, our concerns remain focused on adult men and for the periods of Monday through Thursday nights.

Accordingly, we have renegotiated the hostel contract with the Salvation Army Lighthouse to add another 30 new beds for men for those nights. This agreement is for the balance of the winter season.

Staff are preparing a further report on hostel needs for the spring and summer period. That report will be before the Community and Neighbourhood Services Committee at its next regular meeting.

Department's Focus in Expanding Hostels:

To the extent that more new hostels are needed in the future, the Department will continue to focus on expansion using two models. First, we will support smaller facilities that meet full hostel standards in terms of space, amenities, staffing and services. Second, we will support programs that use a harm reduction approach that reaches the very hardest to serve. This direction was also recommended by the Mayor's Homelessness Action Task Force.

The Department is opposed to the extended use of large facilities such as the armouries that do not meet hostel standards and that do not help residents with their longer term needs. That approach to service is regressive and does not reduce homelessness.

Role of the Red Cross:

Staff are negotiating a formal agreement with the Red Cross to provide emergency shelter for sudden emergencies. The recent operation of the Moss Park Armoury for two days during the severe snow storm is a good example of this role. This temporary use of the armouries is appropriate and supported by both the Red Cross and National Defence.

Included in this agreement is the purchase of the necessary supplies and equipment for a complete 150-bed shelter which can be stored, and put into service with just a few hours' notice. With this agreement, we will be able to respond to any sudden emergencies related to events such as severe weather, rooming-house and apartment fires, loss of heat and power, or other evacuations.

Conclusions:

The extra 30 new beds for men will be sufficient for the balance of this cold season. Future expansion of the hostel system must be progressive and provide appropriate help to the homeless. The formal agreement being negotiated with the Red Cross provides the capability to respond to sudden emergencies and is needed in a large urban centre. This also makes the best use of the armouries.

Contact Name:

John Jagt,

Director of Hostel Services

Tel: 392-5358/Fax: 392-8758

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(Communication dated February 11, 1999, addressed from to

the Community and Neighbourhood Services Committee

from Councillor Jack Layton, Don River)

At its meeting on January 22, 1999, the Advisory Committee on Homeless and Socially Isolated Persons passed the following motions:

"(2)That the Mayor be asked to:

(a)convene the Emergency Planning Committee to develop a plan to establish permanent emergency shelters in both the east and west end of the city;

(b)declare a state of emergency in the City of Toronto in response to the homeless crisis;

(c)open the armouries immediately as a short-term response to the current capacity shortage in the hostel system until such time as the new east and west sites are opened;

(3)the Advisory Committee send a letter to the Medical Officer of Health to work with hostels to deal with the health and safety issues associated with the current overcrowded conditions in the hostel system (such as TB, scabies, lice); and

(4)that City officials meet with representatives of Oxfam, the Red Cross, Doctors without Boarders and the Toronto Disaster Relief Committee to consult on emergency relief strategies."

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(Communication dated January 19, 1999, addressed to the

Community and Neighbourhood Services Committee

from the City Clerk)

The Council Strategy Committee for People Without Homes at its meeting of January 18, 1999, had before it the attached communication dated January 8, 1999, from Councillor Layton, Co-Chair, Advisory Committee on Homeless and Socially Isolated Persons, forwarding the noted motion, as approved at their meeting of December 18, 1998.

The Council Strategy Committee for People Without Homes adopted the following recommendations and transmits the same for your consideration:

It is recommended that:

(1)the Community and Neighbourhood Services Committee be requested to adopt Recommendation No. (1) , as adopted by the Advisory Committee on Homeless and Socially Isolated Persons, at its meeting of December 18, 1998, regarding a no "No Room at the Inn" policy; and

(2)the Commissioner of Community and Neighbourhood Services be requested to review Recommendations No. (2) and (3), as adopted by the Advisory Committee on Homeless and Socially Isolated Persons at its meeting of December 18, 1998, and address these recommendations in her report on spring hostel capacity and standard rules as requested by Community and Neighbourhood Services Committee, with a copy of this report to be sent to the Council Strategy Committee for People Without Homes for information.