Joint Municipal Housing Statement

Transcription

1 Halton Region Document under Separate Cover to LPS26-10 Joint Municipal Housing Statement March 2010

2 For additional copies or more information about housing in Halton, contact Halton Region Dial 311 or Toll free HALTON ( ) TTY LPS-09087

3 Halton Region Joint Municipal Housing Statement March 2010 Prepared by

4 Table of Contents 1.0 Introduction Purpose Context Study Objectives Study Approach and Methodology Housing Continuum Study Format Phase 1: Housing Demand and Supply Analysis and Identification of Issues Phase 2: Recommended Framework, Policies and Programs Promoting Healthy Communities Strategy Key Issues Framework, Policies, and Programs Encouraging and Protecting Affordable Housing Strategy Key Issues Framework, Policies, and Programs Encouraging and Protecting Assisted Housing Strategy Key Issues Framework, Policies, and Programs Supporting Independent Living Strategy Halton Joint Municipal Housing Statement (March 2010) i

5 5.2 Key Issues Framework, Policies, and Programs Retaining and Regaining Housing Strategy Key Issues Framework, Policies, and Programs Appendix A: Overview of Consultation Process Halton Joint Municipal Housing Statement (March 2010) ii

6 1.0 Introduction 1.1 Purpose Halton's population grew significantly over the last census period from 375,229 in 2001 to 439,256 in 2006 and is forecast to increase by 78% between 2006 and 2031 to 780,000 persons. The purpose of this report is to undertake housing research to identify housing need/demand within the Region and Local Municipalities along the housing continuum and to provide a policy framework to assist the Region and Local Municipalities in achieving established population forecasts and in meeting the housing needs of all of Halton s current and future residents along the housing continuum and throughout their lifetime. 1.2 Context While the Region s Official Plan calls for the preparation of a joint Regional Municipal Housing Statement, the new Joint Municipal Housing Statement (JMHS) has been largely driven by Places to Grow: Growth Plan for the Greater Golden Horseshoe (2006) as well as other recent Provincial, Regional and Local policy initiatives that are designed to create complete communities and provide a range of housing choices for Halton s residents. Provincial Policy Initiatives In recent years the Province has assumed a larger role in planning through a number of key initiatives. These include revisions to the Provincial Policy Statement (2005) and the Planning Act and the introduction of Places to Grow: Growth Plan for the Greater Golden Horseshoe (2006). Provincial Policy Statement (2005) The Provincial Policy Statement provides guidance to municipalities in the development of local official plan policies related to housing. The Policy Statement requires that municipalities provide an appropriate range of housing types and densities by establishing and implementing minimum targets for the provision of housing which is affordable to low and moderate income households, and permitting and facilitating all forms of housing required to meet the social, health and well-being requirements of current and future residents (including special needs requirements) and all 1

7 forms of residential intensification and redevelopment. It also requires that municipalities promote densities for new housing which efficiently use land, resources, and infrastructure. Places to Grow Places to Grow is a framework prepared under the Places to Grow Act, 2005, which outlines Ontario s vision for growth in the Greater Golden Horseshoe to Places to Grow projects Halton Region to have a population of 780,000 and 390,000 jobs located in the Region by The Region and Local Municipalities are required to undertake a conformity exercise to meet the population and employment targets outlined in Places to Grow. Places to Grow also requires that the Region, in collaboration with Local Municipalities, set housing targets for a range of housing types and densities to support the population and intensification targets identified under Places to Grow, and develop a housing strategy that will set out a plan and official plan policies to provide a range of housing types to meet the needs of all residents. The Places to Grow policies also place emphasis on complete communities which includes in its definition as communities having the right mix of housing, including affordable housing, to accommodate people in all stages of life and to meet daily needs. The Joint Municipal Housing Statement has been created in order to fulfil these requirements of Places to Grow. The JMHS includes housing targets for a range of housing types and provides policies and tools that will help the Region and Local Municipalities in achieving a range of housing required to meet the needs and to create complete communities in Halton s new and existing communities. Regional Policy Initiatives Sustainable Halton Sustainable Halton is Halton Region s growth management initiative that has been initiated in response to Places to Grow, and has been used to help develop Halton s updated Official Plan. The Sustainable Halton process has ensured that Halton Region policies conform with Places to Grow, the Provincial Policy Statement, and other relevant legislation. It also included a review of the current Regional Official Plan (2006). The Sustainable Halton process has determined Halton Region s goals and objectives for growth, and has identified what policies are needed to reach those goals. The Sustainable Halton process has placed emphasis on creating complete healthy communities. 2

8 The Sustainable Halton plan was developed in a number of phases. In the first phase, 22 background reports were created. The background report which links most directly with the Joint Municipal Housing Statement is the Housing Directions report. The Housing Directions report identified the various Provincial and Regional policy initiatives that helped shaped the housing mix in Halton Region in conforming with Places to Grow. The report also presents a framework to inform and guide development, including the identification of housing targets. These housing targets have been updated as part of the Joint Municipal Housing Statement process. The second phase of the Sustainable Halton process included the development of principles, objectives, and an evaluation framework for potential growth options for Halton Region. A number of growth concepts were developed, and narrowed down to a few concepts and then a preferred option. Numerous studies were prepared to help determine the Preferred growth option, and to achieve complete healthy communities. The Joint Municipal Housing Statement is one of the studies undertaken to provide tools and a policy framework, including suggested policies for the updated Regional Official Plan, to help achieve complete healthy communities and meet the housing needs of all Halton residents. The third phase was the decision making phase, where Regional Council selected the Preferred growth option to accommodate Halton s future growth for the period 2021 to Phase four of Sustainable Halton was the Official Plan Review. Through this process the Region used a two-stage approach to bring the Region s Official Plan into conformity with the Provincial Growth Plan. In the first stage, staff brought forward proposed Regional Official Plan Amendment No. 37 (ROPA 37) to incorporate the basic requirements of the Growth Plan into the Regional Official Plan. Through ROPA 37, the following Growth Plan policies were incorporated into the Regional Official Plan: Population, employment, and intensification targets for the City of Burlington and the Town of Oakville to the year 2031, while those for the Towns of Halton Hills and Milton to 2031 were added later through an amendment (ROPA 38) to the Regional Official Plan; The minimal density and intensification targets including: o The 40% intensification target for the built-up area by 2015 and each year thereafter, o The requirement that Halton s three urban growth centres (Downtown Burlington, Midtown Oakville, and Downtown Milton) be planned to achieve a density of 200 jobs and persons per hectare, and 3

9 o The greenfield density target of 50 persons and jobs per hectare; The appropriate locations for future growth including urban growth centres, intensification corridors, designated greenfields, built-up areas, and major transit station areas and the corresponding policies to guide this growth; The protection of employment lands by providing more stringent criteria for the conversion of employment lands to other uses; The requirement that the Local Municipalities develop and implement strategies to phase in and achieve the intensification targets identified in the Growth Plan; and Growth Plan definitions. In the second stage of the conformity exercise, an amendment (ROPA 38) to the Halton Regional Official Plan was brought forward that identifies an expansion to the urban settlement boundary to accommodate Halton s future growth for the period of 2021 to 2031, and provides a growth management strategy to guide and manage this growth. In addition, the Regional Official Plan was brought into conformity with other Provincial plans and policies and a number of housekeeping items were addressed. The Official Plan Amendments recommended in the Joint Municipal Housing Statement were addressed as part of ROPA 38. Official Plan The Joint Municipal Housing Statement is being prepared to meet the requirements of the Region s Official Plan (2006) which directs the Region to prepare and update a Joint Municipal Housing Statement every five years for Council adoption, in conjunction with the Local Municipalities and in consultation with the development industry and other housing providers. The Official Plan states that the Joint Municipal Housing Statement should describe: 1. The annual demand, supply and need for housing by Local Municipality, 2. The need for Assisted 1, Affordable 2 and Special Needs Housing by number of units, by client group and by type, 1 Assisted Housing means housing that is available to low and moderate-income households for rent or purchase where part of the housing cost is subsidized through a government program. The Assisted Housing income threshold for 2007 is less than $41,300 /year, and households with these incomes can afford rents less than $1,032/month or to purchase a home at less than $132,000 (Annual Housing Report 2008). 2 Affordable Housing means housing with market price or rent that is affordable to households of low and moderate income spending 30% of their gross household income without government subsidies. Such households would be able to afford, at the low end, at least three out of ten 4

10 3. The supply of housing with universal physical access, and 4. The adequacy of land supply for housing purposes. The Plan also directs the Region to adopt five-year housing targets based on economic forecasts and housing needs identified in the Joint Municipal Housing Statement, in conjunction with the Local Municipalities and in consultation with Halton Housing Advisory Committee and the development industry and other housing providers. The Official Plan further requires the Local Municipalities to develop an in-fill and intensification development strategy which take into the mix recommended in the Housing Statement. Comprehensive Housing Strategy The Comprehensive Housing Strategy provides a roadmap for 2006 to 2015 and beyond to address the continuum of housing needs in Halton Region for residents of all incomes and all stages of life. The Comprehensive Housing Strategy proposes five major strategic directions along with 21 short-term and 18 long-term priorities with 40 specific recommendations for action. The actions identified in the Comprehensive Housing Strategy relating to land use policies have been referred for under the process of developing the Joint Municipal Housing Statement. In addition to incorporating and building on the existing policies and programs of the Comprehensive Housing Strategy, the Joint Municipal Housing Statement supports the Comprehensive Housing Strategy by recommending additional policies and tools to meet the housing needs of all of Halton s residents. A number of recommendations have been made as part of this document for when the Comprehensive Housing Strategy is updated Annual Housing Report The Annual Housing Report monitors the number and types of housing produced through new residential development and residential intensification, the house prices for each housing type in Halton, how targets for the five-year housing targets set out under the Official Plan are being achieved, the supply and demand for Assisted Housing, Affordable Housing and Special Needs Housing, and the extent of Homelessness in Halton. The purpose of the report is to assist Regional Council in assessing how well it is achieving its overall housing goal to supply the people of Halton with an adequate mix and variety of housing to satisfy differing physical, social and economic needs. It also provided background information to the Joint Municipal Housing Statement and set out directions to identify new policies rental properties on the market, and at the high end, ownership housing with sufficient income left, after housing expenses, to sustain a basic standard of living. The Affordable Housing income range for 2007 is $41,300 to $81,400, and households within this income range can afford rents of $1.032 to $2,034/month or to purchase a home with a purchase price between $132,000 to $259,000 (Annual Housing Report 2008). 5

11 through the Joint Municipal Housing Statement that address any housing Gaps in the Region s housing continuum and meet the housing needs of Halton s residents. It is also used to set priorities among the various housing needs so that programs and actions can be implemented to address such needs Census Data The final segments of data from the 2006 Census were released in May 2008, making it an ideal time to prepare the Joint Municipal Housing Statement. The 2006 Census data which has been incorporated into the report contributes to providing a more up-to-date picture of the key housing trends and issues in the Region beyond what has been able to be provided in previous Regional reports. This recent data is especially important given the vast changes in the Region since In depth custom tabulated data based on the 1996, 2001 and 2006 Census was also purchased and analyzed for this report. This data provided new insights into a variety of housing issues in the Region, in particular for a number of diverse population groups 3 and by income. 1.3 Study Objectives The Joint Municipal Housing Statement has been undertaken to identify the housing needs within the Region and Local Municipalities along the housing continuum and to provide a policy framework to meet identified needs. The specific objectives of the Joint Municipal Housing Statement are as follows: To meet the requirements of Policy 86(4) of the Regional Official Plan (2006); To undertake housing research to identify housing need/demand within the Region and Local Municipalities along the housing continuum; To support the Sustainable Halton process and the Comprehensive Housing Strategy; To provide the policy framework and tools to assist the Region in achieving the housing targets set out in Places to Grow, create complete healthy communities and meet the housing needs of all of Halton s residents along the Region s housing continuum, as required by Places to Grow and; To incorporate existing policies and programs into the policy framework and tools, as appropriate. 3 Diverse population groups included households led by each sex, lone parent families, youth, older adults, persons with physical disabilities, immigrants, Aboriginal Persons, and visible minorities. 6

12 1.4 Study Approach and Methodology The approach used to develop the Joint Municipal Housing Statement was a collaborative effort between Halton Region, the Local Municipalities, SHS Consulting, and the Halton community. SHS Consulting s role was to gather and analyze information and housing needs and suggest recommendations on suitable approaches for addressing identified issues to the Steering Committee. The Steering Committee was comprised of Regional staff from the Planning and Housing departments and Planning representatives from each of the Local Municipalities. The role of the Steering Committee was to provide direction on relevant research opportunities, confirm timelines, outline the overall course for the study, and provide comments on the recommended actions. Staff from the Ministry of Municipal Affairs and Housing were also consulted in the preparation of the Joint Municipal Housing Strategy. The study involved the participation of a number of key stakeholders from across the Region through the consultation process. A listing of the key stakeholders who participated in the consultation process is presented in Appendix A. Opportunities for consultation included the following: Emergency, Transitional and Supportive Housing Survey- all emergency, transitional and supportive housing providers, as identified by the Consultants in consultation with the Steering Committee, were provided with an opportunity to complete a detailed housing survey in August Housing Issues Survey- Surveys were sent out in August 2008 to agencies across the Region in order to provide insight into the housing needs within the Region. Telephone Interviews- several key informants were identified in consultation with the Region to provide insight into broad housing issues throughout the Region. Telephone interviews took place between Summer 2008 and Spring Focus Group Sessions- Focused consultation sessions were held with key stakeholders involved in emergency shelters, supportive housing for persons with physical disabilities, seniors, persons with developmental delays, mental illness, additions, acquired brain injury and dual diagnosis; and non-profit housing providers to provide 7

13 insight into the housing issues of various population groups and to suggest strategies for addressing the issues. The focus group sessions were held in the Fall and Winter of 2008/9. Consultation Session with Key Stakeholders- A consultation session was held with key stakeholders to obtain input into the housing issues and strategies in Fall Housing Continuum The Joint Municipal Housing Statement uses the housing continuum as its framework for analysis of the housing needs. The housing continuum is represented by a spectrum with the left representing absolute homelessness. Moving to the right is basic shelter which includes emergency shelters, supportive housing, and transitional housing. This is followed by not-for-profit, Assisted housing which is housing for those with modest incomes. The right side represents private market housing, including Affordable rental housing and Figure 1: Housing Continuum home ownership. (Halton Region Social and Community Services Department, 2006) Direct government funding is required on the left of the continuum to assist those who are homeless and those living in temporary accommodations as these individuals cannot obtain housing without support. The centre of the continuum requires funding and regulation to ensure that housing costs are kept affordable to those with modest incomes. This type of housing may be provided by governments in partnership with not-for-profit organizations. The right side of the continuum represents housing in the private market. Government housing policy and regulation is required on this side of the continuum to ensure that a range and mix of housing is provided. (Halton Region Social and Community Services Department, 2006) Source: Halton Region Social and Community Services Department, A Comprehensive Housing Strategy for Halton Region,

14 1.4.2 Study Format There were two phases to the preparation of the Joint Municipal Housing Statement. Phase One was the preparation of the Housing Demand and Supply Analysis and identification of key housing issues. Phase Two was the preparation of the Joint Municipal Housing Statement which includes the recommended framework, policies and programs. Phase 1 Demand & Supply Analysis Phase 2 Recommended Framework, Policies and Programs Demographic Profile Economic Characteristics Housing Supply Diverse Population Groups Special Needs & Other Housing Federal & Provincial Legislation, Policies & Programs Municipal Legislation, Policies & Programs Best Practices & Tools Housing Affordability Key Issues Recommended Framework, Policies, & Programs Phase 1: Housing Demand and Supply Analysis and Identification of Issues The first phase involved the preparation of the housing demand and supply analysis. The demand and supply analysis presents a comprehensive synopsis of current and projected housing needs in the Region and Local Municipalities. The analysis builds upon existing data and analysis of Halton s housing market to develop an understanding of the Region s complete housing continuum and current and future demand for housing in Halton to It identifies the demand 9

15 for all housing types and tenures along the Region s housing continuum to 2031, and draws upon the work of the Comprehensive Housing Strategy and the Annual Housing Report, both of which have identified housing demand within the Region. In particular, the analysis includes the development of a demographic profile of the Region and Local Municipalities, as well as supply and demand of market housing, Assisted and Affordable housing, diverse populations, special/supportive housing and accommodation for persons who are homeless. The Key Housing Issues identified in the Demand and Supply Analysis are as identified below, and further discussion of the Issues is provided in subsequent sections. The Key Housing Issues have been grouped by the strategic directions identified in the Comprehensive Housing Strategy. Healthy Communities Additional diversification of the housing stock is needed to meet the full range of housing needs An appropriate balance of jobs and housing is necessary to support the achievement of complete healthy communities Affordable Housing There is an insufficient supply of Affordable housing The rental housing stock is declining The Region s housing stock is in relatively good condition, though a greater portion of the rental housing stock and housing occupied by the diverse population groups is in need of major repairs Affordability is an issue for many smaller households, singles, non-family households, and many households in the diverse population group Encouraging and Protecting Assisted Housing The existing supply of Assisted housing is not sufficient to meet the need Independent Living There is an insufficient supply of supportive housing for a number of client groups, including persons with mental illness, persons with physical disabilities, seniors, youth with developmental disabilities, and persons with behavioural issues 10

16 Some individuals, including immigrants and persons with special needs, are facing additional barriers to accessing and maintaining housing Retaining and Regaining Housing There is a growing need and insufficient supply of emergency housing in Halton Region for some client groups, including victims of domestic violence and families Halton has relatively few transitional housing facilities, and options are not consistently available for all client groups or in each Local Municipality The Key Issues are addressed within the recommended framework, policies and programs developed as part of the second phase of the study, and provided in the subsequent sections of this document Phase 2: Recommended Framework, Policies and Programs The second phase of the study, the preparation of the Joint Municipal Housing Statement, involved building upon the existing Regional and Local Municipal policies and tools to identify a comprehensive framework of policies and programs to meet the Region s projected population in 2031, to create complete healthy communities and meet the housing needs of Halton s population along the continuum. In particular, this involved identifying specific planning policies or tools that can assist the Region and Local Municipalities in retaining and increasing the stock of all types of housing, i.e. market, Assisted, Affordable, accessible, and special needs housing to meet the needs of Halton s residents. It included identifying how the proposed policies and programs will address the housing gaps identified in the Region s housing continuum. This phase of the study also involved the development of housing targets by type and tenure and affordability objectives that will create complete communities and meet the housing needs of current and future residents of Halton Region. The recommendations developed as part of the Joint Municipal Housing Statement, found in the following sections, are grouped into six categories: Planning; Policy and Research; Financial; Collaboration; Awareness, Advocacy and Education; and Monitoring. The relevant policy framework and context is provided for each recommendation. Also highlighted is the implementation process, (Official Plan Amendment, or Consideration Under the Next comprehensive Housing Strategy). Supporting materials, including further information on legislation, policies, programs, and best practices and tools, can be found in the Technical Appendix to this report. 11

17 2.0 Promoting Healthy Communities 2.1 Strategy Encourage communities to be inclusive, environmentally sustainable and economically viable. A sufficient range and mix of housing throughout the entire housing continuum is necessary for inclusive, diverse, environmentally sustainable, and economically prosperous communities. Healthy, well-designed communities anticipate and accommodate the needs of a changing community as age, family size, income levels and different physical abilities evolve. As such, Halton Region will work to change the regulatory environment by implementing new planning policies that support the creation of more diverse, mixed-use communities. 2.2 Key Issues Phase One of the Joint Municipal Housing Statement has identified the following key issues related to healthy communities: Additional diversification of the housing stock is needed to meet the full range of housing needs A greater diversity of housing forms is needed to meet the range of housing needs in the Region. Currently, the majority of units in Halton are single-detached although multiple units (townhouses and apartments) are now contributing to almost half of the new units being built. The housing mix is anticipated to, and will need to, become increasingly higher in density to meet a greater range of needs. Tenure choices are also limited, with the rental stock declining steadily, with no rental housing starts in 2008, and only moderate rental production in the five prior years. Current trends towards smaller and non-family households, an aging population, an increase in lone parent families, visible minorities and Aboriginal persons, and immigrants increasingly coming from Asia and the Middle East, will likely continue to require additional diversification of the housing stock to meet the needs of these groups. The proportion of one and two person households has increased since 1991 (see Figure 2 on the following page). Non-family households have also grown, from 18.7% in 1991 to 21.4% in 2006, though family households are still by far the most predominant household type at 76.6% of households in Halton in

18 Percent of Households 3.3% 3.2% 3.0% 2.9% 15.4% 16.7% 18.5% 19.0% 19.0% 18.4% 17.6% 17.7% 30.8% 31.4% 32.1% 31.9% 31.6% 30.3% 28.9% 28.5% Housing at various affordability levels is required to meet needs of residents at 35.0% various income levels. While 30.0% Halton has an affluent 25.0% population, with the highest 20.0% average household income and 15.0% lowest incidence of low 10.0% income among the Greater 5.0% Toronto Area- Hamilton 0.0% (GTAH) municipalities, still 8.5% of the population, some 36,837 individuals, were living on low income based on Statistics Canada s low income cut-off. Single individuals fared considerably worse, with one quarter of all single individuals living on low incomes (see Figure 3). Economic and labour force characteristics also point to the need for a diversified housing stock. Recent increases in unemployment rates; a relatively significant portion of the labour force comprised of part-time jobs; and a significant portion of the labour force engaged in sales and service jobs which tend to be lower paying, all point to the need for a diversified housing stock. Halton faces a number of economic challenges in the short term as a result of the struggling economy, which require a diversified and flexible housing stock to meet housing needs as employment situations change. Additionally, a range of housing types will be required to attract workers to the Region. Figure 2: Trends in Persons per Household, Halton Region, Person 2 Persons 3 Persons 4-5 Persons 6+ Persons Persons Per Household Source: Statistics Canada, Census , 2001 and 2006 Figure 3: Incidence of Low Income by Household Type, Halton Region,

19 An appropriate balance of jobs and housing is necessary to support the achievement of complete healthy communities. Currently, there are 2.24 residents for every job in Halton Region, while Places to Grow projects a more balanced ration of 2:1 by There s a trend in Halton towards increased commuting to work, particularly in Milton. Over the last ten years, the number of outside commuters in Milton has grown faster than the population, indicating that most new residents are commuting. In 2006, nearly half of Halton s labour force commuted outside of Halton and less than one-third worked in their municipalities of residence, although more residents of Oakville and Burlington found jobs within their communities. Also, 78.5% of residents drove to work. This indicates a potential mismatch between the types of jobs and types of labour force within a community. 2.3 Framework, Policies, and Programs Recommended actions as well as the relevant context, policy framework and implementation process to address the Key Issues related to promoting healthy communities are as follows: Planning Framework, Policies, and Programs Relevant Policy Framework / Context Implementation Process 1. Add a policy in the Regional Official Plan to require Local Municipalities to establish a strategy and policies to attain the intensification targets identified in Places to Grow (section ). Strategies to attain intensification targets may include: a) Pre-zoning lands for more intensive uses b) Prohibiting downzoning Action 1.6 recommends that Halton Region, working in conjunction with the Local Municipalities, pre-zone lands for more intensive uses to achieve the intensification targets of the Provincial Growth Plan. The addresses the need to pre-zone lands for more intensive uses in response to the PPS policy that calls for managing and directing land use to achieve efficient development and land use patterns by promoting cost effective development standards that minimize land consumption and servicing costs. Downzoning is the reduction of density allowed for a certain property under zoning bylaws, such as from high density to medium density. Downzoning may have the effect of reducing the Affordable housing stock as sites that are currently zoned to allow multi-residential developments, which are ROPA 38 New Policy - 77(4) 14

20 Framework, Policies, and Programs Relevant Policy Framework / Context generally considered to be more affordable, would only allow low density residential developments after the downzoning process. Municipalities can specifically prohibit downzoning of residential land to help ensure density targets are met and to curb the loss of more dense Affordable housing. Refer to the Technical Appendix for further details. Implementation Process 2. Add a policy to the Regional Official Plan which requires Local Municipalities to establish a strategy and policies to achieve established affordability targets. Strategies to achieve the affordability targets may include: a) require minimum densities that result in the development of a variety of Affordable housing types in each Halton community (secondary plan area) b) require a percentage of each type of housing form (i.e. singles, semis, townhouses and apartments) within each community (secondary plan area) to support the development of a variety of Affordable housing types c) require brownfield and greyfield redevelopment that receive incentives or funding to include an Affordable and/or Assisted housing component subject to the appropriateness of the site for Assisted and/or Affordable housing. The Provincial Policy Statement requires that municipalities provide an appropriate range of housing types and densities to meet projected requirements of current and future residents of the regional market area by attaining minimum targets for housing which is affordable to low and moderate income households (1.4.3.a). Places to Grow also requires that affordable housing needs are considered as a part of the policies to achieve the intensification targets and it further promotes the principal of building complete communities that can accommodate people in all stages of life and that have a mix of housing. Adding a policy which establishes minimum densities that result in the development of a variety of Affordable housing types in each Halton community (secondary plan area) and meet the intensification targets of Places to Grow is Action 1.2 in the. Action 1.3 is to require a percentage of each type of housing form within each community (secondary plan area) to support the development of a variety of Affordable housing types and meet the intensification targets of Places to Grow. The Region s existing Official Plan lists a number of policies regarding brownfield development, but doesn t include financial and planning incentives. Given the sometimes unknown nature of the contamination of brownfield and greyfield sites, as well as other complications such as rezoning and neighbourhood acceptance, many municipalities have adopted strategies to facilitate and guide brownfield redevelopment. These strategies may include financial and planning incentives. These incentives may be tied to the provision of Affordable housing to make this more attractive to private developers. Refer to the Technical Appendix for further details. ROPA 38 New Policy - 77(5) 15

21 Framework, Policies, and Programs 3. Add a Regional Official Plan policy that outlines the housing mix that would include a target that at least 50% of new housing built annually be townhouses or multi-storey buildings, and that at least 30% of new housing produced annually be Affordable Housing Mix for a Complete Community, Halton Region Housing Mix for a Complete Community, Halton Region, 2008 Type Purpose Built Rental Ownership Assisted and Affordable Market Affordable Market Total Single/Semi n/a n/a 5% 45% 50% Row 3% 1% 9% 6% 20% Apartment 21% 2% 7% 1% 30% Total 24% 3% 21% 52% 100% Tenure 27% 73% Assisted and Affordable Total 45% Relevant Policy Framework / Context The goal of the Region is to provide an adequate mix and variety of housing that satisfies the differing physical, social and economic needs of Halton's residents as identified in the Regional Official Plan. Places to Grow also calls for the provision of affordable housing, both home ownership and rental in creating complete communities. The PPS requires that municipalities establish and implement minimum targets for the provision of housing which is affordable to low and moderate income households (1.4.3.a). The chart outlining the housing mix for a complete community builds upon the earlier work of the Housing Directions report for Sustainable Halton that identified the mix and tenure in creating complete communities. It provides the Local Municipalities with targets for meeting the varying housing needs of their residents. The housing mix is explained in the Technical Appendix. Implementation Process ROPA 38 Revised Policy 86(6)(a) & (b) Government Assisted Construction Market Delivered Affordable 15% 30% *Numbers may not sum to totals due to rounding 4. Add a Regional Official Plan policy to recommend to Council appropriate actions to address any significant shortfalls in achieving Affordable housing targets In future years, if the targets have not been met, Regional Council would take action, i.e. implement programs and actions plans to address housing shortfalls. ROPA 38- Revised Policy 86(8) 5. Revise existing ten year land supply provision in the Regional Official Plan to incorporate the PPS requirement to maintain at all times the ability to accommodate residential growth for a minimum of 10 years through residential The PPS requires that municipalities maintain at all times the ability to accommodate residential growth for a minimum of 10 years through residential intensification and redevelopment and, if necessary, lands which are designated and available for residential development (1.4.1.a). ROPA 38 Revised Policy 77(7)a) and a)1 16

22 Framework, Policies, and Programs intensification and redevelopment and, if necessary, lands which are designated and available for residential development 6. Add an objective in the Regional Official Plan to promote residential intensification through the redevelopment of underutilized sites including brownfields and greyfields, possibly through the designation of Community Improvement Areas 7. Add a Regional Official Plan policy to require brownfield and greyfield redevelopment that receives Regional incentives or funding to include an Affordable and/or Assisted housing component subject to the appropriateness of the site for Assisted and/or Affordable housing 8. Strengthen Regional Official Plan policy 86(4) to include preparing an update the Joint Municipal Housing Statement in conjunction with reviewing the Regional Official Plan every five years Relevant Policy Framework / Context The current Regional Official Plan policy speaks of maintaining at least a ten-year supply of available lands or opportunities for new development or redevelopment within the designated Urban Areas, but does not refer to residential intensification and if necessary, lands which are designated and available for residential development. Action 1.4 is to require increased mixed-use opportunities in developing and redeveloping neighbourhoods. Action 1.5 is to support intensification of land uses, especially within the nodes and corridors. Intensification may occur through redevelopment of brownfield and greyfield sites, development of vacant and underutilized lots within developed areas, infill and expansion of existing buildings within Halton Region. The recognizes brownfields and greyfields in Places to Grow as focus areas for future intensification in the Greater Golden Horseshoe. Brownfield and greyfield sites can be ideal for Affordable housing as they are often in close proximity to existing amenities. Some municipalities have successfully linked the requirement for the inclusion of an Affordable and/or Assisted housing component with the redevelopment of brownfield sites, resulting in the achievement of two policy objectives; redevelopment and the creation of Affordable housing. Further details are provided in the Technical Appendix. The Region s Official Plan (policy 86(4)) directs the preparation of the Joint Municipal Housing Statement every five years. This recommendations clarifies that this will be done in conjunction with the review of the Regional Official Plan. Implementation Process ROPA 38 Objective; ROPA 38 New Policy 85(13) ROPA 38 New Policy 86(13.1); Revised Objective 86(15) ROPA 38 Revise 86(4) 17

23 Framework, Policies, and Programs Policy and Research 9. Investigate, with the Local Municipalities and the development industry, innovative residential development designs which contribute to affordability and energy and natural resource conservation. Relevant Policy Framework / Context Municipal guidelines or standards can contribute to the environmental performance of site and building designs with the goal of reducing overall energy consumption. Further details are provided in the Technical Appendix. Implementation Process 10. Work with the Local Municipalities to develop a model Property Standards By-law so that housing standards across the Region meet a minimum level for homeowners and renters Financial 11. Consider, in collaboration with the Local Municipalities, various incentives to promote the production of energy efficient housing 12. Consider, in collaboration with the Local Municipalities, incentives to promote the redevelopment of brownfields and greyfields Action 1.9 calls for Halton Region to work with the Local Municipalities to develop a model Property Standards By-law so that housing standards across the Region meet a minimum level for homeowners and renters. The identifies this policy direction in response to ROPA 25 which encourages Local Municipalities to adopt and enforce maintenance and occupancy by-laws. Burlington has recently approved a Property Standards By-law and this could be used as a sample for the other Local Municipalities. Refer to the Technical Appendix for further details. Places to Grow requires that municipalities develop and implement official plan policies in support of energy conservation ( ). The PPS requires that planning authorities identify and promote opportunities for intensification and redevelopment sites, including brownfield sites ( ) There are opportunities available such as the Brownfields Financial Tax Incentive Program, which could be investigated further. This is a provincial initiative designed to encourage the cleanup and redevelopment of brownfield sites that could be leveraged. Further details are provided in 18

24 Collaboration Framework, Policies, and Programs 13. Consider, in collaboration with the Local Municipalities, developing and implementing, and promoting awareness of community design plans, strategies, and policies to support agefriendly built environments Awareness, Advocacy & Education 14. Look to coordinate work on anti-discrimination education and seek out opportunities to work with private sector landlords, housing providers, and other community groups to disseminate information on discrimination and human rights as they relate to housing 15. Continue to work on Actions 1.1, 1.10 and 1.11 to put in place the framework necessary to provide housing along the continuum including sustained senior government funding and acceptance by the community of the need for a continuum of housing types for all incomes and all stages of life the Technical Appendix. Relevant Policy Framework / Context Halton s population is aging, making it increasingly important to promote age-friendly housing forms and built environments. Municipalities can play a key role in creating age-friendly communities through community design plans, strategies, and policies. Halton s Elder Services Advisory Committee developed a report on Quality of Life for Seniors in Halton, which identifies various aspects of an agefriendly community. Further details are provided in the Technical Appendix. Discrimination in housing can manifest itself in many forms, including racial profiling of tenants and racial discrimination, sexism, ageism, sexual orientation, and socio-economic profiling. The Need and Demand Analysis identified that some special needs groups are experiencing discrimination and therefore facing additional barriers to finding and maintaining housing. The Region should consider working on anti-discrimination education and seeking out opportunities to work with private sector landlords, housing providers, and other community groups to disseminate information on discrimination and human rights as they relate to housing. Refer to the Technical Appendix for further details. Action 1.1 is to continue to advocate to senior governments for the timely implementation of a Canadian Housing Framework that addresses housing needs across the continuum. The federal government can influence the projection and maintenance of Assisted and Affordable housing. The outlines some of the components of a Canadian Housing Framework, such as, sustained funding, permanent Assisted housing programs, permanent funding for the Residential rehabilitation Assistance Program (RRAP), and changes to tax policies, Implementation Process 19

25 Framework, Policies, and Programs among others. Relevant Policy Framework / Context It is important that all levels of government contribute to addressing housing needs across the continuum. The Region is currently undertaking research into potential changes to tax policies, and should use the results of this research to collaborate with other partners such as the Federation of Canadian Municipalities (FCM), the building industry, etc. to advocate for changes to federal multi-residential tax policies as part of its ongoing advocacy work for a Canadian Housing Framework. The Region has participated in a number of activities in support of Action 1.11, including participating in FCM s National Action Plan to End Homelessness and Deliver Affordable Housing, and providing extensive input in A Strategy to End Homelessness Report issued by the Ontario Municipal Social Services Association (OMSSA). Actions similar to this should be continued as part of a comprehensive advocacy plan. A number of activities have been undertaken in support of Action 1.10 including: A community outreach ongoing through the Voices for Housing Choices program Be a Hero. Be a Voice for Affordable Housing High School Contest successful Recognizing National Housing Day Survey of Housing Issues Brochure distribution and Video on website Researching best practices for development of Community Capacity Building program These activities should be continued to build awareness and acceptance of the need for a continuum of housing types. Implementation Process 20

26 Framework, Policies, and Programs 16. Explore and promote, in collaboration with the Local Municipalities, to the community, private sector (building and development industry) and non-profit sector (community and religious groups), a wide range of housing forms, including forms of housing suitable for diverse population groups 17. Inform residents of Canada Mortgage and Housing Corporation s Energy Efficient Housing Mortgage Rebate 18. Update Action 1.8 to pursue changes to the Ontario Building Code to incorporate new construction materials and techniques that would result in reduced construction costs for housing Relevant Policy Framework / Context Current trends in Halton Region towards smaller and non-family households, an aging population, an increase in lone parent families, visible minorities and Aboriginal persons, and immigrants increasingly coming from Asia and the Middle East, will continue to require additional diversification of the housing stock to meet the needs of these groups. Refer to the Technical Appendix for further details. CMHC Energy Efficient Housing Mortgage Rebate allows eligible purchasers to receive a 10% refund on their mortgage insurance premiums, and an extension to the amortization period with no surcharge if they are buying an energy-efficient home, or renovating a new or existing home to improve its energy efficiency. This supports energy conservation while at the same time improving housing affordability. Refer to Technical Appendix for further details. Action 1.8 is to establish a joint Halton Region/Local Municipality working group to identify ways to modify regulations in the Ontario Building Code that would result in reduced development costs for housing. The indicates that Ontario Building Code requirements are sometimes seen as barriers to providing Affordable and physically accessible housing. Using new construction materials, barrier-free and more energy efficient designs and other methods can also lower the cost of building new housing and maintaining existing housing. Since the was prepared, the Ontario Building Code has been updated to incorporate additional accessibility and energy efficiency requirements (refer to the Technical Appendix for further details). Also, one of the Standards Development Committees established under the Accessibility for Ontarians with Disabilities Act has developed a proposed accessible built environment standard. This standard was released for public review from July 14 to October 16, 2009 and is currently being finalized to incorporate comments provided by the public. When these standards were released for public review, the provincial government indicated that existing buildings would not be required to Implementation Process 21

27 Monitoring Framework, Policies, and Programs 19. As part of Action 1.5 to support intensification of land uses, monitor the release of potential legislative changes to the Brownfield Act to address a number of issues relating to liability, financing and regulatory processes that act as barriers to brownfield redevelopment in Ontario Relevant Policy Framework / Context comply with these standards when they become law. Only new construction of multi-unit housing will be required to comply with the built environment standards and Ontarians would not be required to make their new or existing homes accessible. Energy efficiency requirements can also be addressed municipally, as has been recommended here. The component that has not yet been addressed is the use of new construction materials. The Region should continue to pursue changes to the Ontario Building Code in this regard. Action 1.5 is to support intensification of land uses, especially within the nodes and corridors. Intensification may occur through redevelopment of brownfield and greyfield sites, development of vacant and underutilized lots within developed areas, infill and expansion of existing buildings within Halton Region. The Brownfields Status Law Amendment Act, 2001 promotes brownfield development projects throughout municipalities in Ontario. The legislation provides municipalities with greater flexibility in community improvement projects. The Ministries of Environment, Municipal Affairs and Housing, Northern Development and Mines and the Attorney General held a consultation process with the public on potential legislative changes to address a number of issues relating to liability, financing and regulatory processes that act as barriers to brownfield redevelopment in Ontario. This session closed on May 22, 2007, and the compiled results and recommended changes are being reviewed. This policy presents an opportunity for brownfield development to take place. Further information on the Act can be found in the Technical Appendix. In December 2009, Ontario Reg. 153/04 (Record of Site Condition) was amended with the amendments coming into force on July 1, 2010 and July 1, Implementation Process 22

28 Proportion of Households 25.7% 25.2% 20.9% 17.0% 74.3% 74.8% 79.1% 83.0% 3.0 Encouraging and Protecting Affordable Housing 3.1 Strategy Develop a policy framework to address the critical need for Affordable housing across Halton Region. Halton Region s Official Plan (2006), the Provincial Policy Statement, and Places to Grow recognize that a dynamic and healthy housing market requires an adequate supply of Affordable rental and ownership housing for those with modest incomes. While intensification of residential uses, use of more compact design forms, and funding of infrastructure may promote Affordable housing, additional tools are required to ensure that there is a sufficient supply of Affordable housing. 3.2 Key Issues Phase One of the Joint Municipal Housing Statement identified the following key issues related to Affordable housing: There is insufficient supply of Affordable housing There is currently a gap between the supply and demand of Affordable housing (units with rents between $1,023 and $2,034 per month and purchase prices between $132,000 and $259,000) of 300 to 800 units. Affordable sales accounted for only 17% of housing sales in The average resale price in 2007 stood at $390,789 and only 8% of resale homes sold for less than $215,000, of which the vast majority were condominiums (Source: 2008 Annual Housing Report). The rental housing stock is declining A portion of the gap in Affordable housing stock has been caused by the decline in the rental stock, which decreased by 3,030 units between 1996 and The proportion of rental housing decreased from 25% of the total housing stock in 1991 to only 17% in 2006 (Statistics Canada Census 2006). Maintaining the Figure 4: Trends in Tenure, Halton Region, % 80.0% 60.0% 40.0% 20.0% 0.0% Rented Year Owned Source: Statistics Canada, Community Profiles,

29 existing housing stock, particularly Affordable rental housing is important in ensuring an adequate supply of rental housing. The Region s housing stock is in relatively good condition, though a greater portion of the rental housing stock and housing occupied by the diverse population groups is in need of major repairs In addition to rental housing being in greater need of repair, housing condition is also a greater issue for most diverse population groups. While only 4.1% of all dwellings were in need of major repairs, youth occupied homes were much more likely to require major repairs at 8.5%, as were dwellings occupied by lone parents (8.0%), Aboriginal persons (7.8%), persons with physical difficulties (6.0%), and female led households (5.6%). Maintaining the existing housing stock is important as the older housing stock tends to be relatively more affordable. Affordability is an issue for many smaller households, singles, non-family households, and many households in the diverse population groups While Halton has fewer affordability issues than other municipalities in the GTAH, there were still 36,520 households (representing 23.3% of total households in Halton) experiencing housing affordability issues in Tenants have considerably lower incomes than owners and greater housing affordability issues. Some 43% of renters were experiencing affordability problems compared to 19.3% of owners (see Figure 5). Affordability problems are also more common in smaller household sizes. Singles, non-family households, and lone parents have greater affordability concerns than other household types. Youth households, recent immigrants, lone parent Figure 5: Proportion of Households with Affordability Issues of Diverse Population Groups, Halton Region,

30 households, Aboriginal households, visible minority households, female-led households, seniors 75 years and over, and households where a member has physical difficulties all reported higher rates of affordability issues compared to all households. 3.3 Framework, Policies, and Programs Recommended actions as well as the relevant context, policy framework and implementation process to address the Key Issues related to encouraging and protecting Affordable housing are as follows: Framework, Policies, and Programs Relevant Policy Framework / Context Implementation Process Planning 20. Add a Regional Official Plan policy to use its powers as a prescribed upper-tier municipality to establish Community Improvement Plans for the purpose of creating Affordable housing by participating financially in local initiatives for the creation of Affordable housing 21. Add a Regional Official Plan policy to utilize its authority to develop Community Improvement Plan areas to provide municipal incentives to encourage the creation of Assisted, Affordable, and special needs housing Action 2.2 states that Halton Region will promote the development of Local Community Improvement Areas and Assisted the Local Municipalities in applying this tool and other financial tools in supporting the development of Assisted and Affordable housing. The Planning Act requires that to use its powers as a prescribed upper-tier municipality to establish Community Improvement Plans the Region must have a policy in its Official Plan to that allows it to establish Community Improvement Project Areas. This recommendation would be to add a policy that would allow the Region to establish Community Improvement Project Areas. Further details on the authority allowing upper-tier municipalities to establish community improvement plans is provided in the Technical Appendix. The identifies a number of actions related to researching and applying tools and incentives to support the development of Assisted and Affordable housing: CHC Action 2.2 (and 3.11) is that Halton Region promotes the development of Local Community Improvement Areas and assist the Local Municipalities in applying this tool and other financial tools in ROPA 38 New Policies to ROPA 38 Revised Policy 86(15) 25

31 Framework, Policies, and Programs Relevant Policy Framework / Context supporting the development of Assisted and Affordable housing. Implementation Process Once a policy is included in the Regional Official Plan to allow it to establish Community Improvement Plans (Action 20), the Region can use Community Improvement Plans to provide financial and other incentives including grants, property tax reductions, infrastructure improvements in Community Improvement Areas for the provision of Assisted, Affordable and Special Needs Housing. Action 1.7 is to support the development of Affordable housing, Halton Region, in consultation with the Local Municipalities, will investigate Alternative Design Standards to reduce the cost of housing. Action 2.4 is to investigate the use of Section 37 of the Planning Act (Bonusing) to increase opportunities for Affordable and Assisted housing. Assisted and Affordable housing can be considered as a community benefit under Section 37. Burlington is an example of a municipality that has identified Affordable housing as a community benefit. Action 3.10 is to continue to research and review the tools and incentives that are most effective in producing new Assisted and Affordable housing, and in maintaining the existing supply. Further discussion of tools and incentives for Assisted and Affordable housing, including Community Improvement Plans, Alternative Design Standards, and Section 37 (Bonusing), are provided in the Technical Appendix. 22. Add a Regional Official Plan policy to inform Local Municipalities of projects that have received or may receive Affordable housing funding and work with the Local Municipalities to expedite Affordable housing projects through the planning and building approval process Action 2.5 (and Action 3.14) states that through the creation of a Halton Region and Local Municipality Planning Team, Halton Region and the Local Municipalities will establish a process to expedite Assisted, Affordable and special needs housing applications to reduce the overall cost of housing. Action 2.5 will also help to ensure that Assisted, Affordable and special needs housing is produced as quickly as possible to meet the immediate needs of Halton residents. Discussions have begun between the Region and Local Municipalities about ROPA 38 Revised Policy 86(16) 26

32 Framework, Policies, and Programs 23. Add a policy statement in the Regional Official Plan in support of Local policy on standards to prevent the demolition, or conversion, of rental housing to other uses based on the guidelines recommended by the Halton Policy Options for the Conversion and Demolition of Rental Housing Report Policy and Research 24. Apply for an Affordability and Choices Today Grant to facilitate the research and implementation of alternative design and development standards ( Action 1.7), and establish a joint Regional/Local Municipal working group to move forward with the research the planning approvals process. Relevant Policy Framework / Context There are a number of ways the development approval process can be expedited, including a streamlined approval process for priority developments, performance based planning, or a development permit system. Performance based planning is a type of flexible zoning which determines land use locations and characteristics through the application of a system of performance criteria. The Development Permit System (DPS) is a new land use planning tool available to all local municipalities in Ontario. The Development Permit System was created to streamline and expedite the planning process by combining the zoning, minor variance, and site plan control systems into one. It aims to reduce approval timelines from 120 days to 45 days. The Town of Oakville was a pilot municipality for this system. Further information on fast-tracking of development approvals is provided in the Technical Appendix. Action 2.8 is to establish standards to prevent the demolition, or conversion, of rental housing to other uses based on the guidelines recommended by the Joint Municipal Housing Statement. As part of this action a policy options report has been prepared outlining options for Regional policy objectives and policy statements. The report also outlines policy guidelines for the Local Municipalities in establishing standards to prevent the demolition and conversion of rental housing. Action 1.7 is to support the development of Affordable housing, Halton Region, in consultation with the Local Municipalities, will investigate Alternative Design Standards to reduce the cost of housing. Affordability and Choices Today program is sponsored by Canada Mortgage and Housing Corporation, to help foster change in planning and building regulations, and residential development approval procedures. Further details are provided in the Technical Appendix. Some examples of existing practices of Alternative Design and Development Implementation Process ROPA 38 Revised Policy 86(19) 27

33 Framework, Policies, and Programs 25. Undertake Action 2.6, investigate the potential for the creation of an Affordable homeownership program delivered by Halton Region and act as an information resource to parties who wish to create Affordable homeownership models in Halton 26. Explore the financing possibilities that the Infrastructure Ontario loan program might provide in helping to finance Affordable housing developments and furthering the Region s needs and those of eligible local groups and agencies 27. Look to improving information sharing by considering the creation of a directory of funding resource opportunities that may be available for the creation and rehabilitation of Affordable housing 28. Consider establishing energy efficiency guidelines for Regional Assisted and Affordable housing projects and advocating to the Province for financial incentives to developers of Affordable housing for the creation of energy efficient housing Relevant Policy Framework / Context Standards are provided in the Technical Appendix. The Demand and Supply Analysis identified a need for additional Affordable housing. This includes ownership housing that is priced between $132,000 and $259,000, which would be affordable to households with incomes of less than $81,400. Affordable homeownership programs are one method of supplying ownership housing in these price ranges. Affordable homeownership programs can take many forms. Further discussion of homeownership programs is provided in the Technical Appendix. Infrastructure Ontario provides an alternative financing solution for public sector agencies, with lower interest loans for up to 40 year terms. Municipal Social housing was added as part of a recent program expansion to include Social and Affordable housing providers. In 2009, one project in Halton (Residences at St Andrews Georgetown Corporation obtained its primary financing for a project (being developed under the Canada-Ontario Affordable Housing Program) directly from Infrastructure Ontario. Stakeholders involved in the creation and maintenance of Affordable housing, including housing providers, community groups and agencies, and builders and developers need to be aware of the resources that may be available from various levels of government and other sources for the creation and rehabilitation of Affordable housing. The Region should consider creating a directory. Energy efficiency is an important goal in new housing developments. However, energy efficiency may result in additional capital costs. To achieve energy efficiency and reduce any potential burdens on Affordable housing units, advocating to the Province for financial incentives should be considered. Implementation Process 28

34 Framework, Policies, and Programs Relevant Policy Framework / Context Implementation Process Financial 29. Investigate incentives, for Assisted, Affordable and Special Needs Housing Collaboration 30. Consider not including Action 2.3 when updating the Actions, as identified tools have been incorporated into other recommendations. Awareness, Advocacy & Education 31. As part of a comprehensive advocacy plan, continue to advocate to the federal government for sustained funding for the Residential Rehabilitation Assistance Program (RRAP) and similar programs that help people retain and maintain their housing Developing Assisted, Affordable and Special Needs Housing is often not feasible without incentives. There are a number of incentives the Region may consider including grants, infrastructure improvements and Community Improvement Plans. See the Technical Appendix for examples of practices from other jurisdictions of providing incentives for Assisted, Affordable and Special Needs Housing. Action 2.3 states that Halton Region, in co-operation with the Local Municipalities, would determine additional tools to increase housing affordability and advocate for the use of these tools to the Province (, 2.3) Additional tools have been incorporated into other recommendations. When updating the Actions, this action may no longer be required. Action 2.7 is to advocate to the federal government for sustained funding for the Residential Rehabilitation Assistance Program (RRAP) and similar programs that help people retain and maintain their housing. Develop a business case for Halton Region's delivery of applicable components of RRAP on behalf of the federal government. Retaining and maintaining the existing housing stock, is equally as important as creating new stock. The existing stock tends to be more affordable than new housing and it is an important component of the housing continuum. RRAP is an effective program for helping homeowners and landlords to rehabilitate older housing. Having Halton Region deliver the program on behalf of the federal government would enable the Region to better manage funding programs within Halton. 29

35 3.4% N/A 0.5% N/A Percentage 7.3% 14.6% 13.0% 12.4% 24.2% 24.8% 39.9% 60.1% 4.0 Encouraging and Protecting Assisted Housing 4.1 Strategy Create a sustainable Halton Region program to address the critical need for Assisted housing across Halton. Assisted housing is a valuable community asset that provides housing for those who otherwise would not have access to the housing market; however, there have been very few new government Assisted housing options delivered in Halton Region since the mid 1990s when senior government-led housing programs were eliminated. As Assisted housing needs continue to grow, Halton Region requires a long term, sustainable plan for increasing the supply of Assisted housing. 4.2 Key Issues Phase One of the Joint Municipal Housing Statement has identified the following key issue with regard to Assisted housing: The existing supply of Assisted housing is not sufficient to meet the need. There is limited availability of rental units with rents of less than $1,032 per month that is affordable to households in the Assisted income range, with incomes of less than $41,300. The average rent for all units in Halton in 2008 was $992, ranging from $1,188 for a three bedroom unit, $1,027 for a two bedroom unit, $903 for a one bedroom, and $772 for a bachelor unit. The same is true for homeownership, with less than 1% of all homes sold in 2007 falling below the Assisted housing threshold of $132,000 (Annual Housing Report 2008). Ownership housing options only become affordable to households with incomes in the top 70% of owners incomes. Figure 6: Summary of Social Housing Wait List by Unit Type, Halton Region, % 60.0% 50.0% 40.0% 30.0% 20.0% 10.0% 0.0% 1 Bedroom 2 Bedroom 3 Bedroom Social Housing Portfolio 4+ Bedroom Bedroom Type Beds Social Housing Wait List Other Source: Social Housing, Annual Update on the Waiting List for Social Housing, & Halton Social Housing Database, 2008 Note: The Social Housing Wait List data not available for "Beds" or "Other" 30

36 There are a number of challenges with the Assisted housing waiting list, all of which stem from the fact that there is an insufficient supply of Assisted housing. In 2008, there were 2,114 total applicants for Social/Assisted housing in Halton of which 1,888 had been deemed eligible and 226 were under review, a relatively stable number over the past few years. The demand for Social/Assisted housing units is more heavily weighted towards one-bedroom units (60.1%) than the supply (39.9%). It is virtually impossible to be housed in one, four, or fivebedroom units in all-age communities, because of significant demand; more than 50% of all age community applicants, and limited supply and infrequent unit turnovers (see Figure 6 on the previous page). 4.3 Framework, Policies, and Programs Recommended actions as well as the relevant context, policy framework and implementation process to address the Key Issues related to encouraging and protecting Assisted housing are as follows: Framework, Policies, and Programs Relevant Policy Framework / Context Implementation Process Planning 32. Add a Regional Official Plan policy to support the use of surplus public and not-for profit lands, where appropriate, for developing Assisted and Affordable housing One possible source of Affordable housing sites comes from surplus lands owned by all levels of government. Some municipalities, such as the City of Montreal, have adopted housing first policies calling for surplus lands to be used for housing purposes first. Further details are provided in the Technical Appendix. This policy would support two of the Actions as follows: Action 3.2 to optimize the use of Regionally owned assets by investigating the potential for the Halton Community Housing Corporation to develop new Assisted housing, and intensify or redevelop existing properties. Action 3.4 to explore the potential for Halton Region to create a pool of land and buildings that can be made available for Assisted housing use. ROPA 38 New Policy 85(12) 31

37 Framework, Policies, and Programs Relevant Policy Framework / Context Implementation Process Policy and Research 33. Update Action 3.2 to have Halton Community Housing Corporation develop new Assisted housing, and intensify or redevelop existing properties 34. Investigate, in collaboration with Social housing providers, opportunities for leveraging Social housing sites within the Region 35. Continue with Action 3.5 to develop a business case for creating a model initiative on Regionally owned lands. Action 3.2 is to optimize the use of Regionally owned assets by investigating the potential for the Halton Community Housing Corporation to develop new Assisted housing, and intensify or redevelop existing properties. Halton Community Housing Corporation has undertaken activities to implement this Action including incorporating this action into its Strategic Plan, holding staff and Board workshops on the topic, researching a potential role in development and commencing pre-development activities on two potential Affordable housing projects. This Action should move forward into Halton Community Housing Corporation developing new Assisted housing and intensifying or redeveloping existing properties for its priorities. There are several ways in which existing Social housing projects can be leveraged to create additional Affordable rental housing. Please refer to the Technical Appendix for further details. Action 3.5 is to develop a business case for creating a model initiative on Regionally owned lands. Based on a village concept, the model could be comprised of a commercial component, partnerships with other orders of government, the private sector, community services and an integrated continuum of seniors' care and housing. A number of activities have been undertaken in support of this activity. An application has been submitted for Canada-Ontario Affordable Housing Program Extension Year 2 funding for 40 units of an 80 unit project on regionally owned lands in Milton targeted to seniors and to be owned and operated by Halton Community Housing Corporation. This activity should be continued as the Actions are updated. 32

38 Framework, Policies, and Programs 36. Continue with Action 3.10 to research and review the tools and incentives that are most effective in producing new Assisted and Affordable housing, and in maintaining the existing supply Financial 37. Continue to pursue funding sources for Assisted and Affordable housing including the recently extended Canada-Ontario Affordable Housing Program, the economic stimulus funding for rental housing, and any other funding for Assisted or Affordable housing 38. Assist the non-profit sector, community and religious groups, interested in developing Assisted and Affordable housing with capacity Relevant Policy Framework / Context In response to this Action, the Region has conducted some research into tools and incentives for Assisted and Affordable housing. Given the continued need for Assisted and Affordable housing, and emerging new tools such as inclusionary zoning, the Region should continue to research new tools and incentives. The Joint Municipal Housing Statement has confirmed the need for additional Assisted housing. Action 3.1 was to develop a business case for participation in the Provincial Rental/Supportive Housing Program and develop a Halton Region program that responds to local needs and fully utilizes funding from senior orders of government. Under Wave 1 of this program, the Province allocated $8.4M to the Region in federal/provincial funding towards the creation of 120 rental housing units, and two projects are currently under development. Under the Affordable Housing Program Extension funding, Halton Region received a conditional commitment on November 5, 2009 for Year 1 funding for a 65 unit project in Burlington targeted to seniors and to be owned and operated by Halton Community Housing Corporation. A second year 1 project application was not successful and has been revised and resubmitted for Year 2 funding. More specially, funding for 40 units of an 80 unit project on regionally owned lands in Milton targeted to seniors and to be owned and operated by HCHC. This funding and any other senior government funding available for Assisted or Affordable housing should be pursued by the Region. Refer to the Technical Appendix for further details. There has been limited production of Assisted and Affordable rental housing in recent years, which has generated the need to re-establish development expertise in the sector. As such, the Region should assist groups interested Implementation Process 33

39 Framework, Policies, and Programs building, by providing training around specific program elements, developing and distributing performance models/case studies to ensure groups have the information necessary to develop viable proposals. 39. Develop an action plan/approach to achieving Action 3.3 which is to lead a community investigation about methods of creating longterm, sustainable funding for Assisted housing Relevant Policy Framework / Context in developing Assisted and Affordable rental housing with capacity building. This could include providing training around specific program elements to equip groups to better navigate the process and obtain positive outcomes, and developing and distributing performance models/case studies for a variety of different project sizes, rent levels, etc. to ensure groups have the information necessary to develop viable proposals. This action involves undertaking a sustainable, multi-sector approach to ensure the supply of Affordable, Assisted, and special needs housing and services across the continuum by exploring options such as creating housing trust funds and community land trusts. A Housing Trust Fund (HTF) is a locally-based way of supporting affordable housing through a permanent source of on-going revenue, usually established through legislation. In addition to this revenue, HTFs normally receive some form of start-up funding, such as a government grant, endowment, and/or contributions from other sources. Community Land Trusts (CLTs) are locally-based private non-profit organizations created to acquire and hold land for the specific purpose of making it available for affordable housing. As mentioned above, the Region has committed funds to creating Assisted and Affordable housing as part of the implementation of the Comprehensive Housing Strategy. However, additional resources are needed to complement these funds and a variety of sources should be explored. Please refer to the Technical Appendix for further details. Implementation Process 40. Consider developing and implementing an action plan for land banking and utilization of a capital revolving fund for Assisted housing. Action 3.4 is to explore the potential for Halton Region to create a pool of land and buildings that can be made available for Assisted housing use. A research report was prepared to explore the potential for this strategy. 34

40 Framework, Policies, and Programs Relevant Policy Framework / Context Implementation Process Collaboration 41. In collaboration with the federal government and the provincial government, investigate the feasibility of creating a comprehensive inventory of surplus government lands Awareness, Advocacy & Education 42. As part of a comprehensive advocacy plan, continue with current activities being undertaken as part of Action 3.6 to advocate to senior government for adequate funding to fulfill the long-term capital needs of transferred Assisted housing communities and provide training to Social housing providers 43. As part of a comprehensive advocacy plan, continue to ensure that Assisted housing assets are preserved for public use over the long term by advocating to senior orders of government for long-term, sustainable funding, policy and Creating an inventory of public lands and buildings suitable for housing moderate and low income households is one strategy for ensuring there is an adequate supply of land for Affordable housing development. Several municipalities, including the City of Toronto and City of Ottawa, have implemented this strategy. Further details are provided in the Technical Appendix. Under the Social Housing Reform Act, the Region is responsible for ensuring the financial stability of housing projects and the ongoing provision of housing subsidies under the Act. Thus, Halton Region needs to assist housing providers to maintain their units in the most cost-effective manner. However, Halton Region cannot meet the capital needs of housing providers alone so it is imperative that senior governments provide adequate funding for capital needs. The Region s allocation of federal and provincial funding is $11,702,785 between 2008 and 2011 towards the long-term capital needs of Social housing providers. In addition, a number of activities have been undertaken by the Region in support of this Action, including the creation of a Property Maintenance and Operations manual for Social housing providers, and ongoing training. The Region is currently undertaking best practices research and strategy options for expected shortfalls in capital reserves are currently underway. See the Technical Appendix for further details. The current operating agreements and associated federal and provincial legislation do not have the necessary wording in place to guarantee that Assisted housing communities that have received significant government investment through low-interest loans, subsidized mortgages, and rent subsidies will remain available for low-income households after the 35

41 Framework, Policies, and Programs legislation changes 44. As part of a comprehensive advocacy plan, continue to advocate to senior orders of government regarding the need for sustained and fully funded rent supplement programs delivered locally 45. As part of a comprehensive advocacy plan, advocate to the Province for improvements to the Social Housing Reform Act and review on an ongoing basis the Halton Region eligibility policies for rent-geared to- income assistance mortgages are paid off. Relevant Policy Framework / Context The Region should continue to advocate to senior orders of government for long-term, sustainable funding, policy, and legislation changes to ensure the preservation of Assisted housing assets. Rent supplement programs provide monthly subsidies to help pay the difference between what the tenant can afford and the cost of rent in private sector housing. Halton Region receives $1.6 million annually for the Strong Communities Rent Supplement Program. It has also received an allocation of 90 rent supplement units ($1.7 million) over a five-year period under the first wave of the Affordable Housing Program. The Region should continue to advocate for sustained and fully funded rent supplement programs. Action 3.9 is to continue to advocate to the Province for improvements to the Social Housing Reform Act to better meet the needs of applicants, residents, and housing providers and to enable service managers to deliver Assisted housing in an efficient and cost-effective manner. Review on an ongoing basis the Halton Region eligibility policies for rent-geared toincome assistance to better meet the needs of the community. In 2006, Halton Region was part of a Service Manager Working Group that recommended changes to the Social Housing Reform Act. Many of these recommended changes have been implemented, and the Region should continue to advocate, as required, for additional improvements to the Act. Implementation Process 36

42 5.0 Supporting Independent Living 5.1 Strategy Advocate for changes to the Ontario Building Code that improve the accessibility and affordability of housing. Inclusive communities enable people with special needs to attain the greatest level of independence possible in their housing. While there has been an increased awareness in universal physical accessibility and visitability, more work is required to create practical solutions. It is, thus, important to advocate for changes to the Ontario Building Code that will require higher standards of accessibility and visitability. 5.2 Key Issues Phase One of the Joint Municipal Housing Statement has identified the following key issues related to independent living: There is an insufficient supply of supportive housing for a number of client groups, including persons with mental illness, physical disabilities, seniors, youth with developmental disabilities, and persons with behavioural issues. While there are 270 supportive housing units in Halton allocated for persons with mental illness, key informants indicated that the existing supply does not meet the needs of this group. The number of people with serious mental illness is projected to increase by 41.3% from 2001 to 2016, suggesting a need for additional housing and support services for persons with mental illness in the future. Long wait times and a combined wait list for agencies serving persons with physical disabilities of 98 for 52 4 units suggests the need for additional supportive housing units for this group. Participants of the focus group on seniors housing needs indicated that seniors requiring supports often end up in long term care homes even when they do not require long term care due to the lack of supportive housing. The existing wait list and aging population in Halton Region point to a need for additional supportive housing in the future. 4 This total includes only those units with supports. In addition to the units with support services at Palmer Place and Jean and Howard Caine Apartments, there are an additional 47 units and 35 units, respectively, which do not include supports. 37

43 Wait times for supportive housing for youth aged with developmental disabilities are three to ten years and key informants serving this group identified a lack of supportive housing for youth with developmental disabilities as a significant challenge in the short term. A lack of housing for individuals with behavioural issues was also identified by key informants. The number of people with intellectual disabilities waiting for housing in Halton increased by 23% (80 individuals) between 2005 (355 people) and 2006 (435 people). In 2009 the waiting list increased to 557 individuals. This increase of 122 individuals indicates a change of 28% from Some individuals, including immigrants and persons with special needs, are facing additional barriers to accessing and maintaining housing. In addition to affordability issues, some special needs groups face additional barriers to finding and maintaining housing. Key informants have indicated that some special needs groups are experiencing discrimination. Accessibility to public transit is also an issue, for example, some existing supportive housing units are in locations that are not easily accessible by public transit, which reduces people s independence. Also, key informants have noted there are very limited choices for person with physical disabilities in need of accessible housing, particularly if they want to stay in their own community, and modified units do not always meet the needs of the individual. Immigrant households face a number of barriers to housing that can limit or affect their choices. These include availability of public transit, especially for new immigrant households, as many will rely on this form of transportation when they first arrive. The lack of social and cultural networks in an area can hinder the search for housing, as there are little or no settled communities to help guide them through their housing search. The lack of knowledge of the housing system is also a barrier. Other issues for newcomers that result in housing instability include discrimination, settlement issues, and issues surrounding participating in the labour force. Established immigrants are less likely to have a job meeting their education level attainment in 2006 than fifteen years ago. Possible reasons for this set-back for immigrants may include language skills of immigrants, non-recognition of credentials, or experience in foreign countries. 38

44 5.3 Framework, Policies, and Programs Recommended actions as well as the relevant context, policy framework and implementation process to address the Key Issues related to encouraging and supporting independent living are as follows: Framework, Policies, and Programs Relevant Policy Framework / Context Implementation Process Planning 46. Strengthen policy 86(22) of the Regional Official Plan which permits Special Needs Housing in all residential neighbourhoods to state that Special Needs Housing is permitted as-of-right in all residential neighbourhoods subject to reasonable planning standards and design criteria 47. Add a policy in the Regional Official Plan that requires all Regionally funded Assisted and Affordable housing developments to incorporate universal physical access in their design. The PPS requires planning authorities to permit and facilitate all forms of housing which is required to meet the social, health and well-being requirements, including special needs requirements (1.4.3.b.1) The Regional Official Plan currently requires Local Official Plans and Zoning By-laws to permit special needs housing in all residential neighbourhoods subject to reasonable planning standards and design criteria (86.22), though it does not require them to permit special needs housing as-of-right. The Local Official Plans all contain policies on special needs housing, including long term care facilities, retirement homes, and group homes, but do not provide specific mention that special needs housing is permitted asof-right. Accessibility has been identified in the Joint Municipal Housing Statement as an issue for seniors and persons with physical difficulties. The Region does not currently have accessibility standards for its Affordable housing developments. Some of the Local municipalities have accessible design guidelines. For example Burlington, Milton and Oakville have guidelines for design of accessible facilities. However, there currently is no requirement to use any of these accessible design guidelines for Affordable housing developments. Other jurisdictions that have established accessibility requirements for Affordable housing developments include the City of Ottawa and the Region of Peel. Through its Action Ottawa affordable housing program, the City of Ottawa provides funding to ensure that five percent of units developed ROPA 38 Revised Policy 86(22) ROPA 38 New Policy 86(17.1) 39

45 Framework, Policies, and Programs Awareness, Advocacy & Education 48. As part of a comprehensive advocacy plan, develop a plan to advocate with senior orders of government for a long-term, sustainable program to meet the housing and support services needs of people with special needs, and advocate to the Province, including the Local Health Integration Network, for enhanced services to assist people to live independently in the community Relevant Policy Framework / Context under the program are fully wheelchair accessible. In addition, 100% of units must meet visitable standards for accessibility to the maximum extent possible. The Manitoba Housing and Renewal Corporation (MHRC) encourages visitable design by giving projects that include visitable features additional weighting when providing funding for new construction under the AHI program. In addition, project proposals for development of new residential properties on MHRC-owned lands or proposals for the purchase of MHRCowned lands for residential development receive additional weighting if they include visitable features. The Region should establish policies to require universal physical access be incorporated in the design of all Regionally funded Assisted and Affordable housing developments as a condition for funding. Please refer to Technical Appendix for further details. The Joint Municipal Housing Statement identified that there is an insufficient supply of supportive housing for a number of client groups, including persons with mental illness, physical disabilities and seniors. The Region cannot meet all of the needs for supportive housing on its own, and as part of Action 4.1, should develop a plan, with the assistance of agencies dealing with people with special needs, to advocate with senior orders of government for a long-term, sustainable program to meet the housing and support services needs of people with special needs, e.g. serious mental illness, physical disabilities, developmentally delayed. In addition, the Region should Advocate to the Province for enhanced services to assist people to live independently in the community, including liaising with the LHINs to share information on supportive housing needs and solutions for seniors, persons with physical disabilities, and persons with mental illness. Local Health Integration Networks (LHINs) were established in 2006 as part Implementation Process 40

46 Framework, Policies, and Programs 49. Develop an action plan and undertake activities to increase community awareness of, and access to, social services and other supports that help people who have disabilities to remain housed Monitoring 50.Monitoring the status of the accessible built environment standard should be coordinated with activities being undertaken for Action 4.3 and 4.4 Relevant Policy Framework / Context of the Provincial Government s new approach to health care in Ontario. The LHINs are responsible for public and private hospitals, community care access centres, community support service organizations, mental health and addiction agencies, community health centres, and long-term services homes. The Provincial government is responsible for funding of support services for persons with special needs but the funding vehicles are a patchwork and often do not meet the operational needs of support service agencies or their clients The Region should continue to advocate to the Province for enhanced services to assist people to live independently in the community. Action 4.2- is to increase community awareness of, and access to, social services and other supports that help people who have disabilities to remain housed. There are many community resources to help those in need, but people are generally unaware of how to access these services, making awareness activities important. This Action should be implemented by developing an action plan to increase community awareness and access to social services to help people who have disabilities. Action 4.3 is to educate architects, builders, and consumers about the advantages of building new housing that is accessible to people having a range and variety of physical disabilities. Establish voluntary Halton-wide standards that encourage the construction of housing that is accessible to people having a range and variety of physical disabilities. Advocate for changes to the OBC to require new housing to meet universal standards of accessibility for people having a range and variety of physical disabilities. Action 4.4 is Halton Region, in conjunction with the Local Municipalities, will identify site plan requirements that ensure accessibility to buildings and facilities for all Halton residents. Since the was prepared, the Ontario Building Code has been updated to Implementation Process 41

47 Framework, Policies, and Programs Relevant Policy Framework / Context incorporate additional accessibility and requirements. In addition, Standard Development Committees have been struck to develop accessibility standards in a number of areas. The Accessibility for Ontarians with Disabilities Act (AODA), passed in 2005, builds on the Ontarians with Disabilities Act with the creation of Standards Development Committees. These Committees will develop mandatory standards in five areas, including the built environment. A draft built environment standard has been drafted. This standard was released for public review from July 14 to October 16, 2009 and is currently being finalized to incorporate the comments provided by the public. When the provincial government issued the standards for public review, it indicated that it did not intend to require that all existing buildings be retrofitted to meet the accessibility standards. Only new, multi-unit buildings would be required to comply with the accessibility standards once they become law. New or existing homes would not be required to comply with the standards. The Region should monitor the progress of the built environment standard and to coordinate its activities being undertaken as part of Action 4.3 and Action 4.4 with the work of the AODA s Standards Development Committee on Built Environment. Refer to the Technical Appendix for further details. Implementation Process 42

48 Year 6.0 Retaining and Regaining Housing 6.1 Strategy Focus on eviction prevention, and advocate for adequate housing-related support. Families and individuals who are at risk of losing their homes should have access to the support necessary to retain their housing. In 2008, there were 3,170 service requests by low-income households filed with the Coordinated Intervention Services (CIS) Department for crisis intervention, interim service coordination, and referrals to external agencies. Halton Region needs to increase its ability to respond to people who are in imminent threat of losing their homes. 6.2 Key Issues Phase One of the Joint Municipal Housing Statement has identified the following key issues with regard to retaining and regaining housing: There is a growing need and insufficient supply of emergency housing in Halton Region for some client groups, including victims of domestic violence and families. The supply of permanent emergency shelter beds in the Region is limited to 52 units provided by Halton Women s Place for victims of domestic violence, 25 beds provided by the Salvation Army Lighthouse Shelter for singles, 5 apartments (28 beds) provided by Salvation Army Oakville Community Church and 1 apartment provided by Halton Community Housing Corporation both for families, as well as a 10 bed facility provided by the Canadian Mental Health Association and two rest homes for individuals with mental helath issues. Emergency shelters located outside Halton also serve Halton residents. Between 2006 and 2009 there was a 37% increase in the number of emergency shelter requests to Halton s Coordinated Intervention Services Department (see Figure 7). Figure 7: Emergency Shelter Requests, Halton Region, ,125 1,145 1,355 1,531 1, ,000 2,000 Number of Requests Source: data from Halton Region, Annual Housing Report, 2008; Halton Region Coordinated Intervention Services Division, data from Halton Region Coordinated Intervention Services Division Note: Collection methods differ prior to