Homelessness Needs Briefing Paper
February 2002 Workshop
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Introduction | Purpose of this Paper | What is Homelessness?
Who are the Homeless | Key Documents/Studies & Initiatives
How Big is Homelessness | Local Stories | Richmond Strengths | Specific Needs
Priorities | Recommended Projects | What Happens Next?
Introduction
The City of Richmond has been working with the community to explore the issue of homelessness. Earlier this year, the City commissioned a study on homelessness in the Municipality. The aims of the study are to:
- Identify the scale of the homelessness situation in Richmond;
- Produce a profile of the homeless and those at risk in Richmond;
- Reach a consensus on the key causes of homelessness in Richmond;
- Evaluate the existing local support infrastructure;
- Recommend preventative actions against homelessness;
- Develop a prioritised, co-ordinated action plan and implementation strategy;
- Identify funding opportunities, priority actions, and lead partners;
- Promote joined up action by the existing range of stakeholders; and
- Raise community awareness and understanding of the homelessness issue in Richmond.
The ultimate goal of the commission is to produce a strategy that will identify the means to implement a range of programs and projects by the City of Richmond and its partners in the short, medium and long term to effectively address the issue of homelessness. The Strategy will establish criteria for new programs and proposals and will carry out an assessment of current proposals, initiatives and opportunities. The strategy for homelessness in Richmond will provide a clear context and framework for future action and investment by government, community service providers, health authorities, and the general public (set within the Greater Vancouver Homelessness Plans Continuum of Care Model).
Purpose of this Paper
The consultant team have spent the last two months meeting with local service providers and government agencies who provide accommodation and services to the homeless of Richmond. The team also met with people from the homeless and the at risk of homelessness population. The team have also assembled a range of data which provides an indication of the number of people who homeless. This paper is intended as an progress note, reporting on the work which has been completed to-date. Some information has not yet been provided to the consultants and there are a few consultations which still need to be conducted. This paper will provide the attendees at the Issues Workshop on 21 February, 2002 with some background information to enable them to provide initial feedback, confirm the issues and identify additional avenues to explore.
The remainder of this paper outlines the key findings to date.
What is Homelessness?
Urban centres across Canada, including Greater Vancouver have witnessed a considerable increase in the number of homeless people since the 1980s. Prior to the 1980s, homelessness was seen to involve a small number of mainly middle age males who were transient or disassociated from a family network. They could be found in the older skid row districts of Canadas cities. These were not absolutely homeless by todays definition, as they relied on hotels, motels and rooming housing. During the early 1980s, however, more and more people of all ages became visibly homeless in most cities. Housing and employment have changed dramatically since the 1970s. A significant restructuring of the labour market, an increased number of divorces and dramatically changing housing markets have contributed to the increasing homelessness. These factors have created a general environment that is putting more people at risk of becoming homeless.
The underlying cause can be attributed to poverty - low income people have little or no choice in the type of housing they can select. Other reasons identified for homelessness include:
- Absence of new private purpose built rental housing in the region for at least a decade;
- Dwindling stock of existing affordable housing because of redevelopment and conversion;
- Demand for social housing consistently outstripping supply;
- High cost of private market housing
- Inadequate capacity of emergency shelter space;
- Low vacancy rates for rental housing
- Lack of funding for community supports which were supposed to have accompanied deinstitutionalization policies;
- Inadequate capacity of residential detox and addiction treatment beds;
- Changes in the labour market corresponding to changes in levels of personal and household income; and
- A growing incidence of poverty in the region.
The focus of the study is on two groups of people. The absolute homeless and those who are at risk of homelessness.
People who are homeless tend to fit into one of two broad categories. These are:
Absolute HomelessnessThe United Nations defines Absolute Homelessness as individuals living with no physical shelter- including people living on the streets, in doorways, covered parking lots, in parks or on beaches, in their vehicles and those squatting in vacant buildings. Being absolutely homeless is also referred to as being shelterless.1 Those who are absolute homeless have no housing choice and end up living on the streets or in shelters.
At Risk of Homelessness
Describes a less visible group of people. It includes people living in spaces or situations that do not meet basic health and safety standards, do not provide for security of tenure, or for personal safety, and are not affordable.
Who are the Homeless in Richmond?
The homeless and those at risk of homelessness in Richmond are comprised of a range of people who have in common their low income status. Those most vulnerable to homelessness include:
- Women and children fleeing abusive situations;
- Some low income people with disabilities;
- Some low income people with mental health issues;
- Some low income people with substance abuse problems;
- Some low income people with HIV;
- People with complex needs or multiple disabilities;
- Some new immigrants and refugees who are unable to find affordable accommodation and do not have family or friends to stay with;
- Youth who are unable to live at home; and
- Special event homelessness caused by disasters such as fires.
Key Documents/Studies & Initiatives to Address Homelessness
There is a wide range of policy documents and studies which have been completed in recent years. These will influence the way in which the Richmond Homelessness Strategy is developed. Many of the policies are subject to national/provincial guidance and then prepared at a regional and/or local level. The most relevant documents to the study are briefly described below:
National Homelessness Initiative
The National Homelessness Initiative provides a range of co-ordinated elements to tackle homelessness. There are three basic components to the National Homelessness Initiative, the Supporting Communities Partnership Initiative (SCPI), the Youth Homelessness Strategy and the Urban Aboriginal Strategy (UAS). The SCPI component of the Initiative represents the largest investment by the Federal Government, around $305 million over three years. Eighty percent of the funding is targeted at 10 cities across Canada, including Greater Vancouver. SCPI has five specific objectives:
- Alleviate the hardship of those who are currently without shelter
- Promote a co-ordinated series of programs and initiatives aimed at reducing homelessness
- Strengthen the capacity of communities to address the needs of homeless people and to reduce homelessness
- Promote the development of collaborative processes and broad-based partnerships
- Develop a base of knowledge, expertise and data about homelessness and share it with the public
The Provincial Government provides a number of services through various ministries and agencies to help communities address homelessness. The lead agency is BC Housing, provides funding for affordable housing for families, seniors and those who are at risk of homelessness. Other ministries such as Health Planning and Human Resources provide funding for a range of services which the homeless and at risk population rely upon.
Greater Vancouver Regional Homelessness Plan 2001
In March 2000, the Greater Vancouver Regional Steering Committee on Homelessness was established to develop a co-ordinated regional plan to address homelessness. The Plan provides a formal framework for the regional co-ordination and development of services and facilities to address homelessness and its contributing causes. The Plan also guides decisions on the allocation of funding for existing and new/revised programs around the region. The plan sets out 38 policies and recommends strategies for additional services and facilities to alleviate homelessness in Greater Vancouver. The Richmond Homelessness Needs Assessment and Implementation Strategy will be developed within the framework for the Greater Vancouver Plan while focusing on Richmond specific areas of need and priority.
The Plan recommends a continuum of housing and support, centred around three major elements- housing, income and support each of which has several sub-elements.
Other Key DocumentsThere are a number of other documents that will assist development of the Richmond Strategy. The Vancouver Richmond Health Board: A Strategic Plan for Housing Services 2000 sets out the role of the Health Authority in terms of housing, centred around advocacy, housing development, research and education. The City of Richmond Official Community Plan presents the long-term vision for Richmond. It also sets out carefully worded policies priorities and regulations that guide land use, community development and municipal spending decisions. The OCP recognises the need for a more diversified range of housing choices and the need for increased affordable and supportive housing in the City. The City of Richmond: Affordable Housing Strategy from 1994 is currently being reviewed to ensure it responds to the needs of the community.
The Provincial Government has prepared two documents which provide advice and guidance on various ways of addressing homelessness. The Homelessness-Causes and Effects: The Costs of Homelessness in BC from 2001 provides a range of information on the impact of homelessness. Local Responses to Homelessness: A Planning Guide for BC Communities from 2000 provides examples of ways in which communities can address the complex housing needs of the homeless and those at risk of homelessness.
How Big is Homelessness in Richmond?
Absolute Homelessness
Identifying the homeless population in Richmond is a difficult task because there are no direct data sources which measure the absolute homeless population. Most agencies do not track where their clients go to find emergency shelter or affordable housing. In January of 2002, a 24 hour snapshot exercise was undertaken which attempted to identify the number of absolute homeless people in Richmond. The findings are not yet available, but early indications suggest that fewer than twenty absolutely homeless people were found. This included 11 people at the men's shelter.
The number of people who are absolutely homeless in Richmond tends to remain low due in part to the capacity of the local emergency facilities. When demand rises above the existing supply of emergency shelters, people are required to look to other municipalities for assistance. Interviews with the men's shelter and transition home reveal that there is a large turnover in residents, with only a small percentage being repeat clients. These two emergency shelters are only able to cater for a specific portion of the population. Those facing challenges with mental health, substance misuse and other disabilities can not be accommodated in Richmond. There is also no provision for youth who are unable to live at home.
Some key facts associated with the use of the emergency shelters in Richmond include:
- Men's Shelter:
- 8 beds, 3 cold/weather beds
- 2001: 85% capacity, with 100% capacity in September
- 2001: 70 people turned away because of lack of room
- Women's Transition House
- 10 spaces
- in last 9 months, 107 women and children were served
- in last 9 months, 195 women and children were turned away
The number of women turned away from the Women's Transition House is in part due to the configuration of the house which is not flexible to cater for specific situations. Not all people who turn to the Transition House are able to be served. Those with substance misuse problems, women with adolescent sons or women who are homeless but not fleeing abuse can not be accommodated.
At Risk of HomelessnessIdentifying the number of people who are risk of homelessness is even more challenging. There are a number of indicators which can be used to approximate the number of people who are at risk of homelessness. The standard indicators applied to the at risk population, include anyone who pays more than 50% of their income towards shelter, this includes both mortgages and rentals. This is not always a reliable indicator given the fact that those with high levels of income, may choose to pay more than 50% of their income towards shelter and are not at risk of homelessness. Also given the current low interests rates those with a mortgage are less likely to be at risk of homelessness since their tenure is secure. In Richmond, in 1996, 5,650 people paid more than 50% of their income towards rented accommodation. In Richmond, in 1996, 12,310 homeowners were paid more than 50% of their income towards their mortgage.
The real focus of those at risk of homelessness is those who have low incomes and are unable to find affordable accommodation. In 2000, the Low Income Cut-Off (LICO) (a mechanism which can be used as an approximate poverty line) was set at $22,964 for a household of two. In 1996, there were 9,000 people living below the Low Income Cut-Off in Richmond.
In terms of income, BC Benefits pays a maximum of $325 towards shelter for single people on benefit, and $520 for a couple. In 2001, the average bachelor suite rented for $550 a month and one bedroom units rented for $699 a month. Within Richmond there are 3,000 people currently collecting BC Benefits.
Richmond has 2,476 units of subsidised housing. The waiting list to get into these units currently stands at 1,300 people with a waiting time of anywhere between 4 and 8 years.
Use of the food bank is a measure of poverty, and provides an indication of the number of people who are at risk of homelessness. In 2001, around 1,100 households visited the food bank, with about 15% visiting on a weekly basis.
Local Stories of Homelessness
As part of the study, the consultants met with over 40 people who were either homeless or at risk of homelessness. We have developed the following composite stories to provide an indication of the type of challenges the homeless in Richmond are facing.
| Jeff is 17 years old and has always lived in Richmond. He's had family problems and left home about 2 years ago. He dropped out of school and got pretty heavily involved with drugs. He has mostly stayed with friends couch-surfed. He's struggling to get his life back on track with the help of an Outreach Worker. He's back in school now and the teachers have been great. But with no regular place to stay, getting to school is pretty difficult. His Outreach Worker has helped him find a place to live but it's in Surrey |
| Al is 28 years old. He has schizophrenia. For the past 4 years, he's been hospitalized many times and wonders if he'll ever be able to complete his university degree and get a decent job. Since his illness, he has moved back home with his parents. He's been in hospital for six weeks this time and his parents have told him he can't come back they just can't cope any longer. Al is on a waitlist for Supported Independent Living in Richmond, but he knows that the wait can be two years or more. |
| Reena and her 2 children spent last summer at the Women's Transition House. She came to Canada 7 years ago to marry and both the children were born in Richmond. Sadly, her husband is a violent man, and to keep herself and her children safe, Reena had to leave. Richmond has been her only home in Canada and she wants to stay. Almost 70% of her income is used to rent her one bedroom apartment. It's more than she can afford and she doesn't know how much longer she can hang on. |
We also interviewed recent immigrants and food bank users. A common theme to emerge from these discussions was the number of people who are living with one or more other families in a single residence to reduce the overall cost of housing. A number of people are living with their extended family including children, parents and grandparents.
Richmond Has Many Strengths
There are a number of assets within Richmond which can be built upon to tackle the issue of homelessness. Through our consultations and research, the following key strengths have been identified:
- Strong network of community service providers, each providing services targeted at specific sectors of the community (Food Bank, CHIMO Crisis Services, Salvation Army, Disability Resource Centre, SUCCESS & Touchstone Family Services, to name a few);
- A strong tradition of the community rallying around various challenges;
- A committed Municipal Government;
- The Affordable Housing Strategy has been successful in establishing an Affordable Housing Reserve Fund which can be used to fund/part fund certain projects;
- Two shelters providing basic emergency shelter for members of the community;
- Large faith community which is active in the community and provides assistance to the homeless in the community;
- A developed network of health services for people with mental health issues, substance misuse and those living with HIV; and
- Viewed as a safe community and a great place to live
Richmond Also Has Specific Needs
There are also a number of areas in which the specific needs of the community could be better provided for. The consultation and research components to the study indicated the following key issues to be tackled:
- Improvements to the quality of Richmond House, the Men's Shelter which is in poor physical condition and runs at capacity;
- The women's transition house suffers from insure tenure and has recently moved three times as short term leases have expired. A permanent location for the transition house is required. Increasing capacity would be beneficial to the community;
- There is no emergency housing in the community for:
- Women, with or without children;
- Youth;
- Families;
- Individuals with mental health issues;
- Individuals with physical disabilities;
- Individuals with HIV; and
- People with complex needs or multiple disabilities;
- While, there a wide range of programs in Richmond, people dont necessarily know about them;
- The demand for social housing far outstrips supply forcing people to find private rented accommodation which is either inadequate or beyond their financial means;
- Low income families are spending a disproportionate amount of their income on rent. In a few cases, people are spending up to 100% of their income to be able to afford suitable accommodation;
- Local people have to leave Richmond in search of services and affordable housing which arent provided in the City;
- Education about the problem is required, homelessness is seen by many in Richmond as someone elses problem;
- Some new immigrants and refugees are required to share apartments and houses with other families to be able to afford rent; and
- Within the community there are an unidentified number of households comprised of extended family
What are the Priorities?
Based on the initial consultations and analysis of various data sources it would appear that to successfully address homelessness, the strategy needs to focus on more than just the provision of new housing units. The strategy should also focus on changing the attitudes of the community and introducing preventative measures. The guiding principles of the Plan may include:
- As a community, agree that it is not acceptable to pass the problem on to other municipalities and commit to taking responsibility for its own residents;
- Ensure that when local people become homeless, the necessary services are available to them;
- Take a serious look at the affordability of Richmond's housing stock. What more can be done to create an inclusive, caring community?
- Commit to address specific deficiencies in the provision of emergency housing; and
- Ensure that the provision of local services is co-ordinated to avoid duplication and potential gaps.
Some Recommended Projects
One of the key aims of the workshop is to identify projects to address homelessness in the City. Based on the research and consultations undertaken during the initial stages of the assignment, a draft 6 point action plan has been developed. This should not be seen as a definitive list of projects, as it is anticipated that the community will identify additional projects during the course of the workshop. The six projects identified below are intended to encourage discussion and debate. The six point draft plan includes the following projects:
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The information presented in this paper is intended to provide background information on the issue of homelessness in Richmond. At the workshop on 21 February, these issues will be presented and a series of discussion groups will be formed to confirm the issues, identify possible solutions and to reach consensus on the best way forward.
Following the workshops, a draft implementation plan will be created. It will outline a set of projects for implementation the City and its partners in the short, medium and long term to address and prevent homelessness in Richmond. The projects will have clear objectives, justification, identified actions and lead partners with possible funding sources identified. The draft plan will be presented to the community at a delivery workshop at the end of March.
Upon approval by the Richmond Homelessness Steering Committee, the final plan will be presented to the City in April 2002. All information relating to the study is available on the City's website and is updated as new information become available.
1
Regional Homelessness Plan for Greater Vancouver (2001) Woodward, Jim; Eberle, Margaret, Kraus, Deborah; and Goldberg, Michael. Greater Vancouver Regional Steering Committee on Homelessness Page 84