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Strategy to Dave op Affordable Edmonton. Planning a
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Strategy To Develop Affordable/Social Housing On City Owned Properties In Rossdale and Cloverdale
2542.1a .E3 :R677 1992
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PLANNING AND DEVELOPMENT
Approved by City Council March 10, 1992
A STRATEGY TO DEVELOP AFFORDABLE/SOCIAL HOUSING ON CITYOWNED PROPERTIES IN ROSSDALE AND CLOVERDALE
Planning and Development
LIBRARY
The City of Edmonton
Table of Contents Approved Strategy, as amended by City Council, March 10, 1992
page 1
Background Reports
page 5
Summary of Public Participation Process
page 6
Report, November 20, 1991
page 7
Report, September 12, 1991
page 9
Strategy, as proposed
page 11
Housing Mix Statistics
page 13
Social Housing Organizations Consulted
page 14
Social Housing Policies in the Area Redevelopment Plans
page 15
Community Comments and Questionnaire results
page 19
For further information regarding this strategy, please contact: River Valley Development Group Planning and Development Department 3rd Floor, The Boardwalk 10310 - 102 Avenue Edmonton, Alberta T5J 2X6 Phone: 496-6127
Printed On Recycled Paper
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A STRATEGY TO DEVELOP AFFORDABLE/SOCIAL HOUSING ON CITYOWNED PROPERTIES IN ROSSDALE AND CLOVERDALE
At the regular meeting of City Council held March 10, 1992 the following motion was passed: That the following strategy to develop affordable/social housing on City-owned properties in Rossdale, Cloverdale, Centre Town and Scona East be approved, as follows: 1.0 LAND 1.1
Rossdale These lands shown on Map I be reserved for the development of affordable/social housing.
1.2
Cloverdale These lands shown on Map II be reserved for the development of affordable/social housing.
1.3
Scona East (includes Centre Town) No appropriate City-owned properties are available for affordable/social housing.
2.0 PROCESS 2.1
That the City-owned lands in Rossdale and Cloverdale designated for affordable/social housing as shown on Maps I and IT be sold or leased for such purpose.
2.2
That the sale or lease of City lands for social and affordable housing may be subsidized by Council based on specific annual budget allocations.
2.3
That the reserved lands be advertised for affordable/social housing inviting interest from "sponsors".
2.4 That Ross Flats Apartments building in Rossdale be transferred to Edmonton Non-Profit Housing Authority for managing it for affordable/social housing. 2.5
That the subject sites be part of the Long Term Affordable/Social Housing Plan being developed by a joint committee of the City and the Province. 1
2.6
That the Community and Family Services Department negotiate sale of these lands for affordable/social housing to "sponsors" and present reports to Executive Committee for approval; and Planning and Development Department assist on Land Use-Bylaw and River Valley Community Issues.
2.7
That if no agreement is reached on the sale of subject lands for affordable /social housing by December 31, 1994, due to lack of interest by sponsors or non-availability of Provincial and Federal Government subsidies or grants, then the subject lands be reassessed for sale.
3.0 DEFTNMONS
2
Affordable Housing:
Housing for households which paid 30% or more of income for shelter and which had an annual income of less than $30,000 (must reflect annual changes required to meet subsidy requirements).
Sponsor:
A non-profit housing society or non-profit housing cooperative or public housing agency, that is seeking to develop an afforable /social housing project and is prepared to make a long term commitment to the efficient management of the facility.
ENCLOSURE I MAP I
ROSSDALE
AREA REDEVELOPMENT PLAN(A.R.P.) BOUNDARY
—
c= CITY OWNED LAND FOR SALE
CM
CITY OWNED LAND SOLD SINCE APPROVAL OF A.R.P.
I C
) LANDS DESIGNATED FOR SALE FOR AFFORDABLE/SOCIAL HOUSING FOR A PERIOD OF TWO YEARS
V , WEST ROSSDALE DRAFT RAN PROPOSES THESE LANDS AS PARKLAND • • • • 1:100 YEAR FLOOD LINE •• •
OLD BREWERY BUILDING SITE IN DEC/90, ROSSDALE COMMUNITY WAS SHOWN PREUMINARY DESIGN ALTERNATIVES FOR THIS SITE
MEM VAS
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SEPTEMBER 12, 1991
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ENCLOSURE I MAP II LANDS DESIGNATED FOR SALE FOR AFFORDABLE/SOCIAL HOUSING FOR A PERIOD OF TWO YEARS
— • AREA REDEVELOPMENT PLAN(A.R.P.) BOUNDARY CITY OWNED LAND FOR SALE CO CITY OWNED LAND SOLD SINCE APPROVAL OF A.R.P.
II I • I •
,* THESE LANDS WERE ADVERTISED FOR A .0* PROPOSAL CALL IN 1990. A REPORT ON THE SALE ..** WILL BE PRESENTED TO THE EXECUTIVE ss` COMMITTEE IN OCTOBER, 1991.
1:100 YEAR FLOOD LINE 1:25 YEAR FLOOD LINE
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SEPTEMBER 12, 1991
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BACKGROUND
A Strategy to Develop Affordable/Social Housing on City-owned Properties in Rossdale and Cloverdale
Background Reports Reports prepared for the Executive Committee dated September 12, 1991 and November 20, 1991 present direction, rationale and background for the development of an affordable/social housing strategy for Rossdale and Cloverdale. These reports have been reproduced in full as part of this document.
5
A Strategy to Develop Affordable/Social Housing on City-owned Properties in Rossdale and Cloverdale
Summary of Public Participation Process Opportunities as outlined below were arranged for agencies and organizations providing affordable/social housing and for the general public to be informed of and offer input to the development of this strategy: July, 1991:
meetings held with organizations listed in Enclosure III of the September 12, 1991 background report.
September, 1991:
the proposed strategy and background report dated September 12, 1991 was delivered to each household in Cloverdale and Rossdale and made available to the general public on a request basis.
October 29, 1991:
Rossdale community meeting, as directed by the Executive Committee
October 30, 1991:
Cloverdale community meeting, as directed by the Executive Committee.
December 18, 1991: public presentation to the Executive Committee March 10, 1992:
6
public hearing before City Council
REPORT TO CITY COUNCIL, MARCH 10, 1992 A Strategy to Develop Affordable/Social Housing on City-owned Properties in Rossdale, Cloverdale, Centre Town and Scona East RECOMMENDATIONS: 1. That a strategy to develop affordable/social housing on City-owned properties in Rossdale, Cloverdale, Centre Town and Scona East be taken from the table. 2. That the recommendations listed in Attachment I, Enclosure I for the development of affordable/social housing on City-owned properties in Rossdale, Cloverdale, Centre Town and Scona East be approved.
HISTORY
At the regular meeting of the Executive Committee held on Wednesday, April 24, 1991 the Committee concurred in the following recommendation: "That the Administration bring forward a strategy on housing mix, housing affordability and the disposal of the properties in the Rossdale, Cloverdale, Centre Town and Scona East areas of the City." On August 7, 1991 the Executive Committee directed that the aforementioned report be presented on September 25, 1991. On September 25, 1991 the Executive Committee poStponed to October 2, 1991 consideration of the proposed strategy to Develop Affordable/Social Housing in Rossdale, Cloverdale, Centre Town and Scona East. On October 2, 1991 the Executive Committee tabled the proposed Affordable/Social Housing Strategy until such time as public consultation meetings have been held with the communities. DISCUSSION
The River Valley Development Group hosted two community meetings to receive public input on the Proposed Strategy to Develop Affordable/Social Housing in Cloverdale and Rossdale (Enclosure I). Prior to the meetings, copies of the proposed strategy together with an invitation to one of the two community meetings was delivered to each residence in Cloverdale and Rossdale. Notices of the meeting were, as well, placed in the local newspapers.
Approximately 100 persons attended the Rossdale meeting on October 29, 1991 and approximately 80 persons attended the Cloverdale meeting on October 30, 1991. A brief questionnaire was distributed at the meetings to provide an opportunity for those in attendance to privately indicate their support or opposition to the development of social housing in their communities. The majority of attendees at both meetings voiced opposition to the development of affordable/social housing in these communities. Enclosure II summarizes public comments made at the meetings. 7
Enclosure III tabulates the raw questionnaire data. A total of 97 questionnaires were returned after the meetings. Single family home owners were the predominant grouping of attendees. From the Rossdale meeting, of those noting support or opposition to the development of affordable/social housing, 83% of the respondees were opposed to social housing in Rossdale and 88% opposed the development of social housing in Cloverdale. Questionnaires from the Cloverdale meeting show even greater opposition to the development of social/affordable housing for both Cloverdale and Rossdale. Additional comments were written on slightly fewer than one half of the questionnaires returned. A summary the written comments submitted is provided as part of Enclosure II. ATTACHMENTS
II III
A Strategy to Develop Affordable/Social Housing on City-owned properties in Rossdale, Cloverdale, Centre Town and Scona East. Rossdale and Cloverdale community comments on a Strategy to Develop Affordable/Social Housing in Cloverdale and Rossdale. Questionnaire Results on a Strategy to Develop Affordable/Social Housing in Cloverdale and Rossdale.
Prepared by: Approved by: November 20, 1991
8
Blair Sibbald River Valley Development Group Bruce Duncan Planning and DeVeTopment Department
ATTACHMENT TO REPORT TO CITY COUNCIL, MARCH 10, 1992 A Strategy to Develop Affordable/Social Housing on City owned Properties in Rossdale, Cloverdale, Centre Town and Scona East. RECOMMENDATION: That the recommendations listed in Enclosure I, for the development of affordable/social housing on City owned properties in Rossdale, Cloverdale, Centre Town and Scona East be approved. HISTORY
At the regular meeting of the Executive Committee held on Wednesday, April 24, 1991 the Committee concurred in the following recommendation:
"That the Administration bring forward a stra on housing mix, housing affordability and the disposal of the properties in the Rossdale, Cloverdale, Centre Town and Scona East areas of the City." On August 7, 1991 the Executive Committee dir presented on September 25, 1991.
that the aforementioned report be
On August 7, 1991 the Executive Committee autho the sale of all remaining single family properties Scona East including Centre Town at s .fled prices. DISCUSSION
Enclosure I sets out policies for selling City owned lands and the process to be followed regarding the development of affordable housing. A number of social housing sponsor groups in the City were consulted in arriving at th policies (Enclosure III). no applications Enclosure ll provides infonr:F: lion on housing mix. As there have for re-districting in Cloverdale and Lossdale since the A.R.P.s were approved in 1 there have been no ges to the housing mix. strategy on affordable/ . , housing The successful implementation of the pro will to a large extent depend upon sponsor groups being able to receive Federal and Provincial subsidies for thow sites designated as suitable. The preliminary es ated market value for the designated sites as of April, 1991 is $1.4 million. If all of these properties are disposed of at considerably reduced values, negative financial implications to the City will result rdable housin.; has been established in This report assumes that the need aspect of the "Edmonton Inner City Housing Need and Cemartd Study" prepared by Larrie Taylor (May, 1990) and in "Safe Housing: Upgrading asic Living Conditions in Edmonton" prepared by the Mayor's Task Force on Safer Cities (August, 1991). 9
JUSTIFICATION The designated properties have relatively low servicing costs and are on good public transportation routes. A variety of sizes and locations have been designated so that different sponsor groups might consider developing affordable housing in the communities identified.
FINANCIAL IMPLICATIONS
The proposal that these parcels be sold below market value contravenes policy statements in the Land Sales Policy (C-208) and the Land Management Policy (C-211). Land Sales Policy statement *1 directs that, "land will be sold at market value unless subsidy agreements are established', and Land Management Policy statement *3 directs that reserve land be disposed of at market value. There are 24 parcels covered by this report; six of which are financed through the Parkland Purchase Reserve. These six parcels have no book value and would have to be sold at market. The other 18 parcels have a book value of $112,000 and the market value of $1.42 million. If they are sold, below market, the City would be deprived of upto $1.3 million in profits which would normally go to financing the resale land inventory.
ENCLOSURES
II HI IV
Strategy to Develop Affordable/Social Housing on City owned properties in Rossdale, Cloverdale, Centre Town, and Scoria East. Housing Mix Statistics by Neighbourhood. Social Housing Organizations Consulted in the Development of the Affordable/Social Housing Strategy Social Housing Polices in the Rossdale, Cloverdale and Scona East A.R.P.s.
Prepared by: Kulbir Singh Planning and Development Department Approved by: Bruce Duncan VW Planning and Development Department, and John Lackey Community and Family Services Department Gordon Bremner Finance Department September 12, 1991 10
STRATEGY AS PROPOSED TO CITY COUNCIL, MARCH 10, 1992 ENCLOSURE I A Strategy to Develop Affordable/Social Housing on City-owned Properties in Rossdale and Cloverdale
1.0
LAND
1.1
Rossdale These lands shown on Map I be reserved for the development of affordable /sodal housing.
1.2
Cloverdale These lands shown on Map II be reserved for the development of affordable/social housing.
1.3
Scona East (includes Centre Town) No appropriate City owned properties are available for affordable/social housing.
2.0
PROCESS
2.1 That the City owned lands in Rossdale and Cloverdale designated for affordable/social housing as shown on Maps I and H be sold or leased for such purpose, notwithstanding the applicable City Land Sales Policies. 2.2 That the lands may be sold or leased below market values while complying with Government of Alberta St - es. 2.3
That the reserved lands be advertised for inviting interest from "sponsors".
rdable/social housing,
2.4 That Ross Flats Apartments building in Rossdale be transferred to Edmonton Non Profit Housing Authority for managing it for affordable/ social housing. 2.5
rdable /Social Housing That the subject sites be part of the Long Term Plan being developed by a joint committee of the City and the Province.
2.6
y Services Department negotiate sale of That the Community and F these lands for affordable/social housing to "sponsors" and present reports to Executive Committee for approval; and Planning and Development Department assist on Land Use Bylaw and River Valley Community issues. 11
ENCLOSURE I PAGE 2 2.7
3M
4.0
12
That if no agreement is reached on the sale of subject lands for affordable/social housing by December 31, 1994, due to lack of interest by sponsors or non-availability of Provincial and Federal Government subsidies or grants, then the subject lands be reassessed for sale at market value.
DEFINITIONS
Affordable Housing:
Housing for households which paid 30% or more of income for shelter and which had an annual income of less than $30,000 (must reflect annual changes required to meet subsidy requirements).
Sponsor:
A non-profit housing society or non-profit housing cooperative or public housing agency, that is seeking to develop an affordable/social housing project and is prepared to make a long term commitment to the efficient management of the facility.
MAPS
I
Map of Rossdale, showing lands designated for affordable/social housing.
II
Map of Cloverdale, showing lands designated for affordable/social housing.
III
Map of Scona East including Centre Town (having no suitable lands for affordable/social housing).
ENCL:S-r:-E HOUSING MIX STATISTICS BY NEIGHBOURHOOD
DISTRICT
AREA sq m
TOTAL PROPERTIES CITY OWNED PROPERTIES sold unsold
CLOVER DALE 90092.7 46132.3
176 93
80 28
6 35
RF3* RF6
70452.0 2637.1
109 0
4 0
RA7 RMX' DC1*
53749.9 42498.3 25284.8
DC3 RA9*
40199.4 9876.8
165 1 (existing 12 unit apt.) 48 87 19 + 1 large parcel 42 12
RF3 DC1 ROSSDALE
0 58 0 0 0
32 31 11 + 1 large parcel 18 10
SCONA EAST (North of 87 Avenue) RF3 RF3* RF2* RA7 RA8 RA9
418.7 20791.1 235688.7 19979.9 14983.2 20531.9
1 50 445.5 37 30
0 4.5 5 0 0 0
0 3 5.5 0 0 0
DISTRICTS RF3 - Low Density Redevelopment DC1 - Direct Development Control RF2 - Low Density lnfill RA7 - Low Rise Apartment RA8 - Medium Rise Apartment RA9 - High Rise Apartment RF6 - Medium Density Multiple Family RMX - Residential Mixed Use DC3 - Temporary Holding - differs from standard regulations applicable to other properties carrying same Land Use District designation 13
ENCLOSURE III SOCIAL HOUSING ORGANIZATIONS CONSULTED IN THE DEVELOPMENT OF THE AFFORDABLE/SOCIAL HOUSING STRATEGY The following organizations have been involved in the development of an affordable/social housing strategy for Rossdale, Cloverdale, and Scona East including Centre Town: The Communitas Group Ltd. Edmonton Inner City Housing Society Edmonton City Centre Church Corporation Edmonton Non-Profit Housing Authority (homeEd) Edmonton Housing Authority Handicapped Housing Society of Alberta Mennonite Central Committee Alberta Department of Municipal Affairs Edmonton Community and Family Services Department
14
ENCLOSURE IV Social Houqing Poli&s In Rossdale A.R.P., Cloverdale A.R.P. and Scona East A.R.P.
The following policies are extracted from the various A.RP.'s and action taken to date to implement the policies. ROSSDALE A.R.P.
3.3 South Rossdale Concept, page 16
Policy
"This area has been identified as suitable for Social housing. No specific sites have been identified. However, interested groups may pursue such development provided the objectives and policies of the Plan are met." Action
The area contains predominately single family properdes, Flats apartment building and a small multiple site. The small multiple site was not considered suitable for social housing because of location and servicing constrairti Ross Flats apartment building, owned by the City, is recommended. Although Ross Flats is being recommended for affordable/social housing, there are limitations of a historical character and the financing required to maintain the character.. 3.5 North Rossdale Concept, page 22
Policy
"As in South and West Rossdale, North Rossdalc is appropriate for social housing. While no specific sites have been identified, interested 7roups may pursue such development provided the objectives and policies of the Plan are met." Action Various public incr:ir!s have been made in the past, but no serious proposals have been received to date. The pro • .- strategy su est 2 sites for affordable housing in this area.
15
3.12 (a) Land Acquisition and Development, page 54
Policy
Demonstration Projects "The City will support a limited number of privately sponsored housing demonstration projects that would be open for public viewing through economic incentives related to land value provided that the costs to the City do not exceed the benefits received by the City and the neighbourhood from the projects. This could also include publicly sponsored social housing projects." Action The restoration of deteriorated City-owned dwellings in the inner City has been undertaken by the Mennonite Central Committee under an agreement with Employment and Immigration Canada. No labour costs to the City were incurred as this program provides training in construction trade skills for social assistance recipients. No dwellings in Rossdale were deemed to meet the selection criteria for the Mennonite Central Committee's renovation program, although one demonstration project was undertaken in Cloverdale. Policy
1.
C407 Disposal of City-Owned RF3 Land. Phase 2 Disposal Tenants of City-owned houses in the low density area (Map 12, Area A of the ARP) who have resided in Rossdale since January 1, 1984, and who wish to purchase their dwelling.
Action Long-term tenants of City-owned properties were given first opportunity to purchase, with 3 year lease to purchase option available. Property value was established at beginning of 3 year option period. Property values increased over the 3 years option period. 10 Long Term Tenants purchased City-owned dwellings. CLO'VERDALE A.R.P. Policy
Housing Policies 3.2 e), page 34 "The Cloverdale neighbourhood is deemed to be an acceptable location for social housing which is compatible in scale and designed with existing and proposed housing in the neighbourhood.
16
Explanation: The City assists groups and agencies in meeting shortfalls and/or needs in housing not met by the private sector. In this role the City has in the past coordinated the delivery of housing assistance programs offered by the other levels of government, such as the Senior Citizens' Housing Program. The city has also provided housing through the Non-Profit Housing Corporation. Non-profit housing and cooperative housing projects are appropriate for all areas of the neighbourhood. The City does not currently hold any land in Cloverdale in its social housing inventory. If social housing uses are to be developed in Cloverdale, the land component, which is usually the City's contribution, will have to come from other Civic departments' land inventories." Action Various groups showed interest, negotiations were entered into, but with no successful condusions. C406 - Disposal of City-Owned RF3 Land. Phase 2 Disposal
Policy
1.
"Tenants of City-owned houses in the low density area (Map 11, Area A of A.R.P.) who have resided in Cloverdale since January 1, 1984, and who wish to purchase their dwelling."
Action
Long-term tenants of City-owned properties were given first opportunity to purchase, with 3 year lease to purchase option available. Property value was established at beginning of 3 year option period. Property values increased over the 3 year option period. 6 Long Tern Tcriats purchased City-owned dwellir „
.
RIVER VALLEY DEVELOPMENT PROTECT DEVELOPMENT STRATEGY AND BUSINESS PLAN
- Approved by Executive Committee June 3, 1987. - 5.0 River Valley Housing Development StrL-2Ty page 19.
17
"Applications from non-profit housing groups would also be considered and evaluated relative to the development guidelines, but these proposals would be reviewed with the Executive Committee to obtain approval regarding the financial aspects if the selling price is less than market value." Action
"SUBJECT:
Waslci-Wikun Housing Cooperative Limited
At the regular meeting of City Council held March 24, 1987 the above noted item was considered at which time the following motion was concurred in: That the su• • este& Purchase or Lease Options, submitted by the WaskiWikun Cooperative Limited, to purchase or lease the City-owned properties (Enclosure I and Enclosure II) be rejected." SCONA EAST A.R.P.
There are no policies in the plan dealing with social housing.
18
ATTACHMENT II
Rossdale and Cloverdale community comments on a Strategy to Develop Affordable/Social Housing in Cloverdale and Rossdale The River Valley Development Group received public input from Cloverdale and Rossdale residents at community meetings called for this purpose. In summary, the Rossdale community said: During these times of fiscal restraint, the City will not get the biggest return on its dollar in terms of land sales or tax revenues by implementing this proposal (ten spoken and sixteen written responses). Rossdale is an inappropriate location for social housing as the amenities required by low income families are not available in the community (four spoken and six written responses). The development of social housing at this time in Rossdale would be a betrayal of those who were willing to invest in high cost city owned property in the neighbourhood because they believed the land would maintain or increase its value due to the lifestyle and vision for river valley development (four spoken and ten written responses). Many residents have a sympathetic understanding of the need for social housing but do not feel it would be appropriately located in Rossdale (four spoken and six written comments). Sensitive infill affordable housing (possibly seniors' housing) could be implemented in Rossdale and Cloverdale (two spoken and three written responses). What residents have understood about residential development in Rossdale from the (glossy) brochure "Edmonton River Valley Communities", prepared by the River Valley Development Group does not specifically relate to social housing (three spoken responses). In summary, the Cloverdale Community said: The development of social housing is a betrayal to those who bought into an idea and a lifestyle. Social housing was not mentioned in the plan and to change the plan at this point would not be fair (five verbal and three written comments). 19
ATTACHMENT II Page Two
Little or no research, analysis and/or evaluation was used as the basis for selecting the proposed sites, nor was an appropriate public planning process followed (four verbal and one written comment). -
Residents understand the need for affordable housing for lower income people and the poor, but do not support it in the locations identified (two verbal and two written comments). Cloverdale as a location for social housing is inappropriate or unsuitable because of the lack of local amenities, schools and services (two verbal and three written comments).
-
The cost of developing social housing in Cloverdale is too high (one verbal and three written comments). Some residents do not feel assured that further plan changes will not result in up zonings or relaxation of the Architectural Guidelines for the Cloverdale DC-1 area (two verbal comments). There already is a mix of affordable housing among higher cost housing in our community (two verbal and one written comment).
-
Cloverdale is made up of people from all walks of life. It is important to realize that people from every "strata" are humans too (one verbal and one written comment).
Prepared by: River Valley Development Group November 19, 1991
20
ATTACHMENT III
Questionnaire Results on a Strategy to Develop Affordable/Social Housing in Cloverdale and Rossdale
Rossdale Meeting
Cloverdale Meeting
Number of Completed Questionnaires
53
44
A.B.
Rossdale owners/residents Cloverdale owners/residents
49 4
4 40
C.
Rossdale single family area Rossdale townhouse/apartment area
33 15
2 2
4 0
35 4
Support for social housing in Rossdale Opposition to social housing in Rossdale
6 42
0 72
Support for social housing in Cloverdale Opposition to social housing in Cloverdale
3 23
? 41
Additional written comments provided
24
19
Cloverdale single family area Cloverdale townhouse/apartment area D.
E.
Prepared by: River Valley Development Group November 19, 1991
21
Planning and Development
LIBRARY The City of Edmonton