Per Diem Rates for Purchase of Service Shelters

2010 Per Diem Rates for the Purchase of Service Shelter System and Related Matters 1

STAFF REPORT ACTION REQUIRED

2010 Per Diem Rates for the Purchase of Service Shelter System and Results of the Review of the Per Diem Funding Model.

Date: October 23, 2009

To: Community Development and Recreation Committee

From: General Manager, Shelter, Support and Housing Administration

Wards: All

Reference Number:

SUMMARY

This report provides recommendations on the 2010 Per Diem rates for the purchase of service shelter system and funding levels for other operating contracts. It also includes recommendations for changes to the existing per diem funding model, based on the findings from the Hostel Services Funding Model Review.

RECOMMENDATIONS

The General Manager, Shelter, Support and Housing Administration, recommends that:

1. Council approve the recommended per diem rates, bed capacities and Personal Needs Allowance rates for the shelter system as set out in Appendix A subject to the approval of the 2010 Operating Budget;

2. the General Manager, Shelter, Support and Housing Administration, and/or his designate be authorized to:

a. enter into purchase of service agreements with community agencies and motel operators for the provision of shelter services and the issuance of Personal Needs Allowance, up to the maximum contract values as outlined in Appendix A, subject to the approval of the 2010 Operating Budget;

b. contract with and issue payments of up to $8.676 million(gross)/$1.737 million (net) to Mental Health Program Services of Metropolitan Toronto


(Habitat Services) for the provision of housing and supports for psychiatric consumer survivors living in Habitat contracted boarding or rooming houses subject to the approval of the 2010 Operating Budget;

c. contract with and issue payments to the Toronto Hostels Training Centre for the administration and provision of training for shelter staff up to a maximum amount of $0.198 million (gross)/$0.099 million (net) subject to the approval of the 2010 Operating Budget;

d. purchase up to $42,000 (gross and net) in training for staff of the directly operated shelters from the Toronto Hostel Training Centre in order to meet the training requirements laid out in the Council approved Toronto Shelter Standards, subject to the approval of the 2010 Operating Budget;

e. pilot a system of advance quarterly per diem payments to shelter operators; and

f. pilot multi-year contracts with shelter providers in a form acceptable to the City Solicitor and Director, Internal Audit, that will reduce the administrative burden on agencies while maintaining accountability to the City; and

3. Council approve the recommendations arising from the Per Diem Funding Model Review, including consultations with community agencies, as outlined in Appendix I, and instruct that these recommendations be forwarded to the Minister of Community and Social Services, the Minister of Municipal Affairs and Housing and the Minister of Health and Long Term Care for consideration.

. Financial Impact

The summary of the Financial Impact from approving the service agreements outlined in this report are noted in the following table:

Funding for the per diem and Personal Needs Allowance (PNA) payments for purchase of service shelters, motels, and payments to Habitat Services and the Toronto Hostels Training Centre are included in the proposed 2010 Operating Budget for Shelter, Support and Housing Administration.


Contract ($000s)

2009 Approved Budget 2010 Budget Submission

Increase/ (Decrease)

Gross Net Gross Net Gross Net

Purchase of Service Shelter Provider Contracts

47.956

16.842

48.474

16.643

0.518

(0.199)

Personal Needs Allowances

1.911

0.382

1.961

0.392

0.050

0.010

Habitat Mental Health Program Services of Metropolitan Toronto (Habitat Services)

8.676

1.737

8.676

1.737

0.000

0.000

Toronto Hostels Training Centre

0.198

0.099

0.198

0.099

0.000

0.000

City of Toronto Shelter Training Needs

0.042

0.042

0.042

0.042

0.000

0.000

Motel Contracts 1.172

0.000

1.341

0.000

0.169

0.000

TOTAL 59.955

19.102

60.692

18.913

0.737

(0.189)

As per the table above, the proposed 2010 Operating Budget includes $60.692 million (gross), $18.913 million (net), for these various contracts. Adopting the recommendations in this report would increase the gross and lower the net budget, incrementally from the 2009 Approved Base Budget, by $0.737 million and $(0.189) million, respectively. The increased pressure from the contract changes is partially offset by the increase in the provincial subsidy.

As in 2009, the Provincial government has increased its capped per diem rate by 2%. As well, 2010 will be the first year of the Provincial upload of the municipal share (20%) of Ontario Works financial assistance and employment assistance. In 2010, 3% of the City’s 20% cost share will be uploaded to the Province. The new Provincial per diem rate for 2010 will be $42.50 (80.6% capped rate is $34.26) up from $41.60 (80% capped rate is $33.25).

The 2% increase in the capped subsidy from the Province will increase the per diem by $0.90. This represents an increase of $0.836 million available to the Purchase of Service Shelter (POS) system. The City will retain 38% of this increase or $0.318 million to help realign the City’s percentage of contribution. The Provincial contribution for the POS system goes from $31.1 million in 2009 to $31.8 million in 2010.

There is an expected decrease in bed nights for Purchase of Services shelters from 935,735 in 2009 to 929,125 in 2010. This decrease of 6,610 bed nights (0.7%) is due to uploading of VAW beds by the Province, bed capacity reductions, and increased efforts


to assist people to access housing. As in past years, the Division is re-investing the available funding from the reduced service volumes to allow for some sector adjustments to increase the per diems of shelters that remain below the average per diem for the sector. The overall bed volume and per diem rate changes for the purchase of service system create a net $0.199 million reduction for 2010.

The 2010 Operating Budget Submission also includes up to 8.676 million (gross)/$1.737 million (net), for Habitat Services. To date, no increases to the per diem rate have been confirmed by the Ministry of Health and Long-Term Care for 2010.

Funding for the motel program of $1.341 million gross, with no net incremental impact, is also recommended.

Shelter, Support and Housing Administration operates within its funding authorities up to the approved Operating Budget. In the event that occupancy levels exceed the 2010 approved budget, Shelter, Support and Housing Administration would report out to Community Development and Recreation Committee and to Budget Committee and seek to mitigate cost pressures within the overall divisional envelope. Additionally, in the event that occupancy levels go below the 2010 approved budget, Shelter, Support and Housing Administration will re-distribute any unallocated savings directly to shelter providers in the form of per diem adjustments up to the maximum 2010 approved Operating Budget.

The Deputy City Manager and Chief Financial Officer has reviewed this report and agrees with the financial impact information.

DECISION HISTORY

Shelter, Support, and Housing Administration reports annually on the recommended per diem rates and bed capacities. The 2009 report also includes preliminary results of the per diem funding review. A copy of the 2009 report can be found at:

http://www.toronto.ca/legdocs/mmis/2008/cd/bgrd/backgroundfile-17250.pdf

On August 5 and 6, 2009, Council approved the Housing Opportunities Toronto Affordable Housing Action Plan 2010-2020. The HOT plan includes actions related to shelter per diem funding.

The recommended City action items include:

“Working with the Province to establish a permanent program using flexible shelter per diem funding to provide shelter clients with housing supports in the community similar to the Hostels to Homes pilot. (Recommendation 5 b), and

“Working with the Province to implement a new funding model for shelters that supports a Housing First approach.” (Recommendation 5 c).

http://www.toronto.ca/legdocs/mmis/2008/cd/bgrd/backgroundfile-17250.pdf


The requests to the Provincial government include:

“Implement a new funding model for shelters which supports a Housing First approach and provides flexibility in the use of shelter funding to establish a permanent program to provide shelter clients with housing supports in the community, similar to the Hostels to Homes pilot” (Recommendation 14).

A copy of the Housing Opportunity Toronto plan can be found at: http://www.toronto.ca/affordablehousing/pdf/hot_actionplan.pdf

ISSUE BACKGROUND

Hostel Services of the Shelter, Support and Housing Administration Division is the Consolidated Municipal Service Manager responsible for shelter development, program delivery and system oversight. The Ontario Works Act outlines the authority for municipalities to operate shelters or to purchase service from community agencies to provide shelter services and personal needs allowances. The Provincial revenue funding formula is an occupancy driven model which pays shelters on a per diem basis for beds occupied by homeless individuals, families and children.

Council has made numerous recommendations to urge the Province to change the funding model and increase the per diem rate. The current rate does not adequately fund the costs of providing emergency shelters in the City of Toronto nor does it fund the services required to assist homeless individuals to find and keep housing. In the 2010 proposed operating budget for Purchase of Service shelters the average per diem rate is $52.13, of which the Province pays $34.26. Although the Province has put a process in place to upload the municipality’s share of the per diem, full cost upload will not take place until 2018. For 2010, the Provincial/ Municipal cost share should be 80.6/19.4, however based on the 2010 proposed average per diem rate, the cost share is now 65.7/34.3. Since the subsidy remains capped, the City will continue to fund the Provincial shortfall. The projected system wide shortfall for 2009 is $31.4 million. In addition, previous calculations by City staff show that the per diem rate does not even cover the basic room and board costs, as identified in the Ontario Works Act.

COMMENTS

As of November 2009, there are 57 shelter facilities in the City of Toronto. The shelter system is a mixed service delivery model. The City directly operates 9 shelters, the Assessment and Referral Centre, and Central Family Intake. There are an additional 48 shelter sites operated by 30 community not-for-profit agencies funded through purchase of service contracts with the City. All programs must meet the operating requirements as set out in the Toronto Shelter Standards and the purchase of service operating agreements and are evaluated using a Quality Assurance review process. In addition the City has the ability to provide emergency shelter to families through the use of motel beds.

http://www.toronto.ca/affordablehousing/pdf/hot_actionplan.pdf


Appendix B - Shelter Profile Information, provides information on each agency and their contracted services.

Occupancy Information:

Shelters provide emergency shelter, food, board, lodging and specialized counselling and support services for thousands of people annually. In 2009 there are on average approximately 3,800 permanent beds available nightly in the regular shelter system for single adults, youth, and families with children. On average, there are also 405 beds in the motel program used to provide emergency shelter to families.

The 2009 average occupancy rate from January 1st, 2009 –October 4th, 2009 for single adult and youth shelters is 94 per cent. There are in addition an average of 1,157 persons, including children, in the family shelters on a nightly basis. Appendix C provides a chart showing the average occupancy trends in 2008 and 2009 year to date.

Appendix D charts the total number of different people who stayed in the shelter system between 2000 and 2008 on an annual basis. Over this eight year period the peak use was in 2001 when 31,175 different people used the shelter system. The total number of different people using the shelter system in 2008 was 27,256. This represents an increase from last year when 24,868 different people used the shelter system.

1. Purchase of Service Rates and Bed Capacities

a. 2010 Recommended Per Diem Rates, Bed Capacities and Personal Needs Allowances

The 2010 recommended per diem rates, bed capacities, personal needs allowances, and detailed information for each shelter are included in Appendix A. The implementation of these rates is subject to the approval of the 2010 Shelter, Support and Housing Administration Operating Budget. As in previous years, the City applies increases/sector adjustments in per diem rates using the pre-established Council reported criteria as outlined in Appendix E. It should be noted that the majority of the 2010 recommended per diem rates provide agencies an increase that represents a portion of the increased Provincial per diem.

Appendix F provides comparative operating budget information between 2009 and 2010 on a system and sector basis.

b. Information on In-Year Adjustments to Per Diem Rates

Changes to the Council approved per diem rates and bed capacities are considered in-year adjustments. These adjustments can occur for a number of reasons including a change in service provision, an urgent financial situation that requires an increase to the per diem rate, and/or a need for


additional beds to meet occupancy demand. Hostel Services has an established business practice that appropriately records and accounts for any in-year per-diem adjustments. Any change in the operating agreement must be approved by the appropriate signing authorities and Hostel Services reports out annually to Council on any required in-year adjustments. In 2009, adjustments were made to six contracts. Appendix G – 2009 In-year Adjustments Report provides the detail on each of these adjustments.

c. Other Service Contracts - Motels, Toronto Hostels Training Centre and Habitat Services

This report seeks authorization to enter into funding contracts with Habitat Services, the Toronto Hostels Training Centre and the City’s Motel Program, subject to the approval of the 2010 Operating Budget. Appendix H– Other Annual Services Contracts provides detailed information on these programs.

Habitat Services is a housing and support subsidy program that is funded by the Ministry of Health and Long-term Care and the City of Toronto. On an annual basis the program provides a housing subsidy for up to 931 units of private and not-for-profit boarding homes and rooming houses for people with psychiatric illnesses.

So far in 2009, 2,259 shelter, drop in and other agency staff received training and certificates through the Toronto Hostels Training Centre. The Centre offers over 120 different training courses and six certificate programs that support agencies in meeting the Toronto Shelter Standards and allow staff to develop skills related to the provision of services to homeless individuals.

The City of Toronto contracts with motels to provide spaces for families when the regular permanent shelter system for families is at or near capacity. The motel program is administered through two directly operated shelters, Family Residence and Birkdale Residence. The use of motels allows the City the flexibility to respond quickly to changes in demand within the family shelter sector. On an average night in 2009, 405 people are being provided shelter using the motel program.

2. Funding Model Review

a. Background

As reported out last year, Hostel Services initiated a process to review the per diem funding model. This was in response to long standing issues with


the Provincial/ Municipal cost shared funding model which have been noted earlier in this report.

b. Consultation Process and Feedback

As part of the process, Hostel Services initiated a consultation process with all shelter providers in order to solicit their opinions on the recommended options for the funding model. As directed by Council, these consultations have included a discussion of shelter services in relation to the City’s commitment to ending homelessness through a Housing First approach.

Hostel Services met with the Board of Directors and senior management staff of 20 agencies representing 34 shelter sites. As well, Hostel Services met with the Executive from the Ontario Association of Hostels Toronto Chapter and received correspondence from the Youth Shelter Interagency Network.

Feedback from the meetings and correspondence indicates that there will not be one funding model that is preferred by all agencies. The variation in shelter sizes, the complexity of the shelter services provided and the fact that some shelters are operated by single service agencies and others by multi-service agencies does not lend itself to one simple solution. However, the key findings that almost all agencies agree on include:

Eliminating the per diem system and replacing it with a form of annualized funding that is paid out quarterly or semi annually and reconciled at year end.

Creating contracts that set out services to be delivered with some form of performance standards that will allow the City to address service quality in the context of annualized payments.

Establishing multi year contracts/ operating agreements that will reduce the paperwork required for agencies who are meeting performance and quality assurance standards but that still recognize the City’s requirement to set per diem rates annually.

For Multi- Service Agencies- Developing an integrated funding stream that flows all Shelter, Support and Housing Administration funding under a single contract.

c. Recommendations regarding the Provincial Funding Model

The current provincial funding model provides funding based on occupancy, rather than on actual operating and support costs to provide


services to homeless people. By adopting a new funding model to create greater flexibility and individualized supports to help shelter clients find and keep permanent housing, the shelter system will be returned to its original role of providing temporary emergency assistance.

The staff recommendations regarding changes to the provincial funding model are based on the report on Alternative Model for Emergency Shelter Funding prepared by Matrix Consulting as well as feedback from the consultations with shelter providers. The recommendations are attached to this report as Appendix I for approval by Council.

These recommendations are consistent with the action items detailed in Housing Opportunities Toronto, recently approved by Council.

In the Housing Opportunities Toronto Plan, City action items include:

“Working with the Province to establish a permanent program using flexible shelter per diem funding to provide shelter clients with housing supports in the community similar to the Hostels to Homes pilot. (Recommendation 5 b), and

“Working with the Province to implement a new funding model for shelters that supports a Housing First approach.” (Recommendation 5 c).

In approving Housing Opportunities Toronto, City Council requested the Provincial government to:

implement a new funding model for shelters which supports a Housing First approach and provides flexibility in the use of shelter funding to establish a permanent program to provide shelter clients with housing supports in the community, similar to the Hostels to Homes pilot” (Recommendation 14).

Staff of Shelter, Support and Housing Administration met with the Assistant Deputy Minister of the Ministry of Community and Social Services (MCSS) and also with the staff of the MCSS Toronto Region Office to review the consultant’s report on the funding model and to brief them on the feedback received from community agencies.

d. Administrative Changes with Existing Authority

While staff continue to work with the Province regarding the development of a new funding model, there are a number of administrative steps that the City can take in the interim to further reduce the administrative burden associated with the existing per diem model. In 2008 the City established


an advanced payment process with 26 shelter providers that allowed agencies to receive 75 per cent of their monthly per diem funding for the coming month at the start of each month. The payment is then reconciled at the end of each month and the remaining per diem funding that is due to the agency is paid out.

This billing process has been extremely successful. Staff are now recommending that this advance payment system be piloted on a quarterly rather than monthly basis. This will provide participating agencies with predictable, up front payments and will reduce the number of wire transfers and cheques being issued by the city. Shelters rarely, if ever, go out of service unexpectedly so the risk to the City is minimal. Staff will work with Internal Audit to determine the eligibility guidelines for this program.

Staff are also recommending that the City pilot a multi year contract/ operating agreement that will reduce the administrative burden required for agencies who are meeting performance and quality assurance standards but that still recognize the City’s requirement to set per diem rates annually. Hostel Services currently requires agencies to complete an annual funding submission, the preparation of which is time consuming for each agency and the review of which is time consuming for City staff. Requiring these once every two years will create administrative efficiencies that will allow City staff to focus greater attention on quality assurance activities. Hostel Services will work with Internal Audit and Legal Services to determine the possible options for implementation of this process.

CONTACT

Anne Longair Director, Hostel Services Tel: 416-392-5417 Fax: 416-392-8758 E-mail: [email protected]

SIGNATURE

_______________________________ Phil Brown General Manager Shelter, Support and Housing Administration


ATTACHMENTS

APPENDIX A - 2010 Recommended Per Diem Rates, Bed Capacities and Personal Needs Allowances

APPENDIX B - City of Toronto Shelter Profile Information

APPENDIX C - 2008 vs. 2009 Occupancy Information

APPENDIX D - Total Number of Unique Individuals Using the Shelter System From 2000-2008

APPENDIX E - Summary of Annual Criteria for Per Diem Rate Recommendations

APPENDIX F - 2009 vs. 2010 Purchase of Service Per Diem Budget

APPENDIX G - 2009 In-Year Adjustments Report

APPENDIX H - Other Service Contracts

APPENDIX I - Recommendations Regarding the Funding Model for Emergency Shelters

2010 Recommended Per Diem Rates, Bed Capacities and Personal Needs Allowances APPENDIX A

COED/MIXED SHELTERS

DIXON HALL- HEYWORTH HOUSE 31 70 100% $56.35 $1,439,743 $1,439,743 $59,021

HOMES FIRST SOCIETY- 3576 ST. CLAIR AVE. E. 35 60 100% $50.00 $1,095,000 $1,095,000 $55,188

FRED VICTOR CENTRE - BETHLEHEM UNITED 15 60 100% $63.00 $1,379,700 $1,379,700 $45,990

BETHLEHEM CHURCH 15 $270,428 $270,428 na

HOMES FIRST SOCIETY-STRACHAN HOUSE 68 100% $33.05 $820,301 $820,301 na

(Strachan emergency beds) 8 90% $39.35 $114,902 $103,412 $5,519

COSTI-RECEPTION CENTRE - Refugee 20 16 95% $33.05 $193,012 $183,361 $18,641

FIFE HOUSE-CO-ED Programs*** *** 16 98% $20.25 $118,260 $115,895 na

TOTAL COED SHELTERS 298 98% $42.15 $5,431,346 $5,407,840 $184,359

FAMILY/REFUGEE SHELTERS

YWCA - BEATRICE HOUSE - Family 17 80 93% $56.35 $1,645,420 $1,530,241 $74,136

CHRISTIE REFUGEE WELCOME CENTRE - Refugee (FORMERLY WORLD VISION) 20 79 93% $46.50 $1,340,828 $1,246,970 $92,358

SOJOURN HOUSE-Refugee 50 95% $56.35 $1,028,388 $976,968 $61,897

SOJOURN HOUSE-Refugee Transitional 76 100% $32.20 $893,228 $893,228 na

TORONTO COMMUNITY HOSTEL - Family and Refugee 20 24 95% $56.35 $493,626 $468,945 $24,467

WOODGREEN REDDOOR - Family and Refugee 30 106 95% $65.55 $2,536,130 $2,409,323 $123,500

TOTAL FAMILY SHELTERS 415 95% $52.22 $7,937,620 $7,525,675 $376,358

2010 SHELTER INFORMATION

WARD LOCATION

BED CAPACITY

SHELTER AND SECTOR

27

19

2010 BUDGET RECOMMENDATION *

MAXIMUM CONTRACT

VALUE

PROJECTED OCCUPANCY

RECOMMENDED PER DIEM RATE

OPERATING BUDGET BASED

UPON PROJECTED OCCUPANCY

PERSONAL NEEDS ALLOWANCES 2009 RECOMMENDED BUDGET (Actual funding based on client eligibility)

Page 1 of 4



WARD LOCATION

BED CAPACITY

SHELTER AND SECTOR


MAXIMUM CONTRACT

VALUE

PROJECTED OCCUPANCY





MEN'S SHELTERS

SCOTT MISSION 20 45 100% $41.60 $683,280 $683,280 $44,840

CORNERSTONE PLACE 21 50 100% $41.60 $759,200 $759,200 $38,325

GOOD SHEPHERD 28 91 100% $46.05 $1,529,551 $1,529,551 $83,702

GOOD SHEPHERD-BARRETT 28 5 100% $24.15 $44,074 $44,074 na

NATIVE MEN'S RESIDENCE 21 63 100% $55.25 $1,270,474 $1,270,474 $57,947

NATIVE MEN'S RESIDENCE-SAGETAY 21 22 100% $67.00 $538,010 $538,010 $15,177

CHRISTIE-OSSINGTON CENTRE-MEN 18 45 100% $60.10 $987,143 $987,143 $31,043

SALVATION ARMY-HOPE SHELTER 20 110 100% $44.10 $1,770,615 $1,770,615 $84,315

SALVATION ARMY-MAXWELL MEIGHEN 28 260 100% $42.60 $4,042,740 $4,042,740 $199,290

SALVATION ARMY-GATEWAY 28 108 100% $45.25 $1,783,755 $1,783,755 $82,782

DIXON HALL-SCHOOL HOUSE 27 55 100% $35.25 $707,644 $707,644 na

ST SIMON'S SHELTER 28 57 100% $51.65 $1,074,578 $1,074,578 $56,798

TOTAL MEN'S SHELTERS 911 100% $46.22 $15,191,064 $15,191,064 $694,219

SEASONAL SHELTERSCOLD AND HEAT ALERT BEDS - MULTIPLE SITES ARE CONTRACTED FOR ADDITIONAL BEDS - WHEN COLD OR EXTREME HEAT ALERTS - 90 IS THE AVERAGE NUMBER OF BEDS - THERE ARE 22 PROJECTED ALERTS BUDGETED FOR IN 2008 - INCLUDES STIPEND~ 90 50% $45.55 $184,478 $182,239 $4,253

DIXON HALL - OUT OF THE COLD (average number of beds per night) ** 90 95% $73.00 $1,189,170 $1,129,712 na

UNIVERSITY SETTLEMENT (WEEKENDS ONLY) 20 65 100% $41.60 $599,040 $599,040 na

TOTAL SEASONAL SHELTERS 245 82% $53.38 $1,972,688 $1,910,991 $4,253

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WARD LOCATION

BED CAPACITY

SHELTER AND SECTOR


MAXIMUM CONTRACT

VALUE

PROJECTED OCCUPANCY





WOMEN'S SHELTERS

ST.VINCENT DE PAUL-AMELIE ** 30 20 99% $75.75 $552,975 $547,445 $15,177

FRED VICTOR CENTRE WOMEN'S SHELTER 28 40 99% $57.40 $838,040 $829,660 $27,318

ST.VINCENT DEPAUL-MARY'S HOME 27 38 98% $57.40 $796,138 $780,215 $22,836

NELLIE'S WOMEN'S SHELTER *** 10 100% $62.40 $227,760 $227,760 $15,330

ST.VINCENT DEPAUL-ST CLAIRE RESIDENCE 24 30 98% $38.45 $421,028 $412,607 na

ST.VINCENT DEPAUL-ELISA HOUSE 6 40 98% $57.40 $838,040 $821,279 $30,047

SALVATION ARMY-EVANGELINE RESIDENCE 14 77 98% $57.80 $1,624,469 $1,591,980 $57,840

SALVATION ARMY-FLORENCE BOOTH HOUSE 19 60 98% $59.10 $1,294,290 $1,268,404 $45,070

STREET HAVEN 27 27 99% $64.55 $636,140 $629,779 $18,439

HOMES FIRST SOCIETY-SAVARD HOUSE 18 30 97% $66.70 $730,365 $708,454 $20,076

YWCA - FIRST STOP WOODLAWN-WOMEN 22 28 99% $57.40 $586,628 $580,762 $27,622

TOTAL WOMEN'S SHELTERS 400 98% $59.49 $8,545,873 $8,398,345 $279,755

Page 3 of 4



WARD LOCATION

BED CAPACITY

SHELTER AND SECTOR


MAXIMUM CONTRACT

VALUE

PROJECTED OCCUPANCY





YOUTH SHELTERS

COVENANT HOUSE 27 94 85% $57.40 $1,969,394 $1,673,985 $79,618

COVENANT HOUSE-SECOND STAGE 27 28 85% $53.60 $547,792 $465,623 na

EVA'S INITIATIVES-PLACE 34 32 90% $57.40 $670,432 $603,389 $28,698

EVA'S INITIATIVES-SATELLITE ** 23 32 95% $72.84 $850,771 $808,233 $30,292

HORIZONS FOR YOUTH 17 35 85% $57.40 $733,285 $623,292 $27,365

NATIVE CHILD & FAMILY SERVICES SHELTER 19 12 95% $57.40 $251,412 $238,841 $7,864

EVA'S INITIATIVES-PHOENIX 19 50 95% $57.40 $1,047,550 $995,173 $43,692

SECOND BASE YOUTH 35 56 85% $62.40 $1,275,456 $1,084,138 $43,782

TOUCHSTONE YOUTH + $64,000 pay direct rent for city lease 29 32 85% $62.40 $728,832 $619,507 $27,103

TURNING POINT YOUTH 27 35 85% $57.40 $733,285 $623,292 $27,365

YMCA HOUSE 20 45 85% $61.80 $1,015,065 $862,805 $38,114

YWCA - FIRST STOP WOODLAWN-YOUTH 22 28 85% $57.40 $586,628 $498,634 $23,716

YOUTH WITHOUT SHELTER 1 50 90% $57.40 $1,047,550 $942,795 $44,840

TOTAL YOUTH SHELTERS 529 88% $59.40 $11,457,452 $10,039,707 $422,449

TOTALS 2,798 94% $52.13 $50,536,043 $48,473,622 $1,961,393

**RATE FROZEN

***CONFIDENTIAL ADDRESSES - LOCATION ADMINISTRATION OFFICES

~INCLUDES A $200 STIPEND PER AGENCY WHENEVER AN EXTREME WEATHER ALERT IS CALLED. THE STIPEND PAYS ADDITIONAL STAFF THAT THEY AGENCY NEEDS TO BRING ON SHIFT ON SHORT NOTICE

* RECOMMENDATIONS ARE SUBJECT TO THE APPROVAL OF THE 2009 OPERATING BUDGET

Page 4 of 4

City of Toronto Shelter Profile Information, as of October 2009 APPENDIX B

COED/MIXED SHELTERS

DIXON HALL- HEYWORTH HOUSE 31 TEY 24/7 ECM ES MSC $56.35

HOMES FIRST SOCIETY- 3576 ST. CLAIR AVE. E. 35 SC 24/7 BSS ES SA $50.00

FRED VICTOR CENTRE - BETHLEHEM UNITED 15 24/7 ECM ES MS $63.00

BETHLEHEM CHURCH - FOOD/LEASE 15

HOMES FIRST SOCIETY-STRACHAN HOUSE BSS-NO FOOD TS MSC $33.05

(Strachan emergency beds) BSS ES MSC $39.35

COSTI-RECEPTION CENTRE - Refugee 20 TEY 24/7 BSS ES MS $33.05

FIFE HOUSE-CO-ED Programs*** *** 24/7 BSS-NO FOOD TS MSC $20.25

FAMILY/REFUGEE SHELTERS

YWCA - BEATRICE HOUSE- Family 17 EY 24/7 ECM TS MSC $56.35CHRISTIE REFUGEE WELCOME CENTRE- Family and Refugee 20 TEY 24/7 ECM ES MS $46.50

SOJOURN HOUSE-Refugee ECM ES $56.35

SOJOURN HOUSE-Refugee Transitional ECM - NO FOOD TS $32.20

TORONTO COMMUNITY HOSTEL - Family and Refugee 20 TEY 24/7 ECM ES SA MR $56.35

WOODGREEN REDDOOR - Family and Refugee 30 TEY 24/7 ECM ES MS $65.55

CITY LEASED FACILITY -

MARKET RENT (MR) OR BELOW MARKET RENT

(BMR)

19 TEY 24/7 BMR

SHELTER PROFILE INFORMATION

2010 RECOMMENDED PER DIEM RATE

NY

SHELTER AND SECTOR WARD LOCATION

COMMUNITY COUNCIL (TORONTO

EAST YORK - TEY) (NORTH YORK - NY) (SCARBOROUGH -SC) (ETOBICOKE

YORK - EY)

HOURS OF OPERATION (INCLUDES ACCESS TO

DAY PROGRAMS) - OVERNIGHT ONLY (ON)

SERVICE CONTRACT ENHANCED

CASE MANAGEMENT

(ECM) OR BASIC SUPPORT SERVICES

(BSS)

EMERGENCY (ES) AND/OR

TRANSITIONAL SHELTER (TS)

MULTI-SERVICE/SITE

SHELTER (MSC) OR

STAND-ALONE (SA) (See definitions

below)

27 TEY 24/7 SA

Page 1 of 4




(BMR)






YORK - EY)




CASE MANAGEMENT


(BSS)



MULTI-SERVICE/SITE

SHELTER (MSC) OR


below)

MEN'S SHELTERS

SCOTT MISSION 20 TEY ON BSS ES MS $41.60

CORNERSTONE TABERNACLE 21 TEY ON BSS ES SA $41.60

GOOD SHEPHERD 28 TEY 24/7 ECM ES MSC $46.05

GOOD SHEPHERD-BARRETT 28 TEY 24/7 BSS TS MSC $24.15

NATIVE MEN'S RESIDENCE 21 TEY ON ECM ES MSC $55.25

NATIVE MEN'S RESIDENCE-SAGETAY 21 TEY 24/7 ECM TS MSC $67.00

CHRISTIE-OSSINGTON CENTRE-MEN 18 TEY ON BSS ES MSC $60.10

SALVATION ARMY-HOPE SHELTER 20 TEY 24/7 ECM ES MSC $44.10

SALVATION ARMY-MAXWELL MEIGHEN 28 TEY 24/7 ECM ES MSC $42.60

SALVATION ARMY-GATEWAY 28 TEY 24/7 ECM ES MSC $45.25

DIXON HALL-SCHOOL HOUSE 27 TEY ON BSS TS MSC BMR $35.25

ST SIMON'S SHELTER 28 TEY ON BSS ES SA $51.65

SEASONAL SHELTERS

COLD AND HEAT ALERT BEDS $45.55

DIXON HALL - OUT OF THE COLD (average number of beds per night) ON BSS ES MSC $73.00

UNIVERSITY SETTLEMENT (WEEKENDS ONLY) 20 TEY ON BSS ES MS $41.60

MULTIPLE SITES ARE CONTRACTED FOR ADDITIONAL BEDS - WHEN COLD OR EXTREME HEAT ALERTS - 90 IS THE AVERAGE NUMBER OF BEDS - THERE ARE 22 PROJECTED ALERTS BUDGETED FOR IN 2008 - INCLUDES STIPEND~

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(BMR)






YORK - EY)




CASE MANAGEMENT


(BSS)



MULTI-SERVICE/SITE

SHELTER (MSC) OR


below)

WOMEN'S SHELTERS

ST.VINCENT DE PAUL-AMELIE 30 TEY 24/7 ECM TS MSC $75.75

FRED VICTOR CENTRE WOMEN'S SHELTER 28 TEY 24/7 ECM ES MS $57.40

ST.VINCENT DEPAUL-MARY'S HOME 27 TEY 24/7 ECM ES MSC $57.40

NELLIE'S WOMEN'S SHELTER *** TEY 24/7 ECM ES MS $62.40

ST.VINCENT DEPAUL-ST CLAIRE RESIDENCE 24 NY 24/7 BSS TS MSC $38.45

ST.VINCENT DEPAUL-ELISA HOUSE 6 EY 24/7 ECM ES MSC $57.40

SALVATION ARMY-EVANGELINE RESIDENCE 14 TEY 24/7 ECM ES MSC $57.80

SALVATION ARMY-FLORENCE BOOTH HOUSE 19 TEY 24/7 ECM ES MSC $59.10

STREET HAVEN 27 TEY 24/7 ECM ES MS $64.55

HOMES FIRST SOCIETY-SAVARD HOUSE 18 TEY 24/7 ECM ES MSC $66.70

YWCA - FIRST STOP WOODLAWN-WOMEN 22 TEY 24/7 ECM ES/TS MSC $57.40

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(BMR)






YORK - EY)




CASE MANAGEMENT


(BSS)



MULTI-SERVICE/SITE

SHELTER (MSC) OR


below)

YOUTH SHELTERS

COVENANT HOUSE 27 TEY 24/7 ECM ES MSC $57.40

COVENANT HOUSE-SECOND STAGE 27 TEY 24/7 ECM TS MSC $53.60

EVA'S INITIATIVES-PLACE 34 NY 24/7 ECM TS MSC $57.40

EVA'S INITIATIVES-SATELLITE 23 NY 24/7 ECM ES MSC BMR $72.84

HORIZONS FOR YOUTH 17 ET 24/7 ECM ES SA $57.40

NATIVE CHILD & FAMILY SERVICES SHELTER 19 TEY 24/7 ECM TS MS $57.40

EVA'S INITIATIVES-PHOENIX 19 NY 24/7 ECM TS MSC BMR $57.40

SECOND BASE YOUTH 35 SC 24/7 ECM ES SA $62.40

TOUCHSTONE YOUTH + pay direct rent for city lease 29 TEY 24/7 ECM ES SA MR $62.40

TURNING POINT YOUTH 27 TEY 24/7 ECM ES MS $57.40

YMCA HOUSE 20 TEY 24/7 ECM ES MSC $61.80

YWCA - FIRST STOP WOODLAWN-YOUTH 22 TEY 24/7 ECM ES/TS MSC $57.40

YOUTH WITHOUT SHELTER 1 ET 24/7 ECM ES/TS SA $57.40

~INCLUDES A $200 STIPEND PER AGENCY WHENEVER AN EXTREME WEATHER ALERT IS CALLED. THE STIPEND PAYS ADDITIONAL STAFF THAT THE AGENCY NEEDS TO BRING ON SHIFT ON SHORT NOTICE

EACH SHELTER IS FORMALLY IDENTIFIED AS EITHER PROVIDING BASIC SUPPORT SERVICES or ENHANCED CASE MANAGEMENT SERVICES. THE OPERATING FRAMEWORK CLEARLY OUTLINES SERVICE EXPECTATIONS AND FILE DOCUMENTATION STANDARDS FOR EACH SHELTER. THESE SERVICES INCLUDE CONDUCTING INITIAL NEEDS ASSESSMENTS WITH ALL CLIENTS WITHIN 8 DAYS OF ADMISSION; DOCUMENTED HOUSING PLANS WITH ALL SHELTER CLIENTS WHO STAY BEYOND 14 DAYS IN A SHELTER; AND DISCHARGE PLANNING SO THAT CLIENTS ARE CONNECTED UP TO APPROPRIATE SUPPORTS IF NEEDED TO HELP THEM MAINTAIN THEIR HOUSING.

MSC - THESE ARE AGENCIES THAT OPERATE MORE THAN ONE SHELTER. IN THESE CASES THE CITY ENTERS INTO ONE CONTRACT WITH THE AGENCY - MS - ARE AGENCIES THAT ARE PART OF MULTI-SERVICES ORGANZIAITONS BUT ONLY OPERATE ONE SHELTER LOCATION - SA - THESE ARE AGENCIES THAT ONLY OPERATE SHELTER PROGRAMS

***CONFIDENTIAL ADDRESSES - LOCATION ADMINISTRATION OFFICES

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APPENDIX C

CO-ED/ MIXED ADULT 289 99% 324 99%

MEN 1535 94% 1543 95%

WOMEN 517 95% 497 98%

YOUTH 469 86% 458 87%

SINGLE ADULT AND YOUTH AVERAGE 2810 93% 2822 94%

FAMILY 1069 n/a- capacity expands to meet increased demand

1157 n/a- capacity expands to meet increased demand

2008 AVERAGE NUMBER OF BEDS OCCUPIED

NIGHTLY

2008 OCCUPANCY

RATE (%)

SECTOR *2009 AVERAGE NUMBER OF BEDS OCCUPIED

NIGHTLY

2009 OCCUPANCY RATE (%)

2008 vs. 2009 OCCUPANCY INFORMATION

The following provides an overview of the sector and system occupancy rates for 2008 and 2009, year to date:

* 2009 averages are based on occupancy data received to and including the week of October 4th, 2009.

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Appendix D

13,311

15,032

16,153

17,935

16,145

17,555 17,849

16,015

17,621

5,320 5,357

5,887 5,916

5,063 5,017 4,832 4,488 5,020

4,386 5,001

3,462 3,233

2,056 1,644 1,680 1,796 1,896

5,116

5,785

3,996 3,821 3,048

2,479 2,489 2,569 2,719

28,133

31,175

29,498

30,905

26,312 26,695 26,850

24,868

27,256

0

5,000

10,000

15,000

20,000

25,000

30,000

35,000

2000 2001 2002 2003 2004 2005 2006 2007 2008

Total Number of Unique Individuals Using the Shelter System 2000-2008

Unique Individuals - Adults Unique Individuals - Youth Total Number of Families Total Number of Children Total Number of Unique Individuals

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APPENDIX E

SUMMARY OF ANNUAL CRITERIA FOR PER DIEM RATE RECOMMENDATIONS

The following outlines the criteria staff use in making per diem recommendations:

(a) Contracted Service Delivery - includes a review of contracted service provision (e.g. Basic - board and lodging vs. Enhanced - case management services); total number of hours of operation (overnight vs. 24 hours a day, 7 days a week operations); client profile; built form (e.g. purpose built facility vs. church basement); operating costs (e.g. market rent vs. no facility costs), etc.

(b) Revenue Generation Capacity - includes a review of size of agency and whether or not it is a stand-alone or multi-service agency; total number of beds in the shelter (economies of scale); and additional funding sources (United Way/Salvation Army Red Shield funded vs. City of Toronto as sole funder), etc

(c) Sector Comparison Review – includes a review of per diem rates in each sector and annually takes incremental steps to adjust any significant rate imbalances by sector (after revenue generation and service delivery comparisons are completed). Agencies currently receiving above sector average per diem rates are red-circled until the other providers in that sector (with comparable programs) reach similar rates.

(d) Agency In Difficulty Review – includes a review of agencies that are in financial, operational, and/or agency governance difficulty. Agencies in this category are identified in a number of different ways including but not limited to the annual budget submission process; as well as through agency declarations; or as a result of site visits; quality assurance reviews, and/or complaints.

Agencies in this category often have a broad range of issues. Some may have on-going operational deficit issues from major occupancy loss, others may be not fully meeting the service standards and the City is working with them to remediate these services. There may be contract compliance issues including financial reporting and/or Board and/or Management governance which may impact on funding.

If an agency is recommended for an increase under these circumstances, it is recommended to assist the agency to develop stabilization plans that reduce the risk of unwanted bed closure. It is important to note that generally the rates are temporary and will return to sector averages at the end of the contracted stabilization period. In each of these cases Hostel Services provides enhanced agency oversight including increased site visits and attendance at agency board meetings. There are also a number of additional operating and reporting requirements placed on these shelters as a condition of on-going funding.

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(e) Review of Agencies with Funding Conditions – includes a review of agencies that have had conditions placed on their continued funding. Conditions in this case are established when there are serious issues with the agency’s overall performance or compliance with the Standards/Operating Agreement which places the agency in breach of the operating agreement. A breach may occur when there is a serious contravention of the Shelter Standards including but not limited to substantial failure to meet the requirements related to service delivery, reporting, board governance/agency management, financial management, etc. In these cases agencies that have conditions placed on their on-going funding will not receive an increase in per diem rates unless and/or until the issues have been resolved to the satisfaction of the City.

(f) Fair Distribution of Inflationary Increases – Once the review from (a) – (e) is completed the set recommended inflationary increase is applied equitably among the remaining agencies.

APPENDIX F

2009 2010 Variance

Total Purchase of ServiceProjected Bednights 935,735 929,125 (6,610)Gross Per Diem Operating Budget $47,955,491 $48,473,622 $518,131Net Per Diem Operating Budget $16,842,103 $16,642,699 ($199,404)Net % Contribution 35.12% 34.33% (0.79%)System Average Per Diem $51.25 $52.13 1.72%

Gross Personal Needs Allowance $1,910,655 $1,961,393 $50,738Net Personal Needs Allowance $382,131 $392,279 $10,148

Co-ed Mixed Adult Projected Bed Nights 107,712 108,069 357Gross Per Diem Operating Budget $5,302,648 $5,407,840 $105,192Net Per Diem Operating Budget $1,721,224 $1,705,396 ($15,828)Net % Contribution 32.46% 31.54% (0.92%)System Average Per Diem $41.14 $42.15 2.46%

Family *Projected Bed Nights 144,176 144,129 (47)Gross Per Diem Operating Budget $7,200,365 $7,525,675 $325,310Net Per Diem Operating Budget $2,406,513 $2,587,815 $181,302Net % Contribution 33.42% 34.39% 0.96%System Average Per Diem $49.94 $52.22 4.56%

MenProjected Bed Nights 324,084 332,515 8,431Gross Per Diem Operating Budget $14,337,111 $15,191,064 $853,953Net Per Diem Operating Budget $3,561,318 $3,799,100 $237,782Net % Contribution 24.84% 25.01% 0.17%System Average Per Diem $44.24 $46.22 4.48%

Seasonal/Part-time Projected Bed Nights 29,981 31,901 1,920Gross Per Diem Operating Budget $1,820,645 $1,910,991 $90,346Net Per Diem Operating Budget $823,777 $818,063 ($5,714)Net % Contribution 45.25% 42.81% (2.44%)System Average Per Diem $52.95 $53.38 0.81%

Women *Projected Bed Nights 148,465 143,464 (5,001)Gross Per Diem Operating Budget $8,516,913 $8,398,345 ($118,568)Net Per Diem Operating Budget $3,580,452 $3,483,268 ($97,184)Net % Contribution 42.04% 41.48% (0.56%)System Average Per Diem $57.37 $59.49 3.70%

Youth *Projected Bed Nights 181,323 169,051 (12,272)Gross Per Diem Operating Budget $10,777,809 $10,039,707 ($738,102)Net Per Diem Operating Budget $4,748,819 $4,248,020 ($500,799)Net % Contribution 44.06% 42.31% (1.75%)System Average Per Diem $59.44 $59.40 * (0.07%)

* Decrease is the result of the transfer of one shelter (Na-Me-Res Sagetay) from the youth sector to the men's sector.

2009 vs 2010 Purchase of Service Per Diem Budget

APPENDIX G

COED/MIXED SHELTERSHOMES FIRST SOCIETY- 3576 ST. CLAIR AVE. E.

60 $48.66 Change of Shelter Operator

The previous operator, Scarborough Hope Centre Inc. advised the City they were no longer able to operate the shelter program. Through an Expression of Interest process, Homes First Society was selected to be the new operator. The shelter capacity remained the same at 60 beds.

FAMILY/REFUGEE SHELTERSWOODGREEN RED DOOR 120 $57.90 Shelter capacity

reduced to 106 bedsThe capacity was reduced from 120 beds to106 beds at the request of the agency. Given the physical layout of the building, the shelter was never able to achieve full occupancy. The per diem rate for the shelter was increased to $65.00; however due to the capacity reduction, there was no net impact to the 2009 approved budget.

MEN'S SHELTERSNATIVE MEN'S RESIDENCE- TUMIVUT/ SAGETAY

22 $71.00 Per diem rate reduced to $54.70

In 2009, Sagatay re-opened after undergoing renovations. This site was previously known as Tumivut Youth Shelter. The shelter capacity remains the same at 22 beds; however the per diem rate was reduced, pending receipt of a business case from the operator to support the enhanced program model.

ST. SIMONS SHELTER 57 $50.90 Shelter capacity temporarily increased to 87 beds

In January 2009 at the request of the City, St. Simon’s men’s shelter expanded their program to include 30 additional temporary beds. The beds will continue to operate through the 2009/2010 winter season and will be discontinued in April 2010.

SEASONAL SHELTERSUNIVERSITY SETTLEMENT (WEEKENDS ONLY)

65 $40.85 Shelter capacity increased to 75 beds

The capacity was increased from 65 to 75 beds. The agency submitted a business case to Hostel Services requesting to add the 10 beds and also requesting support to enhance the homeless services offered at the site.

WOMEN'S SHELTERSNELLIE'S WOMEN'S SHELTER 20 $61.85 Shelter funded capacity

reduced to 10 bedsThe Ministry of Community and Social Services uploaded the funding of 10 Violence Against Women beds, effective November 2008.

EXPLANATION

2009 IN YEAR ADJUSTMENTS REPORT

* All increases are within the 2009 Approved Operating Budget

2009 COUNCIL

APPROVED BED

CAPACITY

2009 COUNCIL APPROVED PER DIEM

RATE

SHELTER IN YEAR ADJUSTMENT*

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APPENDIX H

OTHER SERVICE CONTRACTS

a) Mental Health Program Services of Metropolitan Toronto - Habitat Services

Habitat Services is a housing and support subsidy program that is cost-shared by the Ministry of Health and Long-term Care and the City of Toronto. On an annual basis the program provides a housing subsidy for up to 931 units of private and not-for-profit boarding homes and rooming houses for people with psychiatric illnesses. The subsidy is based upon a per diem rate which is adjusted according to each individual tenant’s income.

The 2010 Operating Budget Submission also includes up to $8.676 million (gross)/$1.737 million (net), for Habitat Services. To date, no increases to the per diem rate have been confirmed by the Ministry of Health and Long-Term Care.

b) Toronto Hostel Training Centre

The Toronto Hostels Training Centre (THTC) was created in 1997, following the recommendations made by a Coroner’s jury regarding the need for staff training in hostels. The City of Toronto provides $198,000 in annual funding to provide specialized training and associated services in a cost effective manner for the staff and board members of shelters and others working with homeless people. The Centre offers all of the mandatory training required in the Toronto Shelter Standards.

On an annual basis City operated shelters purchase training from the Toronto Hostels Training Centre in order to meet the training requirements under the Shelter Standards. The rates are reasonable and range from $35-$55 per day, per person, per course. Given the specialized training, purchasing limits and requirements related to sole source contracts, Hostel Services is seeking the authority to continue to purchase training from the Centre subject to the approval of the 2010 Operating Budget – up to $42,000.

b) Motel Contracts

The City of Toronto contracts with motels to provide spaces for families when the regular permanent shelter system is at or near capacity. The motel program is administered through two directly operated shelters, Family Residence and Birkdale Residence. At the present time the City works with four motels in Scarborough (3 in Ward 44 and one in Ward 36). In 2008 and year to date (as of October 19th, 2008) the average number of people staying in the motels including children on a nightly basis was 405. The costs for this program up to $ 1.341 million, are included in the 2010 Shelter, Support and Housing Administration Operating Budget Submission, and subject to Council approval.

APPENDIX I

RECOMMENDATIONS REGARDING THE FUNDING MODEL FOR EMERGENCY SHELTERS

The Housing Opportunities Toronto Affordable Housing Action Plan, approved by Council on August 5, 2009, requests that the Provincial government “implement a new funding model for shelters which supports a Housing First approach and provides flexibility in the use of shelter funding to establish a permanent program to provide shelter clients with housing supports in the community, similar to the Hostels to Homes pilot” (Recommendation 14).

The following recommendations regarding the funding model are consistent with the HOT plan actions. These recommendations were developed through the review of the per diem funding model and are based on the Alternative Model for Emergency Shelter Funding report, produced by Consulting Matrix in 2007 as well as feedback from the consultations with shelter providers.

1. The Province should eliminate the per diem model of funding and replace it with a flexible, uncapped annualized funding program that supports a Housing First approach and enables people to move more quickly from shelters into housing.

2. The new provincial funding model should be designed to cover actual shelter operating costs and not be occupancy driven.

3. The new provincial funding model should retain the open-ended nature of current shelter funding so that municipalities have the flexibility to respond to unexpected increases in demand due to increased homelessness or unforeseen emergencies that result in homelessness.

4. The new provincial funding model should provide ongoing stable funding at a level that adequately covers the costs of food, board and lodging as well as the specialized counseling, mental health, addiction and other support services required by homeless single adults, youth and families with children.

5. The new provincial funding model should provide permanent, sustainable funding for a program similar to the Hostels to Homes pilot, to enable agencies to provide clients with housing supports in the community.

Per Diem Rates for Purchase of Service Shelters

Documents

extreme weather

extreme heat

quality assurance

vincent de

hostel services

hostel services

profit boarding

city leased