Edmonton (Alta.) - 1973 - Senior citizen housing review_research report no. 9 (1973-01) by Edmonton Tower Resource Centre Online Library

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H082/4550/1973 SENIOR-CITIZEN-HOUS NG REVIEW EDMONTON.-PLANNING

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SENIOR CITIZEN HOUSING REVIEW

2539a .E3 E373 1973

Research and Long Range Planning Branch The City of Edmonton Planning Department

SENIOR CITIZENS HOUSING REVIEW

Research Report No. 9 January 1973

Prepared by: L. David O'neil Research Planner Assisted by: S. Robson Planning Assistant

City of Edmonton Planning Department S. C. Rodgers, Superintendent Research and Long Range Planning Branch E. C. Brown, Acting Director

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The City 01 Edmotitoil

Table of Contents Page List of Tables

List of Illustrations

Summary and Recommendations CHAPTER ONE:

INTRODUCTION

CHAPTER TWO:

SENIOR CITIZEN HOUSING STOCK AND RENTAL RATES

Observations CHAPTER THREE: POPULATION, INCOME AND COST OF LIVING FOR SENIOR CITIZENS Observations CHAPTER FOUR: STRATHCONA PLACE CONCEPT Observations CHAPTER FIVE: REVIEW OF LEGISLATIVE PROGRAMS AND FINANCIAL ALTERNATIVES APPENDIX A:

Bibliography

EXCERPTS FROM C.M.H.C. NEWS RELEASES Re: Development Examples of Senior Citizen Housing Under Public Housing Provisions of N.H.A. (Canada)

22 23 31 33 35 37

46 50

List of Tables Page Table 2A: Summary of Senior Citizen Accommodation in Edmonton

Table 2B: Senior Citizens Projects Developed Under Various Arrangements Prior to 1960

Table 2C: Senior Citizens Accommodation Developed Under "Homes for the Aged Act" and "Master Agreement" Between City of Edmonton and Province of Alberta

Table 2D: Senior Citizens Accommodation - Sec. 15 N

H A

Table 2E: Senior Citizen Accommodation (Proposed Section 15 N. H. A.)

Table 2F: Senior Citizen Accommodation - Section 43 N

H A

Table 2G: Senior Citizens Accommodation Administered Privately

Table 2H: Special Care Facilities

Table 21: Total Population and Senior Citizen Population . . of the City of Edmonton by Zone, 1956, 1961, 1966, 1971

Table 2J: The Number of Beds and the Number of Beds/1000 in Existing Senior Citizen Accommodation, Nursing Homes and Auxiliary Hospitals - 1971

Table 2K: Summary of Applications for Senior Citizen Accommodation

Table 3A: Actual and Projected Population of Citizens, 65 Years and Over, in Alberta and Edmonton

Table 3B: Metropolitan Edmonton Population Over 65 Years By Sex and Five Year Age Groups, 1966, 1971, 1976, and 1981

Table 3C: Number of Persons Receiving Old Age Security and Guaranteed Income Supplement, Alberta 1961 - 1971

List of Tables (Cont'd)

Page Table 3D: Percentage Distribution of Unattached Individuals by Income Groups, Age and Sex, Canada 1967

Table 3E: Percentage Distribution of Individuals Over 65 Years of Age by Income Groups and Sex

Table 3F: Percentage Distribution of Individuals by Income Groups, Age, Sex, and Marital Status, 1967

Table 3G: Estimated Minimum Monthly Expense Requirements for Senior Citizens in 1970 and 1972

Table 3H: Examples of Income Balance After Rent Costs for Pensioners on Full Guaranteed Income Supplement

Table 5A: Summary of Legislation Affecting Senior Citizen Accommodation

Table 5B: A Comparison of Ownership and Financing Techniques Available Under the National Housing Act and the Alberta Housing Act for the Development of a 200 Unit Self-Contained Senior Citizens Housing Project - Capital Cost $2,500,000

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List of Drawings

Page Map 1 The Queen Alexandra Site

Map 2 Summary Zones for Senior Citizen Population Determination

Map 3 Senior Citizen Accommodation by Zone in the City of Edmonton, 1972

22(a)

SUMMARY AND RECOMMENDATIONS

In 1966, a need for senior citizens housing was expressed by a group of interested citizens from the southwest sector of the City. Subsequent study and discussion indicated that the need for this housing existed primarily among citizens with modest fixed incomes since several senior citizen facilities were available for senior citizens in the higher income groups. In addition, it was suggested that an allied health care centre and a community service centre be located on the same site.

This study is an inventory and evaluation of the available senior citizens housing stock, rental rates, income, cost of living, and an evaluation of the methods of financing the proposed Strathcona Place project.

RECOMMENDATIONS:

That the City again approach the Provincial Government and the Alberta Housing Corporation to approve the development of the Strathcona Place Senior Citizens Residence on the Queen Alexandra site under Section 43 of the National Housing Act to allow a rent-geared-to-income approach in providing accommodation for elderly citizens in Edmonton who have modest or minimum income levels.

That a portion of the Queen Alexandra site be reconunended to the Provincial Department of Health and Social Development as the site of a multi-purpose complex to include such health care services as a nursing home and a preventive health care centre for senior citizens in the southwest area of the City.

That the respective departments of the Provincial and Civic Governments co-ordinate planning and financial resources to develop

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the residential, medical, recreational and social service facilities on the consolidated Queen Alexandra site.

That the Strathcona Place Society be requested to participate with the Provincial and Municipal Governments in the planning, development and maintenance of the multi-purpose complex on the Queen Alexandra site.

That the Edmonton Community Housing Organization be given the authority to develop the Senior Citizens Residence on the Queen Alexandra site.

That the Edmonton Housing Authority be given the responsibility for the administration and management of the Strathcona Place residence.

That the proposed Strathcona Place Residence incorporate several units suitable for physically handicapped citizens.

CHAPTER ONE:

INTRODUCTION

During the middle and late 1960's, a group of citizens in the Garneau area of the City became concerned with the fact that the expansion of the University of Alberta was causing the demolition of an estimated 200 homes. Many of the residents of this area who were asked to move were elderly and had lived in the area for a long period of time. Few of them knew where they could move to or how they could replace their homes in the tight housing market of the time.

This group of citizens conducted a survey of senior citizens living in the area with the cooperation of four local churches. The names and addresses of 371 pensioners were obtained from the City Enumerator's list and interviewers were recruited from the local church memberships. Two members of the Department of Sociology at the University of Alberta instructed and supervised the interviewers and checked the data collected by them. The citizen group was able to complete 202 interviews representing 265 persons over 65 years of age. The survey instrument was limited to questions regarding housing and services. Following is a summary of the findings of this survey.

(1) Income was very low. Over one-third of those people interviewed had annual incomes under $2,000. (2) Many respondents were widows, the ratio of women to men being 3:1 in the group surveyed. The ratio of women to men was 4:1 in the group with an income of less than $1,300 annually. (3) About one-third of the people interviewed were over 75 years of age. (4) Because of age and income, homeownership for many of these people was no longer possible. In today's inflated rental market, the displaced older person of low or fixed income finds himself in a difficult position. (5) Residents said that apartment living would be acceptable if the building was close to good public transportation,

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a shopping centre, a church and a park. There were fears expressed of having large numbers of people in one tall building because of fire, public mischief (such as false fire alarms) and vertigo. As a result of this survey, the Garneau group presented several recommendations to the City of Edmonton. These recommendations are summarized below. (1) That high density replacement housing be built for the senior citizens of the Southwest area of Edmonton. (2) That frailty be an important consideration in planning for the aged. (3) That high density housing for the aged include supportive services such as food services, health care and an outpatient treatment centre. (4) That this centre be served by an appointed local Citizen Board, answerable to the Provincial Housing Authority.

On October 1, 1970, the City of Edmonton presented a brief to the Honorable F. C. Colborne, Minister of Municipal Affairs, the Honorable J. D. Henderson, Minister of Health and the Honorable R. A. Speaker, Minister of Social Development which proposed the co-ordination of local, municipal and provincial resources in the delivery of services to a multi-purpose senior citizen complex. The brief described the events which had led up to the recommendation for cooperation in developing a South Edmonton Senior Citizen complex. The recommendations in the brief were as follows: (1) That the Provincial Government and the City of Edmonton develop, as an innovative pilot project, a senior citizen complex in South Edmonton. (2) That the respective departments of the provincial and civic governments coordinate planning and financial resources to structure administratively and physically the residential, medical and social service facilities, programs and management for a series of phased developments on a consolidated Queen Alexandra site location between 108 and 109 Street and between 76 and 78 Avenues.

(3) That the phases to be considered include: a recreational, medical and community Phase One: facility and related programs; a residential high rise apartment facility; Phase Two: Phase Three: a nursing home; possibly an auxiliary hospital for all senior Phase Four: citizens of the South Edmonton community. (4) That phase one of the development at least, include for planning, programming, management and financial involvement of senior citizens, church, business and service club groups in the South Edmonton community, with a view to the governments responding to expressed needs rather than imposing a planned project upon these citizens. Late in 1970, phase one was approved by City Council and that part of the project is now operational.

When the City Administration looked closely at phase two, the residential high rise, they were faced with financing and subsidizing the maintenance of a very expensive residential complex. In a letter of April 30, 1971, Mr. James E. Buffam, Executive Director of the Greater Edmonton Foundation reported on a meeting held by the Board of Directors: "The Board of Directors, by resolution, directed that a letter be written to City Council recommending that the South Side High Rise for Senior Citizens proposed for the property adjacent to the old St. John's Church site be financed under Section 35D (now Sections 43-44) rather than Section 16A (now Section 15) of the National Housing Act, thus providing for the sharing of any operating deficit, the Federal Government assuming 50%, the Provincial Government 40%, and the City 10%." signed

James E. Buffam Executive Director Greater Edmonton Foundation

In response to this letter City Council passed the following resolution on May 11, 1971, in regard to the proposed development on the Queen Alexandra site (see following map for site location):

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5 Moved Alderman Mrs. Evans - Alderman Tanner "That we support the application of the Greater Edmonton Foundation that the Senior Citizen's High Rise Project envisaged on the Queen Alexandra Site be developed under Section 35D (now Sections 43-44), of the National Housing Act, and that this opinion be sent to the appropriate bodies". A letter dealing with this issue was sent to the Honorable R. A. Speaker, Minister of Social Development, requesting approval of this approach to financing senior citizen housing. The reply from the Minister, dated June 16, 1971, was as follows: "In a recent letter you requested that the government consider using Section 35D rather than 16A of the National Housing Act. We have considered this and are not prepared to finance the above mentioned project under Section 35D. If the City feels this project is in need of additional subsidization, then you could consider building it as a public housing project and managed under the Edmonton Housing Authority". The suggestion by the Minister to finance senior citizen housing under the terms of reference of public housing legislation would allow rents to be scaled according to income rather than the fixed rent structures under Section 15 (formerly Section 16A) of the National Housing Act.

It is argued by the Greater Edmonton Foundation and the Edmonton Community Housing Organization that senior citizen housing built under Section 15 of the National Housing Act is too expensive for many senior citizens and too costly for the City to subsidize rents to meet the deficits incurred. These organizations, with the backing of City Council, suggest that the three levels of government should share the financial responsibility of developing and maintaining adequate housing for all senior citizens. On June 25, 1971, Chief Commissioner P. F. Bargen made the following request to the Edmonton Community Housing Organization:

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"I wish you to ... consider the pros and cons of proceeding with Strathcona Place on a 35D project basis (i.e. Sections 43-44). Your reaction to the proposal will probably go forward to City Council in addition to the reply from Mr. Speaker".

On August 16, 1971, City Council authorized that an application be submitted to the Alberta Housing Corporation to develop the Strathcona Place Residence under Section 35 (now Section 43) of the National Housing Act. The resolution was worded as follows: "That City Council authorize that an application be submitted to the Alberta Housing Corporation to develop the senior citizen's accommodation on the Queen Alexandra site under the provision for public housing as provided for under Section 35D of the National Housing Act, and having the facility managed by the Edmonton Housing Authority." In August 1971 the Provincial Government was changed and a new Minister of Health and Social Development was appointed. The Honorable Neil S. Crawford, the new minister, wrote to Mayor Ivor Dent on March 7, 1972, acknowledging the difficulty of financing and operating senior citizen accommodation. "Rates authorized by Order-in-Council 1079/70 are $55.00 per person in double accommodation and $80.00 per month in single accommodation. The Greater Edmonton Foundation, with the approval of my predecessor the Honorable R. A. Speaker, plan to charge $80.00 for a bachelor suite and $110.00 for a one bedroom suite. The new rates tend to defeat the original aim of the Foundation Homes under the Homes for the Aged Act and raise the question as to whether senior citizens will be able to afford this type of accommodation". The Minister requested that a meeting be scheduled between himself and representatives of the City of Edmonton to discuss this problem. In addition the Minister suggested that this type of project should be financed as public housing to allow the rent geared to income approach to be used. This would transfer the responsibility for the construction

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and operation of senior citizen housing from the Greater Edmonton Foundation to the City of Edmonton. "Would the City of Edmonton be willing to have the project financed under Sections 43-44 of the National Housing Act and therefore; would the City of Edmonton be willing to transfer responsibility for the construction and operation of the high rise from the Foundation to the City of Edmonton Housing Authority?" Chief Commissioner P. F. Bargen wrote to the Minister on behalf of the Mayor on March 10, 1972. "The City of Edmonton would be willing to have both Kiwanis Place development and the Queen Alexandra (Strathcona Place) development financed under Sections 43-44 of the National Housing Act, and to transfer the responsibility for the construction and operation of these developments from the Foundation to the City of Edmonton Housing Authority." This was the state of the development at the time of writing.

On October 15, 1971, the Director of the Edmonton Community Housing Organization (E.C.H.0.), requested that the Planning Department do a study into the "Justification of Demand and Planning Concept of the Proposed 'Strathcona Place' Residence."

The following explanation was offered: "Inasmuch as City Council recently resolved that the subject proposal for approximately 150-200 dwelling units be developed under Section 35D (now Sections 43-44) of the National Housing Act, it is now essential that the City undertake an investigation of 'need and demand' including a report as to the extent and type of facilities that may be required. This data will serve as a basis for anticipated A.H.C. and C.M.H.C, approval of the project, as well as a planning guide for the architectural consultants to be retained. Considering Council's resolution..., it is incumbent upon us to proceed toward the earliest commencement of the project. The assistance of the Planning Department in this undertaking is therefore requested. The work required would consist of: 1.

Review of existing and proposed senior citizen accommodations and rent structures.

Review of applications and the anticipated demand.

A review of what has been documented to date relative to the total development envisioned.

Determine optimum number of units that may be accommodated on the site.

Determine type of units and facilities required.

Determine desirability of providing a limited number of units for physically handicapped individuals and small families of all ages."

In reply to this request for assistance, Mr. S. C. Rodgers, Superintendent of the Planning Department, on November 8, 1971 agreed to supply planning research assistance as is outlined above.

CHAPTER TWO: SENIOR CITIZEN HOUSING STOCK AND RENTAL RATES The various tables presented in this chapter indicate the extent of senior citizen housing in the City of Edmonton. Table 2A is a summary of the senior citizens' accommodation in the City of Edmonton. The facilities are categorized on the remaining tables according to the following: those developed under various arrangements prior to 1960 (Table 2B); those developed under the "Homes for the Aged Act" and "Master Agreement" between the City and Province (Table 2C); those developed under Section 15 of the National Housing Act (Table 2D); those proposed under Section 15 of the N.H.A. Table 2E); those proposed under Section 43 of the N.H.A. (Table 2F); those administered privately (Table 2G); and special care facilities (Table 2H).

Table 2E notes a project proposed by the Ukrainian Greek Orthodox Parish of St. Johns at 135 Avenue and 102 Street. As of the end of September, 1972, this project had been approved by the Alberta Housing Corporation and is presently being processed by Central Mortgage and Housing Corporation. It will add approximately another 50 self-contained units to the senior citizen housing stock of the city. The sponsor of the other project noted in this table has not yet made a submission to the Alberta Housing Corporation.

The special care facilities listed in Table 2H have been omitted from Map 3.

For the purpose of this report, the City of Edmonton has been divided into five zones see Map 2). Zone 4 is the zone in which the Strathcona Place Residence is proposed and has as its boundaries the entire south side west of the C.P.R. tracks and 106 Street (south of 57 Avenue). Total population and the number and percentage of the population over 65 has been broken down for these zones on Table 21.

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Table 2A Summary of Senior Citizen Accommodation in Edmonton Number Maximum Monthly Rent Number of Units -per person; of Lodge or Self Contained Dormitory Single Double Persons approximate Projects Developed Prior to 1960 Projects Administered Privately Special Care Facilities Projects Owned and Administered by the Greater Edmonton Foundation Projects Developed Under Sec. 15 N.H.A and Sec. 24 A.H.A.

TOTALS

118

244

$40 - $50

187

$73 dormitory; $120 single; $100 double

49 232

140

686

724

245

1281

347

877

538

2478

Project Approved Under Sec. 15 N.H.A

Âą50 units

Project Proposed But Not Approved Under Sec. 15 N.H.A

70-200 units

Project Proposed Under Sec. 43 N.H.A

150-200 units

Source: Research and Long Range Planning Branch City of Edmonton Planning Department 1972

$120 - $270 lodge: $90 single, $80 double, self contained - $50 sing $75 double

lodge: $90 single, $80 double, self contained - $80 single, $55 double

Table 2B

ORGANIZATION

Senior Citizens Projects Developed Under Various Arrangements Prior to 1960 PROJECT

# OF UNITS

LOCATION

# OF PERSONS

RENT (monthly)

Greater Edmonton Foundation*

Sunset Cottages - 7530-83 111 Ave. Virginia Park

32 double selfcontained (duplex)

$40 in a home with no basement

Greater Edmonton Foundation*

Sunset Cottages - 12903-07 Lauderdale 103 St.

12 double selfcontained (duplex)

$50 in a home with basement

Greater Edmonton Foundation*

Golden Cottages

26 double selfcontained (duplex)

$35

95 Ave. $ 81 St.

North Saskatchewan Kensington Court 132 Ave. $ 48 double selfcontained 126 St. Valley Foundation 8 single selfcontained TOTALS

$52 double $42 single

118 double self-contained 244 persons 8 single self-contained (single self-contained 8 persons double self-contained 236 persons)

* Greater Edmonton Foundation is a management organization only. Source: Edmonton Community Housing Organization September, 1972

104

Table 2C Senior Citizens Accommodation Developed Under "Homes for the Aged Act" and "Master Agreement" Between City of Edmonton and Province of Alberta (Owned and Administered by Greater Edmonton Foundation) # OF PERSONS # OF UNITS LOCATION PROJECT ORGANIZATION

AE1TT (monthly)

Greater Edmonton Foundation

Bethany Lodge

6115-92 Ave. 469-0338

30 single lodge rooms 10 double lodge rooms

Greater Edmonton Foundation

Belvedere Lodge

6410-134 Ave. 476-1919

14 18 8 20

single double single double

lodge rooms lodge rooms self-contained self-contained

Greater Edmonton Foundation

Elmwood Lodge

15901-87 Ave. 489-8010

14 18 8 20

single double single double

lodge rooms lodge rooms self-contained self-contained

Greater Edmonton Foundation

McQueen Lodge

10910-142 St. 454-5950

14 18 8 20

single double single double

lodge rooms lodge rooms self-contained self-contained

Greater Edmonton Foundation

Northway Lodge

6205-135 Ave. 476-4530

14 18 14 34

single double single double

lodge rooms lodge rooms self-contained self-contained

132

Greater Edmonton Foundation

Ottewell Lodge

6675-92A Ave. 469-7928

14 18 10 22

single double single double

lodge rooms lodge rooms self-contained self-contained

104

Greater Edmonton Foundation

Rosslyn Lodge

10920-133A Ave. 475-4080

14 18 8 24

single double single double

lodge rooms lodge rooms self-contained self-contained

106

TOTALS

428 # OF PERSONS # OF UNITS 114 single lodge single lodge double lodge 118 double lodge single self contained 56 single self contained double self contained 140 double self contained

Source: Greater Edmonton Foundation September, 1972

LODGE: single: $90 double: $80

SELF CONTAINED COTTAGE: single: double:

$50 $75

686 114 236 56 280

Table 2D

Senior Citizens Accommodation - Sec. 15 N.H.A. (Combined With Sec. 24 A.H.A.)

Developed: ORGANIZATION Greater Edmonton Foundation

PROJECT Kiwanis Place (17 storey hi-rise)

# OF UNITS

LOCATION

46 3 272 68

120 St. and 104 Avenue

single lodge double lodge bachelor 1 bedroom

# OF PERSONS 460

RENT $ 70 bachelor $110 1 bedroom $100/person lodge rooms $ 75 bachelor $105 1 bedroom

Canadian Veterans Southgate Veteran's Villa

5210-106 St. 30 bachelor 5 1 bedroom

Bissel Housing Corporation

Meadowcroft (15 storey hi-rise)

135 St. and 308 bachelor 115 Avenue 112 1 bedroom

Polish Veterans

Polish Canadian Senior Citizens Home

114 Ave. and 40 bachelor 9 1 bedroom 92 Street

$ 70 bachelor $100 1 bedroom

Pentecostal Tabernacle

Central Village

117 St. and 107 Avenue

26 bachelor 22 1 bedroom

$ 80 bachelor $110 1 bedroom

Christian Reform Church

Christian Senior Citizens Society of Northern Alberta

13425-57 St.

5 5 18 18

St. Basil's Parish St. Basil's Senior Citizens Residence Source: Edmonton Community Housing Organization September, 1972

single lodge 69 double lodge bachelor 1 bedroom

108 St. & 70 30 bachelor 11 1 bedroom Avenue TOTALS

532

1028 # OF UNITS 51 single lodge 8 double lodge single self contained 724 double self contained 245

$ 80 bachelor $110 1 bedroom

$ 90 $160 $ 80 $110

single lodge double lodge bachelor 1 bedroom

$ 80 bachelor $110 1 bedroom 1281 # OF PERSONS 51 single lodge 16 double lodge single self contained 724 double self contained 490

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Table 2E Senior Citizen Accommodation (Proposed Section 15 N.H.A.) PROPOSED FOR DEVELOPMENT: 1.

Ukrainian Greek Orthodox Parish of St. Johns; 135 Avenue and 102 Street; -1:50 self contained units

St. Andrews Parish (non-profit corporation to be created), 111 Avenue and St. Albert Trail; minimum of 70 self contained units, possibly over 200. Source: Edmonton Community Housing Organization September, 1972

Table 2F Senior Citizen Accommodation Sec. 43 N. H. A. (Public Housing) APPROVED: - nil PROPOSED: - Strathcona Place (sponsored by City of Edmonton) - 108 Street and University Avenue - 150 - 200 units of self contained accommodation

Table 2G Senior Citizens Accommodation Administered Privately PROJECT

ORGANIZATION

LOCATION

# OF # OF UNITS PERSONS 22 double units 20 single units

RENT (monthly) $125 single $110 double

Ukrainian Catholic Church

11935-65 St. Ukrainian Senior Citizens Home of Holy 479-3458 Eucharist Parish

Anglican Church

Elizabeth House (women only)

11717-93 St. 479-3562

34 single rooms 34 $140

Salvation Army

Sunset Lodge (women only)

11034-124 St. 454-5484

13 double rooms 23 single rooms

Salvation Army

Bonnie Doon Eventide 9310-82 Ave. 466-2692 (men only)

TOTALS

Source:

Edmonton Community Housing Organization September, 1972

$ 80 $ 90 $100 $115

double single shared bath private room and bath

12 private rooms 40 $ 80 private room $ 73 dormitory 7 dorms (up to 4 persons)

35 double rooms 89 single rooms 7 dorms

187 persons (70 double accommodation 89 single accommodation 28 dormitory accommodation)

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Table 2H Special Care Facilities ORGANIZATION

PROJECT

LOCATION

# OF UNITS

It OF PERSONS

RENT

32 rooms contain from 1 to 3 beds

$9.00 per day

6512-134 Ave. 9 rooms (2 beds/room) 475-7933

$6.00 per day

12010 Jasper Avenue 488-4871

$120.00 per month

Privately Owned

O'Meara Lodge (men only)

12425-129 St. 455-6108

Privately Owned

Degen Care Home (men and women)

Canadian National Institute for the Blind

C.N.I.B. Residence Omen and women, blind only)

TOTALS

Source: Edmonton Community Housing Organization September, 1972

30 rooms (1 bed/room)

80 persons

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Table 21 Total Population and Senior Citizen Population of the City of Edmonton by Zone 1956, 1961, 1966, 1971 ZONE

1956(1) # of persons: # over 65: percentage:

63,349 3,316 5%

37,219 3,549 10%

46,318 3,284 7%

31,248 2,227 7%

47,868 2,209 5%

1961 # of persons: # over 65: percentage:

86,755 4,437 5%

36,787 4,127 11%

52,244 3,683 7%

32,290 2,573 8%

72,951 3,230 4%

1966 # of persons: # over 65: percentage:

137,130 6,699 5%

35,888 4,128 12%

76,540 4,641 6%

44,613 3,061 7%

82,754 4,126 5%

1971 # of persons:( ) # over 65:(3) percentage:(3)

146,644 7,332 5%

47,472 6,171 13%

104,975 6,299 6%

66,386 5,311 8%

85,164 4,258 5%

(1) Source for 1956, 1961, 1966 - Dominion Bureau of Statistics (2) Source: 1971 Fall Civic Census (3) Estimated September, 1972

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As can be seen from Table 21, Zone 4 has the second highest percentage of persons over 65 years of age for each of the years. Zone 2, the downtown area, has the highest percentage of senior citizens. Table 2J shows the number of beds and the number of beds per 1,000 population for each of the five zones.

Table 2J The Number of Beds and the Number of Beds/1,000 in Existing Senior Citizen Accommodation, Nursing Homes and Auxiliary Hospitals - 1971 Senior Citizens # of beds

beds/ 1,000

Zone 1

1011

6.89

Zone 2

530

11.16

Zone 3

519

4.94

Nursing Homes # of beds 285 (1) 225 -

Zone 4

1.39

(2) 555

Zone 5

246

2.89

449

TOTALS

2399

AVERAGE

480

Auxiliary Hospitals

beds/ 1,000

# of beds

beds/ 1,000

1.94

100

0.68

4.74

172

3.62

8.36

398 (3)

5.99

5.27

252

2.96

1514 5.45

303

922 4.06

184

2.65

under construction (225 beds) includes 225 bed nursing home under construction includes 200 bed auxiliary hospital under construction

Note that Zone 4 has the lowest number of beds per 1,000 for senior citizen accommodation and is well below the average of all the zones. Guidelines set for nursing homes and auxiliary hospitals are between three and five beds/1,000 for nursing homes and 1.5 beds/1,000 (1) There are no standards for the number of for auxiliary hospitals. (1)

Source: Alberta Hospital Services Commission (currently under review)

20 -

senior citizen beds per 1,000.

In April, 1972, a quick survey was done of applications received for senior citizen accommodation by Greater Edmonton Foundation lodges,

Kiwanis Place and the Southgate Veterans Villa. Table 2K presents the results of this survey.

The number of applications for senior citizens accommodation in the developments surveyed fluctuates rapidly making it very difficult to assess the implications of these applications. No central registry is maintained to record how many places a senior citizen applies to for accommodation. Therefore, the data presented on Table 2K is presented

only as an illustration of the age, sex and income characteristics of applicants to these selected residential facilities.

The age of most applicants was between 65 years and 75 years. Of the 485 applications reviewed, 278 were within this age range and an additional 144 people were over 76 years. Only 60 applicants were under 65 years of age.

The predominant sex of the applicants to these developments was female. The ratio of females to males was approximately three to one. Income data was not available for each application reviewed. That which was obtained is Fresented in Table 2K as an illustration of income characteristics of the applications reviewed.

Table 2K indicates that of the 210 applicants who reported the amount of income they receive, 141 reported their income to be less than $200 per month. There were 344 applicants who reported the source of their income to be the old age pension while 208 reported receiving the guaranteed income supplement. In addition, 238 applicants reported other sources of income.

Table 2K Summary of Applications for Senior Citizen Accommodation G.E.F. Lodges, Lodges, Kiwanis Place and Southgate Veteran's Villa (November, 1971)

INCOME SOURCE

MONTHLY INCOME

SEX

AGE

Guaranteed Old Age Income 65 & 76 & Supplement Other 151-200 )200 Pension under 66-70 71-75 over Male Female $4100 101-150 Greater Edmonton Foundation Lodge Accommodation Total Lodge Total Cottage

43 192

129

138

Kiwanis Place Total Lodge

1 30

109

243

Total Accommodated 11

134

144

147 130

355

Total Hi Rise

Southgate Veteran's Villa

GRAND TOTAL

Source: Edmonton Community Housing Organization September, 1972

344

208

238

- 22 -

Observations on Senior Citizen Housing Stock There are 1,762 dwelling units in the City which are designed for senior citizens. Of these units none are rented on a rent-geared-to-income basis. The majority of units are rented at the maximum rate of $80 for a single person and $110 for a couple. Only dormitories and a few hundred self-contained units are rented for less. The Southwest area of the City (Zone 4) has the second highest proportion of senior citizens in the City but has the lowest number of senior citizen dwelling units. This means that residents who require accommodation must, in the majority of cases, relocate to another section of the City if they are to be successful in obtaining a senior citizen dwelling unit.

•

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:.fi: ... ‘(2-.:' : :.'.'; —0 S. nior. Cifizen, AdicomTnod tion. A Adxiliary Hospital I 8 Nursing 14rne • Ntirsing HPme Uniier Con truction . "

Senior Citizen

Accommodation ly

'in the

Edmonton , 1972 . t•••

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cl SI

Zone "

Source City Planning Department GI

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1972

CHAPTER THREE: POPULATION, INCOME AND COST OF LIVING FOR SENIOR CITIZENS

Population The boundaries of the Greater Edmonton Foundation Area are the limits of the City of Edmonton. Following is a comparison of the number of senior citizens in the Greater Edmonton Foundation Area and in the Province of Alberta. Table 3A Actual and Projected Population of Citizens, 65 Years and Over, in Alberta and Edmonton

Year

Province of Alberta

1961

93,078 1

6.9

18,042

1966

104,010 1

7.1

1971

116,300 2 3 125,255 4 148,000

7.3

22,665 1 3 27,212 3 32,941 3 40,334

1976 1981 1 2

% of Total Population

Greater Edmonton Foundation Area

7.7 8.2

% of Total Population 5.8 5.8 6.1 6.4 6.8

Federal Census

3 Estimate

Department of National Health and Welfare

4 Alberta Population Projections, 1966 - 1991

Table 3A indicates that the number of people over 65 years of age in Alberta and in Edmonton is increasing as a percent of the total population as well as in total numbers. However, the number of senior citizens in Alberta and Edmonton is lower than in many other cities in Canada. Two factors contribute to this fact: first, many senior citizens can afford to retire to a warmer climate; second, the accelerated economic growth which has taken place in Alberta since the 1950's has

-24-

tended to attract younger families. Their presence in the Province has offset the proportion of senior citizens in the population.

Table 3B Metropolitan Edmonton Population Over 65 Years, By Sex and Five Year Age Groups, 1966, 1971, 1976 and 1981.

1981(9) Female Male

1966(1) Female Male

65-69

3,825

4,099

4,908

5,293 6,013 6,661

7,405

8,467

70-74

7,366*

7,996*

3,421

4,050

4,254

5,147

5,136

6,385

75-79

2,437

2,990

2,753

3,570

3,361

4,476

80-84

1,565

1,875 1,714

2,281 1,918

2,697

1,001

1,835

15,525 15,665 19,193 18,821

23,860

940

85+ Sub-total

TOTAL

1971(2) Female Male

1976(2) Male Female

Five Year Age Groups

11,191

12,095

23,286

13,271

1,317

28,796

931

1,533

34,858

42,681

* /0 years and over 1 Federal Census 2 Population Projection for Metropolitan Edmonton, 1971-2001

Table 3B shows that the larger proportion of senior citizens are females. This is becoming more obvious over time as a result of decreasing female mortality rates and constant male mortality rates. The explanation for this phenomenon is complex and relates to the stressful role of the male in our society, which tends to result in lower survival rates for males than for females.

CHAPTER THREE: POPULATION, INCOME AND COST OF LIVING FOR SENIOR CITIZENS

Year 1961

Province of Alberta 93,078

1 1

1966

104,010

1971

116,300 2 3 125,255 4 148,000

1976 1981 1 2

Greater Edmonton Foundation Area

% of Total Population

6.9

18,042 1

5.8

7.1

22,665 1 3 27,212 3 32,941 3 40,334

5.8

% of Total Population

7.3 7.7 8.2

6.1 6.4 6.8

Federal Census

3 Estimate

Department of National Health and Welfare

4 Alberta Population Projections, 1966 - 1991

-25-

Senior Citizen Income Information pertaining to the income of senior citizens is difficult to obtain. The sources used to estimate the income of senior citizens in Edmonton were the data in Table 3C issued by the Department of National Health and Welfare and the income distribution data supplied by Information Canada in Tables 3D, 3E, and 3F. The Department of National Health and Welfare reports the number of people who receive the Old Age Pension in Alberta and the number of people who receive an additional income supplement (Table 3C). In 1970, Information Canada issued the results of a sample survey on the distribution of income among people over 65 years (Tables 3D, 3E, and 3F). Table 3C: Number of Persons Receiving Old Age Security and Guaranteed Income Supplement (G.I.S.), Alberta, 1961-1971

Year 1961 1962 1963 1964 1965 1966 1967 1968 1969 1970 1971

Number of Old Age Security Recipients 60,708 62,658 64,286 65,746 67,245 74,514 82,145 91,118 100,895 112,921 116,359

Number of G.I.S. Recipients n/a n/a n/a n/a n/a n/a 36,526 50,267 53,927 56,892 60,089

n/a Guaranteed Income Supplement began in 1967 Source: Old Age Supplement Office, Department of National Health and Welfare Table 3C indicates that in 1971 there were 116,359 people receiving Old Age Security in the Province of Alberta. Of these, 60,089 people or 53 percent received an additional full or part guaranteed income supplement (G.I.S). Senior Citizens on G.I.S. are eligible to receive up to

-26-

a total of $150.00 (pension of $82.88 and supplement of $67.12) per month for a single person or up to a total of $285.00 per month for a couple if both are pensioners (pension of $82.88 and supplement of $59.62 each). The single pensioner who receives the full $150.00 per month is allowed an additional maximum yearly income of $24.00 and a couple receiving the full $285.00 per month is allowed a maximum yearly income of $48.00 each. Anything considered as income for income tax purposes is counted as income for the purposes of the Guaranteed Income Supplement calculation. During 1971 there were an estimated 27,212 senior citizens in the City of Edmonton and it is estimated that a minimum of 50 percent of these people were receiving full or part income subsidy in the form of G.I.S. That is, approximately 14,000 senior citizens in Edmonton were earning $1,800.00 per year or less. Indeed, this number may be a low estimate if Edmonton is close to the national average. Table 3D shows that over 70 percent of people over 65 years have annual incomes of less than $2,000.00. A more detailed breakdown of this table shows that 56 percent of senior citizens in Canada received less than $1,500.00 per year (this figure does not represent the increases to senior citizen income since 1970).

-27-

Table 3D: Percentage Distribution of Unattached Individuals by Income Groups, Age and Sex, Canada 1967 Income Group

All Age Groups Male Female Total

65 and Over Male Female Total

Under $2,000 $2,001 - $5,999 $6,000 and over

34.2 45.2 20.6

43.0 42.8 14.2

67.5 28.5 4.0

73.0 23.6 3.4

70.8 25.8 3.4

$3,257 $2,601

$2,216 $1,478

$1,960 $1,394

$2,059 $1,427

Average Income Median Income

Source:

$3,881 $3,472

51.4 40.3 8.3 $2,665 $1,920

Dominion Bureau of Statistics, Income Distributions By Size in Canada, 1967, Queen's Printer, Catalogue No. 13-534, Occasional, Ottawa, 1970.

Table 3E compares the distribution of income in Canada between persons of all ages and persons over 65 years of age. The comparison is also made between males and females in these groups. The table shows that 63.5 percent of persons over 65 years of age in Canada receive less than $2,000 per year as compared to 33.0 percent for the general population. Twenty percent of all men in Canada and 55 percent of all women receive less than $2,000 per year as compared to 48.3 percent and 80.8 percent respectively for men and women over 65 years of age. Assuming that the income situation in Edmonton is similar to the national averages, one would say that many of the local senior citizens are well below the established "poverty line".

-28Table 3E Percentage Distribution of Individuals Over 65 Years of Age by Income Groups and Sex

Male 65 & All Over Ages

Income Groups

All Individuals All 65 & Over Ages

Under $2,000 $2,001-$5,999 $6,000 and over

33.0 42.5 24.5

63.5 29.8 6.7

20.3 43.8 35.9

Average Income Median Income

$4,222 $3,553

$2,501 $1,623

$5,334 $4,940

48.3 41.3 10.4

Female All 65 & Over Ages 55.0 40.2 4.8

80.8 16.8 2.4

$3,234 $2,283 $1,621 $2,304 $1,687 $1,210

Source: Dominion Bureau of Statistics, Income Distributions by Size in Canada, 1967, Queen's Printer, Catalogue No. 13 - 534, Occasional Ottawa, 1970.

Table 3E also shows that women generally have very low annual incomes. Fifty-five percent of females of all ages receive less than $2,000 per year and 80.8 percent of females over 65 years of age receive under $2,000 per year. The explanation is that fewer women have been in the labour force long enough to be eligible for retirement pensions.

-29-

Table 3F Percentage Distribution of Individuals by Income Groups, Age, Sex and Marital Status, 1967. MALE Income Group

Married All 65& Over Age Groups

FEMALE Single, Divorced Widowed Married All 65& All 65& Age Over Age Over Groups Groups

Single ,Divorced Widowed All 65& Over Age Groups

Under $2,000

10.4

45.1

49.6

71.1

53.7

92.1

56.3

78.6

$2,000 $5,999

44.9

43.8

40.3

25.3

42.3

7.2

38.0

18.7

$6,000 And Over

44.7

11.1

10.1

3.6

4.0

0.7

5.7

2.7

$2,775

Average Income

$6,210 $3,327

$2,186

$2,241 $1,216

$2,331

$1,791

Median Income

$5,641 $2,228 $2,032 $1,415

$1,752 $1,050

$1,627

$1,324

Source: Dominion Bureau of Statistics, Income Distribution By Size in Canada, 1967, Queen's Printer, Catalogue No. 13-534, Occasional, Ottawa, 1970.

Table 3F makes some enlightening comparisons between people of different marital status by age group and sex. Married men are by far the group which fare the best in income distribution. Only 10 percent of married men have annual incomes of less than $2,000. Married women over 65 years of age are in the worst situation with 92.1 percent receiving less than $2,000 per year.

-30In general, it can be said that people over 65 years of age are by far the largest single group in the under $2,000 per year income category. For the purpose of this report it had to be assumed that the national data presented here was in fact representative of the senior citizens in Edmonton. An investigation of the variation of income levels by regions in Canada showed that the amount of variation was only five percent which does not alter the impact of the data presented here on senior citizens. A more accurate and current report of income will be available when the results of the 1971 Federal Census are published in 1973. Senior Citizen Cost of Living The Canadian Welfare Council conducted a cost of living survey for senior citizens in 1970. The living expenses they reported were adjusted to local requirements and excluded the cost of rental accommodation.

Following are the minimum monthly household expenses considered

necessary for single elderly people and for elderly couples in Edmonton. Table 3G:

Estimated Minimum Monthly Expense Requirements for Senior Citizens in 1970 and 1972 (adjusted) (Excluding Housing) Couple (adjusted) 1970(1) 1972(2)

Expenses

Single (adjusted) 1970(1) 1972(2)

Food Telephone Clothing Health Insurance Recreation and Leisure Personal Needs

$33.00 4.50 9.00 4.90

40.00 4.50 10.00 (3)

65.00 4.50 17.00 9.80

75.00 4.50 20.00 (3)

6.76 20.00

7.00 21.00

11.27 40.00

14.00 42.00

TOTAL

$78.16

$82.50

$147.57

$155.50

(1)

Source: Letter from Greater Edmonton Foundation to City Council, April 27, 1971

Source: Estimates from "Statistics Canada Weekly", (Catalogue No. (2) 11-002). Effective January 1, 1972, senior citizens were not required to pay (3) Alberta Blue Cross or Alberta Health Care Insurance Premiums.

-31-

In April 1971, the Greater Edmonton Foundation reported that 84 percent of the senior citizens who applied for accommodation received the Guaranteed Income Supplement. It is assumed therefore that the majority of senior citizen housing applicants have monthly incomes equal to or less than $150.00 for a single person and $285.00 for a couple. Based on these incomes, the following examples show the amount of money remaining after rents of various amounts are paid.

Table 3H: Examples of Income Balance After Rent Costs for Pensioners on Full Guaranteed Income Supplement Double

Single Income

Rent

$150.00 150.00 150.00

80.00 70.00 60.00

Balance

Income

Rent

Balance

70.00 80.00 90.00

285.00 285.00 285.00

110.00 100.00 90.00

175.00 185.00 195.00

A comparison between the living expense requirements reported by the Canadian Welfare Council and the rent figures above illustrates that the maximum amount that citizens on the Guaranteed Income Supplement can afford to pay for rent and live at the minimum standard is $70.00 for a single person and $110.00 for a couple. Observations The number of senior citizens is increasing in the city and is expected to increase as a total of the population for some time to come. The cost of housing is also increasing, which presents a difficult situation for senior citizens on fixed incomes. Approximately 15,000 senior citizens in the Edmonton area receive only $150.00 per month to house, feed and clothe themselves. Many of these people are living in substandard accommodation which is not designed to accommodate the frailties of elderly people. The limitations of their income very often forces them to sell their homes and furnishings and to seek shelter in less expensive accommodation.

- 32The continually rising cost of living has created very difficult circumstances for senior citizens. Since the number of senior citizens is expected to increase, the situation can be expected to deteriorate even further if attempts are not made to lower their costs of housing.

Estimating the number of elderly citizens who "need" improved accommodation is a difficult task and at this point, speculative at best. The "need" for accommodation is dependant upon several factors including income, services, location, facilities and health. In addition, the actual demand for this type of senior citizen housing would vary according to the facility depending on all these factors. Since there is insufficient information available at present about the condition of housing for senior citizens in the low or modest income levels, it is impossible to estimate accurate need and demand for a project such as Strathcona Place. Perhaps the best method of determining the demand for this type of facility is to carry out an extensive survey of senior citizens in the area to determine if they want to move into the facility proposed.

Although a firm estimate of the number of elderly people who need this type of housing accommodation is not available, there is ample evidence to support the development of a 150 to 200 unit residence to bring the accommodation standards up to those specified by the Provincial Government. It is suggested that reliable need and demand estimates can only be done in conjunction with a larger housing inventory study which would be based on the most recent Federal Census and the planning information system currently being completed by the City of Edmonton Planning Department.

CHAPTER FOUR: STRATHCONA PLACE CONCEPT The proposed location for the Strathcona Place Senior Citizens Residence and adjacent nursing home is the property between 108 and 109 Streets and 76 and University Avenues, commonly referred to as the Queen Alexandra Site. The Site area is approximately 7.13 acres of which 3.42 acres are City owned and 3.71 acres are privately owned. Road widening requires 0.5 acres, leaving a net developable area of 6.8 acres. Planned for the site is a community service centre (already in operation), a residential senior citizens facility and a health care centre. The Strathcona Place Senior Citizens Centre is already operating on the site and provides lunches, dinners and recreational facilities to senior citizens of the area. Also proposals have been made to close â&#x20AC;˘

off University Avenue between 108 and 109 Streets so as to incorporate an already developed park into the site. Other advantages of the Queen

â&#x20AC;˘

Alexandra Site are its proximity to major bus routes and to the shopping and entertainment facilities along 109 Street and Whyte Avenue, three blocks to the north. Existing facilities close-by include a drug store, a post office, a grocery store, a butcher shop, a barber and beauty shop and several churches. The approximate number of units suggested for the residential facility is 150 to 200 units. This suggestion is based on an evaluation of the site carrying capacity and the economics of optimum development size for associated food, recreation, and health services. Experience has also shown in other developments that this size is the optimum for management.

Assuming 80% of the units to be one person units and 20% to be two person units, this would give between 120 and 160 self contained units and 30 to 40 one bedroom self contained units. Using the 120 self contained and 30 one bedroom self contained split, a total of 180

-34persons (120 plus 60) would be accommodated. The approximate area of the site would be 1.2 acres, giving a density of 150 persons per acre. If the 160 single self contained and 40 one bedroom self contained split is used, a total of 240 persons (160 plus 80) would be accommodated. Using the same approximate area, the density would now be 200 persons per acre. Parking is proposed at the rate of one stall for every four units.

A memorandum to Chief Commissioner P. F. Bargen, dated July 6, 1970 and signed by D. Milne, Social Planning Director, Social Service Department, and G. N. Strickland, Director of Program Resources, Parks and Recreation contains the following:

"The development of an auxiliary hospital/nursing home/ senior citizens residence related to the centre (Recreation Centre - author's note) would make possible modifications in service not now available in institutional and residential arrangements such as minimal nursing supervision of persons who continue to remain in residential accommodation, easy transition from residential to institutional accommodation as need dictates, effective community outreach services and economics of operation due to multiple usage of facilities e.g. kitchens." The advantage of such an adjacent facility is in the easy transition from residence to nursing home and back again. For those elderly who are ill, being taken from their familiar surroundings and friends to a distant nursing home can be a traumatic experience. Closeness to friends and home could be preserved if the nursing home was on the same site as the residence. Preventive health services, a suggested use for the Community Service Centre, could be an outreach service of such a nursing home. This service could include regular medical examinations, a foot-care clinic, assistance with dressings as required, supervision of the administration of drugs and injections, physiotherapy on a regularly scheduled basis and regular nursing supervision. The intent here is to provide minimal health services emphasizing preventive health and to assist those needing help to remain as independent as possible outside of an institution.

- 35 -

A Central Mortgage and Housing Corporation publication entitled "Housing the Elderly" suggests that ten per cent of the units in any residence intended for senior citizens should be designed for those who require assistance in walking but who can otherwise lead independent lives. The units for these individuals should have easy access, preferably be located on the ground floor and be close to communal facilities which are provided. They should be the same as others in the residence except doors should be wider, door sills should be omitted and the convenience of the bathroom should be improved. The bathroom should be designed on a larger scale with the distance between fixtures increased, grab-bars provided along the wall, non-slip surfaces on the floor and a bathtub with a flat bottom and a non-slip surface. Overhead showers are generally not favored for the elderly, this is especially so for those who are handicapped. Observations on the Strathcona Place Concept The concept of incorporating residential, social and health care services for senior citizens on one site is an innovative one and can be recommended for several reasons. First, the centre becomes the focus for senior citizens living in the surrounding community as well as for those people living on the site. Thus, common problems of the elderly can be dealt with, at a community level. Secondly, the on-site health care and social services lacilities provide easier access and therefore better access to services which are normally difficult for many elderly to obtain.

As the situation exists now, the demand for senior citizen accommodation is so acute that if an elderly citizen becomes ill while a resident of a senior citizens home, he or she is in jeopardy of losing his accommodation while hospitalized. This means another separation from the familiarity of home and friends. It also means separation from spouses if the person is married. To often, the hospital is located where it is

-36difficult for friends and spouses to visit. The on-site health care services will, in many cases, allow the patient to be returned home and receive convalescent care within the home environment or among acquaintances from the centre.

The Queen Alexandra site is admirably suited to this type of development. It is located at the periphery of an established residential area, is near major transportation routes to the city centre and shopping facilities and is still part of the older area of the city from which many potential elderly residents will be drawn. In summary, it is suggested that the proposed residential development contain about 150 to 200 units of which approximately 80% be single self contained units and the remainder be one bedroom units suitable for couples. It is further suggested that about 10% of the total units be designed to accommodate physically handicapped individuals. The site is also recommended for consideration for a nursing home.

CHAPTER FIVE: REVIEW OF LEGISLATIVE PROGRAMS AND FINANCIAL ALTERNATIVES

Legislative Programs To understand the existing alternatives available for planning, building and maintaining senior citizen accommodation, it is essential that there be a clear understanding of the legislation that applies to this type of housing. Essentially there are two techniques which apply in developing this type of housing. The first technique is the senior citizen housing approach under Section 15 of the National Housing Act and in conjunction with Section 24 of the Alberta Housing Act. The second technique is the public housing approach under Section 40 of the National Housing Act and Section 22 of the Alberta Housing Act or Section 43 of the National Housing Act in conjunction with Section 23 of the Alberta Housing Act. These programs are described in the following pages and summarized on Table 5a and Table 5b. 1. Senior Citizen Technique Following are excerpts from the National Housing Act and the Alberta Housing Act which apply to this technique of developing senior citizen housing projects. a)

The National Housing Act:

Section 15 (in part) (Refer to Summary Table 5a) 1. The corporation (C.M.H.C.) may make a loan to any person for the purpose of assisting in: a) the construction, purchase or improvement of a low-rental housing project. 2. A loan made under the authority of this section shall: b) not exceed ninety-five percent of the lending value of the project. 3. A loan may be made under this section only to a person who has entered into a contract with the Corporation that provides that:

.41A...A64,-4,0141

--04r

Ta'ale SA SUMMARY OF LEGISLATION AFFECTING SENIOR CITIZEN ACCOMMODATION Section 43 N.H.A. (Combined with Section 23 A.M.A.)

Section 15 N.H.A. (Combined with Section 24 A.H.A.) Who Undertakes the Project?

Alberta Housing Corporation

Non-Profit Organization (includes municipality)

Senior Citizens Foundation

Alberta Housing Corporation Rent-geared to income (from 14% to a max. of 25% of gross family income (some exceptions)-Rent approx $40 per month

Municipality

Section 40 N.H.A. (Combined with Section 22 A.M.A.) FederalProvincial Partnership

RENT (maximumper person per month)

LODGE: Single: $90 Double: $80 SELF CONTAINED: Single: $80 Double: $55

OWNERSHIP

Alberta Housing Corporation

Non-profit organization

Senior Citizens Foundtn.

MANAGEMENT

Greater Edmonton Foundation (under agreement with Alta. Housing Corp)

Non-profit organization

Senior CitiEdmonton Housing Authorzens Foundtn. ity(2)(under agreement with Alta. Housing Corp)

Edmonton Hous- Edmonton Housing ing Authority2 Authority (under agrmt. with City)

FINANCING

ER.

Self-contained: -non-profit org.-5% cash equity -province - 33 1/3% grant -C.M.H.C. - loan for balance Lodge -province - 50% grant -non-profit org.-50% cash equity

Foundtn-5% -10% provincial equity equity -90% C.M.H.C. loan Province33 1/3% grant C.M.H.C. loan for balance

-10% municipal -10% municipal -15% provincial equity -75% federal -90% C.M.H.C. loan

Self-contained: -non-profit org.-resp. for all operating losses (if any) LODGE: - under agreement Foundation (municipality) resp. for operating losses

-Municipality resp. for all operating losses

Kiwanis Place -City grant of land (approx. 10%) -Prov. equity-33 1/3% -CMHC loan - balance -lodge portion fin. entirely by A.H.C.

OPERATING a. Kiwanis Place -municipality resp. for all operating losses

same

Alberta Housing Corporation Municipality

operating losses shared under agreement: CMHC-50% AHC-50% (ARC may require municipality to contribute to losses)

(1) The Greater Edmonton Foundation is the only "senior citizens foundation" in the City of Edmonton (2) Project could be managed by owner.

-operating loss shared under agreement: CMHC-50%,AHC-40 Munic.-10%

same

Federal - 75% ownership Provincial -15% " Municipal - 10% "

-operating losses shared under agreement CMHC - 75% ARC - 15% Municipality - 10%

Source: Research Branch, Planning Dept. October, 1972

- 39 -

a) the rentals to be charged shall be rentals that the Corporation deems to be fair and reasonable having regard to the probable family income of the leasees of each family housing unit. b) The Alberta Housing Act: Section 24 (in part) (Refer to Summary Table 5a) 1)

The Corporation (A.H.C.) may undertake a senior citizen housing project.

For the purposes of this section, the Corporation may: b) design and construct senior citizen housing accommodation e) borrow any money required for a project, and f) sell, lease or dispose of any senior citizen accommodation or project

3) The Corporation may enter into agreements with non-profit organizations or senior citizen foundations for: a) the development of senior citizen housing projects and, b) the provision of a grant towards the total capital cost of the project 4)

In this section, a) "non-profit organization" means an organization wholly owned by the Government of Alberta, by a municipality or any agency thereof, or an organization constituted exclusively for charitable or benevolent purposes, ...

Explanation Under Section 15 (N.H.A.) in combination with Section 24 (A.H.A.) a project for senior citizen accommodation may be undertaken by either of three separate bodies: the Alberta Housing Corporation, a non-profit organization (including a municipality) or a senior citizens foundation. Ultimate ownership of the project depends on its initiator - whoever undertakes the project owns it.

Table 5a entitled "Summary of Legislation affecting Senior Citizen Accommodation" shows in detail the rent, ownership, management, financing

-40-

and operating characteristics depending on who undertakes the project. As an example, we will discuss the case where a non-profit organization (including a municipality) undertakes the project. Under the terms of reference of the legislation and regulations, for self contained accommodation, the Provincial Government will provide a 33 1/3% grant for the capital cost of the project, the organization provides a minimum of 5% cash equity, and Central Mortgage and Housing Corporation provides a long term low interest loan to the non-profit organization for the balance. For lodge accommodation, the Provincial Government will provide a 50% grant and the non-profit organization must provide the remaining 50% in a cash equity. In either case, the nonprofit organization (i.e. municipality) is responsible for the management, maintenance and any operating deficits that are incurred. Often, senior citizens incomes are fixed and minimum rents charged are more than many of the residents can afford to pay and still live comfortably. As a condition to the provincial grant, the maximum rents permitted are as follows: Bachelor Suite One Bedroom Single Bedroom(Lodge) Double Bedroom(Lodge)

$ 80.00 110.00 ($55.00 per person) 90.00 (meals included) 160.00 (meals included, $80 per person)

Thus, under Section 15, N.H.A., senior citizens on minimum incomes cannot afford these less than market but high rent charges and non-profit organizations or municipalities cannot afford to carry the operating loss where affordable rents are required. 2.

Public Housing Technique The public housing technique which utilized Section 40 N.H.A. in

combination with Section 22 A.H.A. is summarized on Table 5b but is not

- 41-

described here because it is a time consuming approach which is cumbersome to implement. The technique is a partnership arrangement between the three levels of government with the majority of development decisions being made by C.M.H.C. in Ottawa. Although this technique has been used to develop some public housing in the City it is not favored for future consideration. The more desirable technique because of its flexibility is to use Sections 43-44 N.H.A. in conjunction with Section 23 A.H.A.

a) The National Housing Act Section 43 (in part) (Refer to Summary Table 5a) 1) The Corporation (C.M.H.C.) may make a loan to a province, municipality or public housing agency for the construction or acquisition of a public housing project. 2) A loan made under the authority of this section shall b) not exceed ninety percent of the cost of the project as determined by the Corporation Section 44 (in part) (Refer to Summary Table 5a) 1) The Corporation may enter into an agreement with any province, municipality or public housing agency operating a public housing project whereby the Corporation will make contributions for the purpose of assisting it to provide housing accommodation to individuals or families of low income at rentals that are less than the rentals required to meet the cost of amortizing and operating the public housing project. 2)

An agreement entered into under the authority of this section shall provide that: a) the Corporation will contribute annually to the province, municipality or public housing agency an amount calculated in the manner provided in the agreement, and in any case not exceeding fifty percent of the annual operating losses incurred by it, as determined by the Corporation.

b) The Alberta Housing Act Section 23 (in part) (Refer to Summary Table 5a) 1)

When the Corporation (A.H.C.) or a municipality enters into an agreement with the Canada Corporation (C.M.H.C.)

-42under section 44 of the Federal Act, the Corporation (A.H.C.) may pay up to 50 percent of the annual operating losses and may require the municipality to pay the remainder of the losses that are not paid by the Canada Corporation (C.M.H.C.).

Explanation Using Sections 43 and 44 N.H.A. and Section 23 A.H.A., a senior citizens project may be undertaken either by the Alberta Housing Corporation or by a municipality. The Canada Corporation (C.M.H.C.), under Section 44 N.H.A. agrees to participate in the operating deficit to a maximum of 50 percent per year and under Section 23 A.H.A., the Provincial Government agrees to contribute up to 50 percent per year toward the operating deficit. In practise, the Alberta Housing Corporation has agreed to participate to the extent of 40 percent of the operating losses annually leaving 10 percent participation for the municipality. The advantage of using this technique to finance and operate senior citizen housing is that rental rates need not be fixed as they are in the senior citizen housing technique described earlier. Using the public housing technique for senior citizens projects means the rental rates could be adjusted on a "rent-geared-to-income" basis which benefits senior citizens on low fixed annual incomes. Financial Implications The financial implications of using the various techniques described above are most significant when the impact they have on providing accommodation for senior citizen is reviewed. Since the intent of these programs is to assist elderly people on low fixed incomes to obtain adequate shelter it is recommended that the technique which accomplishes this end be given primary consideration. The ability of sponsoring agencies to subsidize the operating deficits to accomplish this objective must also be considered.

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Table 5B A COEPARISCC OF CWHERSHIP AND FINANCING TECHNIQUES AVAILABLE UNDEF . 1.81 LI I I.' OF A AII UNIT SELF CCNTAIIIED SENIOR CITIZENS HOUSING PROJECT - CAPITAL COST

SENIOR CITIZENS HOUSING TECHNIQIES A.

PROJECT SPONSORED BY ALBERTA HOUSING CORPORATION UNDER SEC. 15 N.H.A. & SEC. 24 A.M.A.

CAPITAL COST Provincial Equity 1/3 C.M.H.C. Loan 2/3

S 833,333 1.666.667

S 134,400 57 ROO

INCOMEI 160 Bachelor Suites ,25 70/mo. 40 1 Bedroom 55110/mo.

187.200. Average Income 578 per unit/mo.

S 134,400 52 ROO

S 252.1652 Average Expense $108.27 per unit/mo.

72,652

$ 250,000 2 250_00Q

$2.5ML11011 INCOME2 160 Bachelor Suites 5532 min. 40 1 Bedroom Suites a562 min.

61,440 0.760

$2 son ono INCOME2 160 Bachelor Suites @532 min. 40 1 Bedroom Suites @562 win.

61,440 29.760

EXPENSE -1";;;-3 5 34,200 Administration 20,760 Operating 48,000 Maintenance 9,240 Replacement Reserves 15,000 Repayment Loans (61 2/3% of Cap.Cost)5 122.703 S 244 901

EXPENSE 77:;Wiz $ Administration Operating Maintenance Repayment Loans (100% of Cap.Cost)5

60,000 20,760 48,000 9,240 2O3.434

EXPENSE -Y;;;s7 $ 60,000 Administration 20,760 Operating 48,000 Maintenance 9,240 199,281 Repayment Loans (100% of Cap.Cost)5

341.434

Average Income $38 per unit/mo.

MUNICIPALITY 100% PROVINCIAL FEDERAL

Average Income $38 per unit/mo.

Average Expense $142.26 per unit/mo. SUBSIDY REQUIREMENT $

62,703

62. 703 Average Subsidy $30.27 per unit/mo.

CAPITAL COST Municipal C.M.H.C. Loan 90%

$ 21.224

SUBSIDY REQUIREMENT S

S 250,000 375,000 1)475,000

Average Expense 5104.12 per unit/mo.

SUBSIDY REQUIREMENT

CAPITAL COST Municipal 10% Provincial 155 Federal 755

PROJECT SPONSORED BY CITY OF EDMONTON D. UNDER EXISTING MUNICIPAL COMMUNITY HOUSING POLICY AND SEC. 43 N.H.A. & SEC. 23 A.M.A.

S 117.222 Average Income $78 per unit/mo.

EXPENSE -T-a-Te;3 S 34,200 Administration 20,760 Operating 48,000 9,240 Maintenance Replacement Reserves 64 15,000 137_652 Repayment Loans (2/3 of Cap.Cost)5

MUNICIPALITY 1001 PROVINCIAL FEDERAL

S 833,333 125,000 541 667

S2500 non

$, 500 000 INCOME1 160 Bachelor Suites @$ 70/mo. '51.10/mo. 40 1 Bedroom

PUBLICWUING TECHNIQUES PROJECT SPONSORED BY FEDERAL PROVINCIAL (MUNICIPAL) PARTNERSHIP UNDER SEC. 40 N.H.A. & SEC. 22 A.M.A.

PROJECT SPONSORED BY THE CITY OF EDMONTON INDER SIC. 15 N.H.A. & SEC. 24 A.M.A. CAPITAL COST Provincial Grant 1/3 Municipal Equity 52 C.M.H.C. Loan

000

Average Subsidy $26.12 per unit/mo.

NOTES 1. Based on rents currently in effect at Kiwanis Place - bachelor suites let at 510 per month below maximum rate permitted by Alberta Hospital Services Commission. 2. Based on rent-to-income scale. Assume that majority of units will be occupied by persons receiving minimum old age pension and guaranteed income supplement, ie. $150 per month single or 5285 per month for married couples. Persons with higher incomes would pay higher rent on a percentage of gross income.

MUNICIPALITY 105 PROVINCIAL 15% FEDERAL 75%

$ 337.281 Average Expense $)4n.3l per unit/mo. SUBSIDY REQUIREMENT

Unit/month 5 10.43 S 25,023.40 15.63 37,535.10 78.20 187.675.50 %akaยง s

Average Subsidy 5104.26 per unit/mo.6

MUNICIPALITY 10% PROVINCIAL 402 FEDERAL 502

Unit/month $ 24,608.10 5 1.0.25 41.01 98,432.40 52,22 173,040.50 $102.5j 370,nRI on

Average Subsidy $102.53 per unit/mo.6

3. Annual municipal tax levy only - Provincial portion exempted. 4. Annual municipal and provincial property tax levy. Provincial portion could be exempted if project classified as a Home for the Aged as prescribed by Provincial Legislation. Net result would decrease annual expenses and subsidy requirements. 5. Repayment Loans computed over 50 year term at interest rates currently in effect for each level of government, Municipal-7 3/4%, Provincial-8 3/4%, Federal 7 5/82. 6. Subsidy directly related to minimum incomes. Any increase in income characteristics of tenants would be reflected in lower subsidy. Source: E.C.H.O. October, 1972

-44Table 5b: "A Comparison of Ownership and Financing Techniques... For the Development of a 200 Unit.. .Senior Citizens Project", illustrates the relative annual operating costs, rental rates and subsidy requirements by the three levels of government using the various development techniques described. The example used is a hypothetical 200 unit development with an estimated capital cost of $2,500,000 such as might be expected in the proposed Strathcona Place project. On the basis of the calculations shown on Table 5b, the lowest possible rental rates can be obtained by using Sections 43-44 N.H.A. and Section 23 A.H.A. Similarily, the best financial arrangement for the City is obtained by using this technique. Also, any increase from the minimum chargeable rent would make the project additionally attractive because that increase would lower the subsidy contribution per unit for all levels of government. Using this technique to develop senior citizens housing would allow the managing authority of a project, such as that proposed for Strathcona Place, to select tenants on the basis of a number of factors which constituted "need" - the predominant factor being income. The potential tenants could be required to sign a statutory declaration on the amount of their income and assets. Rental rates would then be established from 14 percent to a maximum of 25 percent of the gross income. Alternatively, rents could also be fixed at a low flat rate which would be the same for all tenants. In the experience of the Greater Edmonton Foundation and surveys undertaken in the City, there is ample evidence to suggest that Edmonton needs senior citizens accommodation for those persons or couples with modest incomes and a degree of need as well as for those senior citizens subsisting on minimum incomes. Current developments are sufficient in number to greatly alleviate the demand for accommodation of those persons and couples with incomes who are able to afford the rental rates of $80 to $110 per month. However, aside from the City's efforts

-45in attempting to initiate the Strathcona Place project on a rentgeared-to-income approach under Section 43 N.H.A., existing Provincial housing policy does not appear to recognize that a growing proportion of senior citizens cannot afford to pay rents of $80 to $110 per month. It is therefore suggested that the City approach the Provincial Government with the recommendation that as long as a need for housing senior citizens of modest income exists, the Provincial Government encourage non-profit organizations to develop such accommodation through assistance of provincial grants to capital costs. However, the Section 15 N.H.A. technique with provincial equity input of one-third of the capital cost should not be employed for projects undertaken by Governments or agencies of governments in this province. This technique creates competition between agencies of government and private non-profit organizations aspiring to assist their community in providing housing accommodation for the elderly. It is worthy to note that substantial numbers of senior citizen projects have been built under the public housing technique in other provinces, particularly under the Sections 43-44 approach. Appendix A "Excerpts From C.M.H.C. News Releases" lists many of those projects approved during 1972. The examination of rental accommodation for Edmonton's senior citizens on a minimum income shows that a void exists. This void can only be filled through the development of a senior citizen residence under the public housing technique (i.e. Sections 43-44 N.H.A.) with rents-geared-to-income and operating costs shared by the' three levels of government.

-46APPENDIX A: EXCERPTS FROM C.M.H.C. NEWS RELEASES Re: Development of Senior Citizen Housing Under Public Housing Provisions of N.H.A. - Canada NOVA SCOTIA September 1972 - Halifax

1. 11-story highrise apartment building containing 175 one-bedroom units approved under Section 40 N.H.A. 2. 9-story building containing 135 one-bedroom units approved under Section 40 N.H.A. 3. Highrise containing 217 one-bedroom units approved under Section 40 N.H.A.

"This latest approval brings to more than $40 million the value of federal government funds invested in the Halifax area during the past four years to provide housing for low-income families and elderly persons. Roughly one-half of these funds have been in the form of long-term low-interest loans to non-profit corporations. The other half of the funds have been in the form of contributions which are provided under federal-provincial cost-sharing arrangements for the production of public housing for senior citizens or the low in income. Activity in the Halifax area during the past four years under these programs has resulted in the provision of more than 3,000 dwelling units and hostel accommodation for a further 280 persons." September 1972 - New Waterford

2 one-story motel-type buildings containing 21 one-bedroom units approved under Section 40 N.H.A.

September 1972 - Sherbrooke

20 one-bedroom one-storey row housing units approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50 percent of operating losses. Average rent anticipated at $60.00 per month. Note: On the basis of the above rent, it is surmized that the units will be rented to couples in receipt of minimum old age pension, i.e. anticipated rent at $60 per month based on percentage of income. September 1972 - Lawrencetown

20-unit project consisting of 9 onebedroom row housing and 11 apartment units, approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. Average rent anticipated at $60 per month.

-47-

"In Nova Scotia, during the period 1968-1971, more than $5.4 million in federal loans have been approved under the public housing features of the National Housing Act providing a total of 413 dwelling units for families of low income and senior citizens." September 1972 - Glace Bay

One and two-story buildings containing 48 one-bedroom units approved under Section 40 N.H.A.

"The development will be undertaken under the terms of the National Housing Act and the Nova Scotia Housing Development Act. Programs aimed at the production of public housing projects for families of low income and elderly persons have been a long-time feature of the National Housing Act. In the four year period 1968-1971, total federal loans for such projects in the Province of Nova Scotia accounted for 2,041 housing units for a total federal investment of more than $26.1 million." NEW BRUNSWICK October 1972 - Campbellton

One-story row housing units containing 8 one-bedroom and 2 twobedrooms approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. "In New Brunswick, during the period 1968-71, more than $23.1 million in federal loans have been approved under the public housing features of the National Housing Act providing a total of 1,731 dwelling units for families of low-income and senior citizens." N.W.T. July 1972 - Hay River MANITOBA August 1972 - St. Boniface

7 one-bedroom and 9 bachelor suites approved under Section 40 N.H.A. 3-story apartment building containing 6 one-bedroom and 29 bachelor units approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. September 1972 - WinniEtg

13-story apartment building containing 119 units made up of one two-bedroom, 24 one-bedroom and 94 bachelor suites, approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. Average rent anticipated at $40 per month. Note: based on rent-to-income scale

-48"During the four-year period 1968-71, total federal loans approved under the public housing features of the National Housing Act in the Province of Manitoba accounted for 4,762 dwelling units and 80 hostel beds for a total federal investment exceeding $55 million." SASKATCHEWAN October 1972 - Biggar

One-story building containing 24 one-bedroom units approved under Section 40 N.H.A.

October 1972 - Moose Jaw

Highrise apartment building containing 93 one-bedroom units approved under Section 40 N.H.A.

August 1972 - Melfort

23 self-contained one-bedroom apartments approved under Section 40 N.H.A.

October 1972 - Gravelbourg

24 self-contained one-bedroom apartments approved under Section 40 N.H.A.

"Programs aimed at the production of public housing for families of low income and senior citizens have been a long-time feature of the National Housing Act. In the four-year period 1968-71, total federal loans for such projects in the Province of Saskatchewan accounted for 1,228 units for a total federal investment of more than $13.5 million." ONTARIO October 1972 - Walkerton

2-story apartment building containing 15 one-bedroom units approved under Section 43 N.H.A.

Hanover

2-storey apartment building containing 14 one-bedroom units approved under Section 43 N.H.A.

Stoney Creek

5-story apartment building containing 1 two-bedroom unit and 42 one-bedroom units approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. Average rent anticipated at $40.00 per month. August 1972 - Ottawa

14-story apartment building containing 1 two-bedroom and 243 one-bedroom units approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. Average rent anticipated at $40.00 per month with a per unit per month loss of $100.

-49-

July 1972 - Ottawa

13-story apartment building containing 1 two-bedroom and 199 one-bedroom units approved under Section 43 N.H.A.

Average rent anticipated at $40 per month. C.M.H.C. will provide $130,100 annually to cover part of the operating costs. September 1972 - Rainy River

2-story apartment building containing 15 one-bedroom units approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. Average rent anticipated at $40.00 per month. August 1972 - Scarborou0

14-story building containing 39 onebedroom and 307 bachelor suites approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. Average rent anticipated at $42 per month. August 1972 - Sudbury

Port Colborne

4-story apartment building containing 1 two-bedroom and 100 one-bedroom units approved under Section 43 N.H.A. 4-story apartment building containing 1 two-bedroom and 43 one-bedroom units approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. Average rent anticipated at $40.00 per month. July 1972 - Niagara Falls

10-story apartment building containing 1 two-bedroom and 72 one-bedroom units approved under Section 43 N.H.A.

Tillsonburg

2-story apartment building containing 44 one-bedroom units approved under Section 43 N.H.A.

Preston

2-story apartment building containing 39 one-bedroom units approved under Section 43 N.H.A.

C.M.H.C. will provide grants up to 50% of operating losses. Average rent anticipated at $40.00 per month. Edmonton Community Housing Organization November 16, 1972

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BIBLIOGRAPHY Alberta Housing Corporation, "Senior Citiznes Accommodation and Alberta Housing Corporation", A.H.C., Edmonton, (no date). Alberta Housing Corporation, Senior Citizen Housing, Alberta Hospital Services Commission, Edmonton, (no date). Cappon, Daniel, "Mental Health in the High Rise", Ekistics, Volume 196, (March), 1972, pp. 192-195. Central Mortgage and Housing Corporation, Canadian Housing Statistics, (1970), (1971), Ottawa. Central Mortgage and Housing Corporation, Housing the Elderly: Design of the Unit, C.M.H.C., Ottawa, (no date). The City of Edmonton, Social Services Department, "Edmonton Services to the Elderly: 1969", The City of Edmonton, Edmonton, 1970. Dominion Bureau of Statistics, Income Distributions 12.y. Size in Canada, 1967, Catalogue No. 13-534 Occasion. Ottawa, December, 1970. The Greater Edmonton Foundation, "The Annual Report", March 29, 1972. Hooson, W. K. "Study of the National Housing Act", The City of Edmonton, Management Services Department, Edmonton, October, 1969. Housing and Finance Agency, Proceedings of the Interfaith Conference on Housing for Senior Citizens, Office of the Administrator for the Housing and Finance Agency, Washington D.C. April 20-21, 1964. 75 pp. Michelson, William, "The Sociological Myths of High Rise Living". Ontario Association of Housing Authorities, Good Housing For Canadians. Ontario Association of Housing Authorities, Toronto, 1964, 126 pp. Social Planning Council of Metropolitan Toronto, A Preliminary Study of the Social Implications of High Density Living Conditions, Social Planning Council of Metropolitan Toronto, Toronto. April 1966, 35 pp. U. S. Department of Housing and Urban Development, Life Safety From Fire: A Guide for Housing the Elderly, Federal Housing Administration, Washington D.C., 1967, 90 pp. Urban Renewal and Low Income Housing Wekerle, Gerda and Edward Hall, "High Rise Living: Can the Same Design Serve Young and Old?", Ekistics. Volume 196, (March), 1972, pp. 186-191.