Funding for Homeless Services
The Community Services Committee recommends the adoption of the report dated August 24, 1999, from the
Commissioner of Community and Neighbourhood Services.
The Community and Neighbourhood Services Committee reports, for the information of Council, having referred the
appeals from the following agencies to the Commissioner of Community and Neighbourhood Services for further review
and report thereon to the next meeting of the Community Services Committee to be held on October 7, 1999:
-Fred Victor Centre (Grant Item No. 13);
-Friends of Shopping Bag Ladies (Grant Item No. 14);
-Massey Centre for women (Grant Item No. 20);
-mens sans (Families for Mental Health)(Grant Item No. 21);
-Street Haven (Grant Item No. 43); and
-Syme-Woolner Neighbourhood and Family Centre (Grant Item No. 45).
The Community Services Committee submits the following report (August 24, 1999) from the Commissioner of
Community and Neighbourhood Services:
Purpose:
This report recommends funding of $4,126,534.00 to community agencies for a range of homeless services, within the
context of four existing grants programs. The report further recommends a consolidation of these four programs into the
City of Toronto Homeless Initiatives Fund (CT-HIF) for 2000.
Funding is recommended in the amount of $1,986,414.00 to 51 community groups for CT-HIF projects in 1999/2000.
These recommendations are for the first phase of funding. As described in the June 1999 report to the Community Services
Committee, a second Proposal Call for additional projects will be held in the fall of 1999.
Funding is recommended in the amount of $247,000.00 in 1999 to one agency for the Long Term Housing Program
(LTHP), an established funding mechanism to help homeless people find and keep housing.
Funding is recommended in the amount of $61,260.00 to nine community groups for Shelter, Housing and Support grants
in 1999.
Funding in the amount of $1,831,860.00 is recommended for 31 agencies which have applied for municipal support under
the 1999 Homeless Support Services Fund (HSSF).
Funding Sources, Financial Implications and Impact Statement:
All funds are available in the 1999 Operating Budget.
The City of Toronto Homeless Initiatives Fund includes a 1999/2000 allocation of $4.724 million to the City of Toronto
from the Province as well as an allocation of $881,100.00 from the City in the 1999 approved budget for the Consolidated
Grants Program.
Funding for the Long Term Housing Program is included in the 1999 budget for the Community Initiatives Section of the
Shelter, Housing and Support Division.
Funds for Shelter, Housing and Support grants are available in the approved 1999 Consolidated Grants Program Budget.
Sufficient funds for the 1999 HSSF allocations exist within the approved 1999 Consolidated Grants appropriation. The
total funds available for the 1999 HSSF are $1,831,860.00.
Recommendations:
It is recommended that:
(1)Council approve 1999/2000 City of Toronto Homeless Initiatives Fund (CT-HIF) grants totalling $1,986,414.00 for 51
agencies, as described in Appendix A of this report;
(2)Council approve a 1999 Long Term Housing Program (LTHP) grant of $247,000.00 to Dixon Hall to provide a
comprehensive program to help homeless people find and keep housing;
(3)Council approve the 1999 Shelter, Housing and Support grants totalling $61,260.00 for nine agencies, as described in
Appendix C;
(4)Council approve the 1999 Homeless Support Services Fund (HSSF) allocations totalling $1,831,860.00 for 31
agencies, as described in Appendices D and E;
(5)for 2000, the funds for the Long Term Housing Program, Shelter, Housing and Support grants and Homeless Support
Services Fund be rolled into the CT-HIF and administered in the context of a consolidated program; and
(6)the appropriate City officials be authorized and directed to take the necessary action to give effect hereto.
Council Reference/Background/ History:
Prior to amalgamation, Metro and the area municipalities administered a variety of funding programs which supported
community-based agencies providing homeless services. These included the City of Toronto's Homeless Initiatives Fund
and Long Term Housing Program, as well as Metro's Emergency Support Fund (now known as the Homeless Support
Services Fund). In addition, other area municipalities gave grants to agencies in their community for the provision of
homeless services, in the context of their grants programs.
Since the amalgamation, much work has been done to rationalize and consolidate these various funding programs, while
maintaining the continuity of support to community agencies.
For 1999, these programs, while still technically in their separate streams, have been functionally administered as one unit.
Staff involved with the programs have worked together on application and proposal assessment and the recommendations
for funding. It is proposed, however, that for 2000 all the funds be amalgamated into a single funding envelope, the
CT-HIF, as the next logical step towards full consolidation.
It is important to note that the Government of Ontario in response to the recommendations of its own task force on
homelessness and the Mayor's Homelessness Action Task Force, has granted funds to the City to support homeless
services. Support to the City from this Provincial Homeless Initiatives Fund was $1.02 million in 1998/99 and has grown
to $4.7 million in 1999/2000. This is included in the 1999 budget for the CT-HIF. This funding is intended to support new
initiatives related to homelessness and cannot be used to replace any existing City programs and services.
The Province has also made announcements regarding funding through the Hostel Services budget for redirection
initiatives, and the downloading of the Supports to Daily Living Program and the Community Partners Program. As
authorized by Council, staff are working on proposals to the Province for the Hostel Redirection Initiative. To date there is
no information regarding the timing of the transfer of responsibility for the other two programs.
Comments and/or Discussion and/or Justification:
Funding Recommendations:
The purpose and assessment process for each of the four funds included in this report are described below. The specific
agency allocations for each of the funds are included in the appendices. A number of agencies have been recommended for
funding under two or more of the four funds, specifically for different purposes or programs. City staff have reviewed all
recommendations to ensure that there is no duplication of funding.
(1)City of Toronto Homeless Initiatives Fund:
This report summarizes the process used to select projects for the City of Toronto Homeless Initiatives Fund (CT-HIF) and
recommends 51 projects for $1,986,414.00 in funding. Details regarding proposals recommended for funding are provided
in Appendix A.
The CT-HIF combines the City's Homeless Initiatives Fund and the Provincial Homelessness Initiatives Fund into one
program with a common application, selection and evaluation process. This allows the City to implement a wide variety of
projects which address the recommendations outlined in the final report from the Mayor's Task Force on Homelessness
and address priority needs identified by community groups that work with homeless people. Assisted by City staff, many of
these projects will work together as groups to develop longer term comprehensive programs that create efficiencies in the
"system" of services to homeless people.
The City's Homeless Initiatives Fund (HIF) was created in 1992 by the former City of Toronto and has provided funding
for a wide variety of projects that range from services to the most isolated street people to initiatives that support people
when they move into permanent housing. The City has allocated $881,100.00 to the CT-HIF in the 1999 approved budget
for the Consolidated Grants Program.
The Provincial Homelessness Initiatives Fund (PHIF) was established following the release of the report of the Provincial
Task Force on Homelessness on October 8, 1998. For 1998/99, the City of Toronto was allocated $1.02 million to support
new innovative approaches to addressing homelessness. A Request for Proposals was issued and 25 projects were selected
for funding. A report summarizing the selection process and the projects funded for the first PHIF was submitted to the
Community and Neighbourhood Services Committee in February 1999.
On March 23, 1999, the Province announced that an additional $6 million would be added to the Provincial Homelessness
Initiatives Fund bringing the total to $10 million annually Province-wide. Toronto's share of the fund will therefore be
increased from $1.02 million to $4.724 million for 1999/2000. The increase in the PHIF was part of an announcement that
detailed a wide range of initiatives addressing housing, homelessness and housing supports.
Proposal Assessment Process for CT-HIF:
Projects for the 1999/2000 CT-HIF are being selected through two targeted proposal calls: one described in this report and
one to be undertaken in the fall of 1999. Requests for Proposals were sent to a comprehensive list of community agencies,
housing help centres, hostels, drop-ins, supportive housing providers and other groups that work with homeless people
across the City of Toronto. In addition, the RFP was posted on the City's corporate web-site and each Councillor's office
received a copy. Approximately 600 RFPs were distributed and a total of 116 proposals were received by the July 16
deadline.
Projects were selected according to selection criteria outlined in the Request for Proposals. The intent of the CT-HIF is to
expand the City's responses to homelessness across the City by funding community-based initiatives that will provide a
range of useful services to homeless people and those at risk of homelessness. Projects must meet one or more of the
following "outcome" areas: assisting people to move from the streets; assisting people to move from emergency
accommodation to more stable housing; and preventing homelessness.
In addition, priority was given to:
(a)agencies or groups with experience in providing services to homeless people or those at risk of homelessness;
(b)developing strategies which result in longer term solutions to homelessness;
(c)funding projects which create efficiencies in the "system" of services to homeless people;
(d)providing direct services to homeless people or those at risk of homelessness;
(e)projects which include homeless people in projects through employment and in the planning, implementation and
evaluation stages; and
(f)projects which include qualitative and quantitative evaluation methods to ensure that the program meets its goals and
objectives and that individual projects are effective.
Projects were chosen by selection teams comprised of Community and Neighbourhood Services Department staff with
expertise in the different project priority areas. In addition, staff from the City's Aboriginal Liaison Office, Urban Planning
and Development Services, and the United Way were involved in the selection process.
The priority areas in the Proposal Call were established by staff based on recommendations outlined in the Mayor's
Homelessness Action Task Force and priorities identified during consultation with community groups that work with
homeless people. A total of 51 projects were selected in the following project priority areas:
(1)Chronic Hostel Users Pilot Project;
(2)Low-Income Singles Housing Support Program;
(3)Enhanced Housing Help and Eviction Prevention;
(4)Community Economic Development;
(5)New Canadians Housing Access Project;
(6)Services to People Living Outside;
(7)Housing and Hunger Initiatives;
(8)Enhanced Drop-In Services to Homeless People; and
(9)Aboriginal Community Skills Development.
Subject to approval from City Council, these projects will begin operation in the fall of 1999.
A second Request for Proposals will be issued in October to select projects for the balance of the CT-HIF.
(2)Long Term Housing Program:
Since 1982 the City of Toronto, through the Long Term Housing Program (LTHP), has funded Dixon Hall's Transitional
Housing Support Services Department to provide a long term comprehensive program to help homeless people find and
keep housing. Dixon Hall is a multi-service community agency located in the Don River Ward. From 1982-1998 Dixon
Hall ran the 30 St. Lawrence Street Men's Shelter and since late 1997 has operated the 60 Richmond Street Shelter. Dixon
Hall also provides a range of services for low-income children, youth, families and seniors in the local community. Dixon
Hall has received City support to provide assistance to people living in Dixon Hall operated shelters as well as other
shelters.
Staff are proceeding with implementing the earlier Council report recommending that Dixon Hall operate the Schoolhouse
facility. Dixon Hall will begin operating the Schoolhouse in September 1999 and will also ensure that their housing
services at the Schoolhouse and their new employment project, Labour Link, work together to begin to assist these
homeless men to become more independent and leave the shelter system.
Activities Funded through LTHP:
Dixon Hall's work with homeless people involves assisting them in identifying barriers to finding and keeping housing.
Strategies to address these barriers are then developed and implemented. For some individuals this may mean seeking
assistance with mental health or addiction problems. For others it may mean sorting out eligibility for income support.
Some may need help with shopping and others may need help setting up bank accounts or moving their belongings out of
storage into their new home. Many also require assistance to access some form of supportive housing. Services funded
through the LTHP focus on developing practical solutions to meet individual needs and on preventing further homelessness
by helping people to secure and keep their housing.
Funds in the LTHP have also been authorized for use in assisting with security and related issues with the new housing
project that is being built on the site of the old shelter at 30 St. Lawrence Street. This project will provide much needed
permanent housing for chronically homeless people. In the developmental phase of this housing project, the neighbours
identified the need for a range of security measures. These funds will be used to address these issues and contribute to the
success of the project.
Proposed Directions:
The needs that led to the creation of the LTHP remain significant. However, given the changing funding environment for
homeless services, it is also important to better consolidate the various funding programs that are in existence. This report
recommends funding of $247,000.00 to Dixon Hall in 1999 in order to ensure that homeless people continue to receive
services through the agency throughout 1999 until the changes are complete. Budget details are included in Appendix B.
For 2000, LTHP funds will be rolled into the CT-HIF and these services will be funded through the application process
used for the CT-HIF. Agencies interested in providing this type of service, including Dixon Hall, will be invited to submit
proposals in the fall 1999 RFP.
(3)Shelter Housing and Support Grants:
Prior to amalgamation, the grants outlined in this report were provided by former municipalities to help assist community
groups with their operating costs. In 1998, they were funded through the Community Services Grants Program in
accordance with the transitional grants policy. As a result of efforts to rationalize grants, services and programs, the
administration of these grants has been transferred to the Shelter, Housing and Support Division.
The objective in transferring these grants to the Shelter, Housing and Support Division is to incorporate the services being
provided by these agencies into existing grant programs for shelters and homelessness prevention. Staff have spoken with
these agencies, and applications for continued funding have been received for each of these projects in accordance with the
City of Toronto's Grants Policy.
For 1999, it is recommended that the amount of these housing and shelter related grants remain at the 1998 level. Of the
nine grants, eight are to shelters for homeless women, youth, or new Canadians and one provides assistance to small
landlords through a self-help centre. More detailed information regarding the recommendations is provided in Appendix C.
During 1999, Shelter, Housing and Support staff will be meeting with each group to discuss their funding needs and to
ensure that there is no shortfall in service provision as a result of the transfer. Staff will ensure that the groups will have the
opportunity to apply for funding in 2000.
As with the LTHP funding, it is proposed that for 2000, these funds be transfered to the CT-HIF and administered in the
context of that funding program.
(4)1999 Homeless Support Services Fund:
In 1996, the Metro Emergency Support Fund was established by Metropolitan Council at the recommendation of the
Advisory Committee on Homeless and Socially Isolated Persons to respond to the most pressing needs of the homeless and
socially isolated population. The Emergency Support Fund traditionally provided financial support for:
(i)services in danger of significant reductions in service or closing due to funding cuts;
(ii)services to communities which are underserved, or providing services during hours which are underserved;
(iii)requests for expanded hours of service, particularly during cold weather;
(iv)programs addressing the needs of street involved youth; and
(v)programs responding to the needs of persons with psychiatric disabilities who are homeless; within this, drop-ins,
outreach services and hotlines were identified as priorities.
The ESF had a budget of $600,000.00 which was enhanced in 1997 by an additional $600,000.00 to respond to the need for
winter specific programs for the homeless population. In 1998 this additional funding was annualized resulting in a total
budget of $1.2 million to be allocated through the Emergency Support Fund.
In 1999, the ESF has been replaced by the Homeless Support Services Fund (HSSF). The HSSF consolidates funding
allocated to community agencies through the former Community Resources Fund, Emergency Support Fund and
Supplementary Emergency Support Fund. In 1999, the total budget for the HSSF is $1,831,860.00.
As with the ESF the HSSF continues to provide ongoing funding to community-based organizations providing direct
services targeted to homeless people and those at risk of homelessness. The fund focuses on programs and services that
help people to meet their basic needs, strengthen their living skills, and build or rebuild their social networks. In 1999 the
HSSF has given priority to services operated through drop-ins and outreach or street services to the homeless population,
and programs focussing on the outer areas of the City.
Application and Assessment Process:
Agencies applying to the HSSF were required to complete an extensive application form that included information
regarding agency governance, management, program development and delivery, community partnerships, access and equity
and community accountability.
Agencies were not interviewed for the HSSF and recommendations are based on the applications submitted. However,
prior to the application deadline, City staff met with the majority of returning agencies to discuss the new funding program
and discuss financial adjustments to compensate for the changed funding cycle.
Applications were screened by staff and reviewed by a team including the United Way of Greater Toronto, staff from
Shelter, Housing and Support and policy staff of the Social Development and Administrative Services Division.
Overall, 58 agencies requested $4,059,303.00 through the 1999 HSSF. This includes 35 previously funded agencies and 23
new requests.
Maintaining and strengthening the core infrastructure of services for homeless individuals in the City of Toronto was a
critical component of the review process. In addition, ensuring geographic and community equity was a high priority. It
was also recognized that the needs of the homeless population outside the inner core may differ, requiring different
approaches. For this reason, the recommendations also reflect the need to develop services in the outer areas of the City.
Services targeted at particularly vulnerable sectors of the homeless population are also recommended.
The funding period for the HSSF has been adjusted from a January to December period to a September to August period.
The new funding cycle is in alignment with the United Way winter relief program and facilitates agency planning for cold
weather services. This change in the funding cycle, however, has an impact on agencies who received year-round funding
for programs now under review through the HSSF. The change in the funding cycle of the HSSF will mean that funded
projects must operate within the 1999 funding cycle which is September 1, 1999 to August 31, 2000. Agencies that
received ongoing funding for year-round programs through the ESF or the Community Service Grants Program have been
recommended for an adjustment at the 1998 funding level to compensate them for this change in the funding cycle. The
City has collaborated with the United Way in allocating funding adjustments to agencies.
New Applicants:
A total of 23 agencies that did not receive funding for HSSF-eligible programs in 1998 applied for support in 1999. Of
these, two are recommended for funding. A further 21 have not been recommended for a variety of reasons: they are
ineligible; they were determined to be a lower priority; or because their requests were referred to another funding source
determined to be more suitable.
The primary purpose of the 1999 HSSF is to support the delivery of services by community-based agencies to homeless
individuals or those at imminent risk of homelessness. As a continuing grants program the HSSF recognizes that
homelessness is a persistent challenge for the City of Toronto and that a range of core services targeted at those who are
homeless or at risk of homelessness are an integral part of the City's social service infrastructure.
The HSSF does not fund programs operated out of hostels which are restricted to residents or ex-residents of the hostel. It
is expected that day-time programs for residents are an integral part of the shelter supports and thus funded through the
City per diem support to hostels. Some hostels which operate drop-in programs available to the community broadly have
been recommended for grants. Outreach programs supporting or assisting ex-residents to maintain stable housing have not
been recommended.
The Shelter, Housing and Support Division is currently negotiating with the Province regarding projects to be funded under
the Hostel Redirection Initiative. One initiative being proposed is the placement of housing workers and/or community
follow-up workers in emergency shelters. It is anticipated that all emergency shelters will be provided funding when
approved, hence staff are not recommending funding for this purpose through the Homeless Support Services Fund.
Requests for Community Economic Development (CED) initiatives with homeless individuals, the establishment of
furniture/appliance banks, and food access programs, have not been recommenced for funding through the HSSF. These
requests have been referred to the Shelter, Housing and Support Division to be considered through the HIF process.
The funding of food banks will be reviewed during 1999/2000 to determine the most suitable funding stream.
Evaluation:
As more resources are directed towards services addressing homelessness, it becomes increasingly important to evaluate
project and program outcomes and their effectiveness in meeting the needs of people who are homeless and at risk of
homelessness.
Agencies applying for continued program funding through the HSSF funding stream are required to submit detailed
applications clearly articulating the services to be provided, including service targets and anticipated outcomes for clients.
In 1999, returning applicants met with grants staff to review the information required and address any outstanding
performance issues identified in 1998. Funded agencies may receive monitoring visits during the year and are required to
report on achievements and the use funding in the next application cycle.
Projects applying for funding through the CT-HIF are required to submit proposed work plans, service targets and time
lines. They are also required to describe the staffing and management structures which will support their undertakings.
Once approved, projects must account for their progress as follows:
(1)an interim report which focuses on key issues arising from the early phase of the project;
(2)continuing review and evaluation throughout the operation of the project; and
(3)a final report from each project after the first year.
The purpose of these reviews of project progress is to ensure that they are effectively meeting the general HIF objectives
and the targets that they set, as well as to identify emerging trends that might impact on future funding decisions.
The Province has agreed to allow the City to use funds available from the 1998/1999 Homeless Initiatives Fund to support
the development of a more formalized evaluation system for individual projects as well as the program as a whole.
Appeals:
Specific appeal amounts have not been set aside for the various grants funds discussed in this report. Any funding issues
arising from the recommendations contained in this report should be referred back to staff to address during the next round
of the CT-HIF later this year.
Conclusion:
It is recognized that responding to homelessness is an ongoing challenge for the City of Toronto and that a range of
community-based services targeted at those who are homeless or at risk of homelessness are an integral part of the City's
social service infrastructure. The various funding streams which will form the City of Toronto Homeless Initiatives Fund
will provide a comprehensive range of supports to agencies providing essential services to this population.
Since amalgamation, staff have been working towards consolidating the various funding streams into appropriate grants
programs. This report reflects the next step in consolidating four previous programs into the CT-HIF. The final step is to
consolidate the four program budgets in the 2000 budget request.
City staff will continue to work closely with the community-based agencies involved in these programs and projects to
ensure that they operate effectively and collaborate with projects doing similar work. The regular reporting and
evaluation/review processes will keep the City abreast of emerging needs in the community and will help to better
co-ordinate services to homeless people. The City of Toronto Homeless Initiatives Fund, through its various funding
streams, will form a base for the City's response to the Mayor's Homelessness Action Task Force recommendations and
provide a comprehensive range of services across the City of Toronto.
Contact Names:
Joanne CampbellChris Brillinger
Phone: 392-7885Phone: 392-8608
Fax: 392-0548Fax: 392-8492
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Appendix A
Summary of Projects Recommended for Funding
Security for 30 St. Lawrence 23,750.00
(A copy of the Appendix E, referred to in the foregoing report, was forwarded to all Members of Council with the agenda
of the Community Services Committee for its meeting on September 9, 1999, and a copy thereof is on file in the office of
the City Clerk.)
The Community Services Committee reports, for the information of Council, having also had before it a communication
(September 9, 1999) from Ms. Chiara Tassone, Executive Director, mens sana (Families for Mental Health), appealing the
recommendation respecting their grant application.
The following persons appeared before the Community Services Committee to appeal their aforementioned grant
applications:
-Ms. Pam Jolliffe, Fred Victor Centre (Grant Item No. 13);
-Ms. Liz Bonanno, Syme-Woolner Neighbourhood and Family Centre (Grant Item No. 45);
-Ms. Nancy Peters, Massey Centre for Women (Grant Item No. 20);
-Ms. Kelley M. McKinnon, Chair, Board of Directors, Friends of Shopping Bag Ladies (416 Drop-In Centre) (Grant Item
No. 14), and requested a deferral of their appeal until the next meeting of the Community Services Committee;
-Mr. Todd Kaighin, on behalf of Street Haven (Grant Item No. 43); and
-Councillor Doug Holyday, Markland - Centennial, who asked questions of staff.