Expanding Social Services for People Experiencing Homelessness by Jiwon Park

Improving Social Amenities through Coordinated Community Development and Municipal Planning

Expanding Social Services For People Experiencing Homelessness

About this Report

I sincerely thank my coworkers and advisors at the city government and Harvard for supporting this work. Specifically, I’d like to thank Marc, Vincent, Andrew, Isabelle, Josh, Luc, Rachelle, Chandra, Robert, Lindsay, and Rachel for making this report possible by providing their insights.

This document was developed for the City of Moncton over ten weeks, May 26th to August 4th 2023. The findings, analysis, and recommendations were developed through an in-depth inter view with public officials and members of community organizations. The report builds directly on the work of the Social Inclusion Office to address homelessness in the community.

This report was developed by Jiwon Park (Master of Urban Planning Candidate, 2023) as part of the 2022 Bloomberg Harvard Summer Fellowship Program.

Over the last ten years, the issue of homelessness has become one of the major concerns in Moncton. As the city and the province of New Brunswick grow and tend to attract more popula tion from other parts of Canada, they are experiencing unprecedented level of homelessness and housing affordability problems. I hope this report will contribute a small part to the body of work for the City of Moncton and other local governments facing similar problems.

Drop-In Center

Insight7.

Insight6.

Insight4.

Public Washroom and Shower

of KeyResearchMonctonContentsSnapshotApproachInsights

Insight2.

Insight1.

Institutions

Mapping Potential Sites for Social Amenities

Insight5.

Harm Reduction

Communication Strategies Conclusion1411465616242832364654

Table

Executive Summary

Insight3.

Shelter

• What factors need to be considered for locating new social amenities?

Executive Summary

The project aimed to research the needs for es sential social amenities for the homeless individ uals and identify the potential ways to facilitate increased amenities in Moncton. It dealt with three key research questions:

Finally, geographic analysis was done to explore multiple factors in identifying potential locations for social amenities using suitability analysis. As different social amenities require consideration of different factors, the analysis tried to locate pallet shelters, one of the suggestions of this report.

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• What are the unmet needs?

• What social amenities already exist in Moncton to meet the needs of the homeless population?

Project Timeline

Major research methodologies were interviews, literature review, and geographic analysis. Total twenty-two interviews were conducted with govern ment departments, governance groups, frontline agencies, and community groups to formulate key insights. Based on the gaps identified from the interview, best practice research was undertaken through literature review and interviews.

About the Project Current Status of Homelessness

The Human Development Council manages the data dashboard compiled with data from the Home lessness Individual and Family Information System (HIFIS) and the By Names List (BNL), a real-time list of all people experiencing homelessness in the community. According to the dashboard, the total number of individuals experiencing homelessness as of June 2022 is 222, and individuals experienc ing chronic homelessness are 174. The number of chronically homeless individuals has been steadily increasing this year.

Currently, two committees (Greater Moncton Home lessness Steering Committee, Poverty and Social Inclusion Committee) and one TF (Community Task Force on Homelessness and Downtown Security) are working on issues relevant to homelessness. As relevant plans and report, there are “Moncton’s Community Implementation Plan for Affordable Housing (2019)”, “Social Inclusion Plan (20162021)”, “Joint Action Report on Homelessness and Downtown Security (2021)”, and “City of Moncton and City of Dieppe Housing Needs Assessment (2017).”

Current-

Lack of Wrap Around Support

Suggestion

INSTITUTIONS COMMUNICATION

for Public Washroom - Participatory Pilot Project

Lack of Personal Space - Not 24/7 Open

HARM REDUCTION

Lack of Safety - Lack of Properly Trained Staffs Suggestion 78 Quickly-Built (Pallet)CabinsPrivate

GEOGRAPHIC ELEMENT

there is no drop-in center in the community. Problems - Lack of daytime destination for homeless individuals - Lack of emergency response capacity (extreme weather Suggestionevents)

1 Public Washroom

2 Shower

for Shower- Tapping into existing infrastructure - Mobile shower trailer Zoning Amendment - Introducing ‘emergency shelters’ as a seperate permitted use - Introducing ‘emergency shelter zoning overlay’ Public Land Acquisition and Disposition - Expand ‘ScheduleB – Disposition of affordable housing properties’ - Activate public land acquisition Incentive Zoning : Community Amenity Contributions, Density Bonusing General Public - Prototype - Individualism - Action Neighboring Cities & Big Cities in New Brunswick - Convening regular meeting - Regional Service Commission Mapping potential sites for new shelters - Proximity to bus network - Distance from existing shelters - Distance from sensitive uses

High Barrier for Drug Users

5 Improving Social Amenities through Coordinated Community Development And Municipal Planning Seven Key Insights Bed GapCapacity Problems of Existing Shelters

DROP-IN CENTER SHELTER

Currently,

permanent drop-in center with emergency capacity Problems - Service Time - Location - Training and Education - Coordination Suggestion - Forging governance - Expanding and dispersing services - Increasing educational resources for different audiences

Status

PUBLIC WASHROOM & SHOWER

Suggestion

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About Moncton

So far, Moncton has maintained relatively afford able housing market. According to Residential Market Analysis Report (2020), the Shelter-Costto-Income Ratio – a measure of how much of the average household income is spent on shelter costs, covering both owners and renters – in 2019 was 18.7% in the City of Moncton (Turner Drake & Partners Ltd., 2020). However, a recent study by the Royal Bank of Canada rated Moncton as one of the least affordable cities for young people in Cana

da (Huizinga, 2022). It partially shows the changing housing market in Moncton, especially for people with different housing needs than single-family housing for traditional families.

As the city grows, homelessness has also grown as one of the major community concerns. According to the public survey undertaken for the housing need assessment in 2017, homelessness was identified as one of the current issues over half of Monc ton residents who responded to the public survey (Pacini & Hashim, 2019). To address this challenge, the city’s affordable housing strategy approved by the council in 2019 called for creating a housing authority, which led to the establishment of Rising Tide as a housing entity. Rising Tide received $15.4 million from the federal, provincial, and municipal governments over three years to supply 160 units by 2023 to reduce homelessness in the city.

Greater Moncton is the largest urban center in New Brunswick and, over the past five years, has been the fastest-growing metropolitan area east of On tario. Out of more than 150 small and larger urban centers across Canada, Greater Moncton has the third-highest concentration of insurance industry employment. The community also has high concentrations of employment in manufacturing and transportation (Immigration, Refugees and Citizen ship Canada, 2019).

The City of Moncton, located in southeastern New Brunswick, is the largest city in the province. As of the 2021 Census, the city had a population of 79,470, making up 35,120 households. Compared to the 71,889 population in Moncton in 2016, the population has increased more than 10%. The met ropolitan population is 157,717, which includes the City of Dieppe and the Town of Riverview.

Figure 1 - Downtown Moncton

Moncton Snapshot

This joint report was published as a collective effort of multiple stakeholders, including the TF on Homelessness and Downtown Security, the Great er Moncton Homelessness Steering Committee, Rising Tide Community Initiatives, and the Codiac Regional RCMP. TF membership included elected officials from three levels of government, and the business community represented by the Greater Moncton Chamber of Commerce and Downtown Moncton Centreville Inc.

- Building on Ensemble Overdose Prevention Site Initiative, the TF will undertake a public education campaign to support permanent safe supply.

Moncton’s Community Implementation Plan for Affordable Housing (2019)

The report, published in April 2019, aimed to identify the housing requirement based on current housing demand and supply and estimate future housing needs. The report acknowledged it is necessary to consider the unique needs of chronically homeless individuals and the needs of population groups that are more likely to face housing affordability issues. The report also highlighted the need for more supportive housing.

Improving Social Amenities through Coordinated Community Development And Municipal Planning REPORTS AND PLANS

Joint Action Report on Homelessness and Downtown Security (2021)

- Advocate for future shelter capacity to be smaller and more dispersed

The report suggests 27 action items categorized into governance, shelter operations, addictions and mental health services/support, safe supply, housing first, complex needs, and law enforcement. To highlight a few actions items that significantly informed this report:

- Ask the Province to provide in-shelter mental health and addictions wrap-around support

The assessment looked at Moncton’s housing needs across the housing continuum. The report highlighted following insights for Moncton:

COMMITTEES & TFs

- Explore and inquire about land banking and affordable housing policies, including density bonus ing and inclusionary zoning

- Explore standards and maintenance bylaws spe cific to rooming houses

- The increasing need for housing options for the aging population, smaller households, and housing with accessibility features

Two committees and one TF are working actively on homelessness. Greater Moncton Homeless Steering Committee works toward ensuring Greater Moncton has an effective and responsive system in place to prevent homelessness from occurring and ensure instances that do occur are rare, brief, and non-recurring. Community TF comprised of busi ness community and community organizations work to make downtown safer and address the issue of homelessness. Poverty and Social Inclusion Com mittee is responsible for implementing the Social Inclusion Plan that aims to enhance community awareness of inclusion and diversity.

The plan highlights actions plans categorized into ‘Housing Choice and Affordability, ‘Education and Training, ‘Inclusion and Diversity, ‘Mental Health, ‘Urban Agriculture and Food Security.’ Some of the recommendations from the report suggested:

Social Inclusion Plan (2016-2021)

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- Explore and develop a business case for a cityowned entity to deliver affordable housing

City of Moncton and City of Dieppe Housing Needs Assessment (2017)

- Downtown Moncton has a greater proportion of dwellings requiring major repairs (9.8%) compared to the Rest of Moncton (6.9%).

Homelessness

The Human Development Council manages the data dashboard compiled with data from the Homelessness Individual and Family Information System (HIFIS) and the By Names List (BNL), a real-time list of all people known to be experiencing homelessness in the community. According to the dashboard, the total number of individuals experiencing homelessness as of June 2022 is 222, and individuals experiencing chronic homelessness is 174. The net change in the number of homeless individuals is 2. The number of chronically homeless individuals has been generally increasing.

Improving Social Amenities through Coordinated Community Development And Municipal Planning

In Moncton, homelessness is managed through Coordinated Entry system which is a standardized approach to assessing individuals or families expe riencing homelessness needs and the services they may require to achieve housing stability. The Hous ing Assessment Review Team (HART) was estab lished in 2016 to implement Coordinated Entry and improve service delivery to individuals and families experiencing homelessness in the Greaater Monc ton region. Service providers that make up the HART table work together to assess people’s hous ing-related needs, prioritize them for resources, and link those in need to housing and a range of other supports (Greater Moncton Homelessness Steering Committee, n.d.)

Figure 2 - Data Dashboard for Homelessness (Source: Human Development Council)

What social amenities already exist in Moncton to meet the needs of the homeless population?

What kind of factors need to be con sidered when it comes to deciding the location of social amenities?

Key Research Questions

1. What social amenities already exist in Moncton to meet the needs of the homeless population?

What social amenities already exist in the community to meet the needs of the homeless, including shelters, health care services, mental health and addition, food, job training, sanitation, and storage? What are their conditions, and what are the chal lenges of operating them?

What amenities do not exist in the community? Why are they needed? What are the factors that need to be considered when planning for new so cial amenities/services?

Currently, there is a recognized issue of social ame nities being too concentrated in downtown and the need for dispersion. When planning to add more social amenities, where should they go? What geo graphic and social factors need to be considered?

Figure 3 - Service Needs of the Homeless Individuals

2. What are the unmet neeeds? What kind of social amenities need to be additionally established?

3. What factors need to be considered when it comes to deciding the location of social amenities?

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What are the unmet needs? What kind of social amenities need to be additionally established?

Qualitative Research

11 Improving Social Amenities through Coordinated Community Development And Municipal Planning

Figure 4 - Broken Windows

Research Approach

I interviewed government officials from 10 differ ent departments, two governance groups, seven frontline agencies, and three community groups. Interviews were used primarily to understand their current work in providing social services to homeless individuals and their challenges. I additionally undertook interviews with organizations related to the best practices of each insight – shelters, harm reduction, drop-in centers, and public washrooms – to learn how they overcame the expected chal lenges.

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Research Approach

The goals of geographic analysis are primarily twofold: 1) to explore and try to forge a framework of thought approaching the placement of social amenities, and 2) to identify potential land and properties for social amenities. Given that different social amenities need distinct considerations in terms of their location, the initial mapping was done to locate shelters as a starting point.

Geographic Analysis

The final map was created as an interactive web map that shows potential lands that can be used to establish pallet shelters. Besides, the map includes the following information: ward boundaries, locations of essential amenities (grocery stores, salvus clinic, ensemble), walkshed analysis (distance from bus stops, existing shelters, sensitive uses), demographics (population, income), flood zone, and municipal boundaries (Moncton, Dieppe, and Riverview). Each layer has relevance in identifying good candidate areas and sites for additional shelters. When users click on each parcel, they can see the information on those land, including but not limited to zoning, current use, ownership, and the assessed value).

Improving Social Amenities through Coordinated Community Development And Municipal Planning

Making a Map Interactive

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One group of insights are more amenity-specific and they include shelter, harm reduction services, drop-in center, and public washroom and shower. These insights are one of the most commonly brought-up amenities that need attention from the city government throughout multiple interviews.

Figure 6 - Community board at John Howard Society’s transitional housing

Key Insights Overview

Seven Key Insights Overview

Figure 5 - Leaflets explaining YouthQuest’s services

Information gleaned from the literature review and interview was organized into seven key insights, and seven key insights were categorized into two groups.

Another group of insights are more related to overarching institutional strategy to expand different kinds of social amenities. This include zoning, financing mechanism, and communication strategy for different audiences (general public, neighboring cities, cities with similar sizes in the province). Last ly, the interactive map shows the suitable land and properties that can be candidate of the new shelter locations.

15 Improving Social Amenities through Coordinated Community Development And Municipal Planning Amenity-Specific Recommendations Institutional Tools and Communication Recommendations Shelter Harm Reduction Services Public washroom &ShowersDrop-In Center Communication Strategy Interactive MapInstitutionalInstitutionalMechanismTools

Understanding the “Housing First”

‘Housing First’ is an approach to ending homelessness focused on moving people experiencing homelessness into independent and permanent housing as a first step. It tries to provide people with immediate access to housing with little compli ance or readiness requirement. However, when we talk about ‘housing first,’ it becomes more important to acknowledge diversified housing needs. De pending on socioeconomic status and physical and mental health conditions, people need to have access to different types of buildings as well as health services. One of the underrecognized services that have to be integrated into housing is mental health

Upon the baseline of the “affordability for all” prin ciple, the housing continuum highlights different types of housing that respond to diversified housing needs. Those housing types include but are not limited to temporary emergency shelters, support ive housing, and subsidized rental housing. However, there has been criticism about linear housing continuum as it implies the goal for all is to move

Insight 1. Shelter

Figure 7 - Housing Continnum and Wheelhouse Model

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and addiction support. It is extremely important to provide these services to house chronic homeless individuals having serious mental health problems. It takes time and resources to move people who are deeply traumatized to more common types of housing.

Even though the Harvest House lets people in during the daytime, many people don’t have places to go during the daytime, which is a fundamental reason why people end up being on the street.

Quantitative Analysis

There is a lack of health services provided on-site. Even though the salvus clinic visits the Harvest House once a week, it is barely sufficient to meet the needs.

5. Lack of Safety

Qualitative Analysis

As the pay for case managers working at the shelters is relatively low, it is hard to get knowledgeable staff as well as to get staff trained.

Currently, all shelters are dry, meaning that they don’t allow using drugs in the shelter. It is a huge barrier for many homeless individuals.

Understanding the Current Status of Homelessness

Currently, the number of people experiencing homelessness in the city is around 222, based on the data dashboard offered by the Human Devel opment Council. However, realistically, the number of people experiencing homelessness is expected to be larger than 222, considering the number only includes the people who agreed to be on the list and participated in the survey. Based on the inter view with a community expert, it is estimated that the number of people experiencing homelessness, in reality, can be more than 350.

17 Improving Social Amenities through Coordinated Community Development And Municipal Planning

Current shelters have substantial barriers to the users. Seven points below were specifically high lighted multiple times throughout interviews.

1. Lack of privacy and personal storage

and Lions Senior Center (currently operated as an emergency shelter since the start of the pandem ic) - are not included in the analysis. Crossroads for Women are only available for people identifying themselves with a specific gender and prioritizes victims of domestic violence, and the Lions Senior Center is planned to be operated only temporarily As a result, the current gap in the numbers of the bed in the community is 78

2. Not 24/7 open

Meanwhile, the current bed capacity in the commu nity is estimated to be around 144, which includes two major shelters – Harvest House (44-bed capacity) and the House of Nazareth (100-bed capacity). Other shelters, such as Crossroads for Women

Current shelters are operated as group homes where a large number of people share the space together without having enough private space. Es pecially, absence of personal storage leads to the frequent use of shopping cars on the street, point ed out as one of major concerns of the downtown business community.

4. Lack of Wrap-Around Support

6. Lack of Properly Trained Staff

3. High Barrier for Drug Users

along the continuum to a final destination of owner ship housing. As an alternative, the City of Kelow na developed a “wheelhouse” model, which is an interdependent system where people move among different housing forms, tenures, and price points.

Figure 8 - A cart parked in the middle of the street

Due to the lack of security on-site, there is always a potential for violent interactions.

Filling the numerical gap

Figure 9 - Needs of the people with different acuity level

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“They (shelter operators) really need to set aside their religious beliefs.”

Addressing the needs not met by the current shelters

New shelters can help solve the problem

Active incorporation of harm reduction principles will be critical in new shelters. Currently, even though there are existing shelters, a significant number of people are hesitant to visit them as they cannot use their drugs. Also, to incorporate harm reduction into the new shelters, it will be important to address the common misconception that the provision of harm reduction services will cause an increase in drug use, violence, and theft, in addition to enabling and encouraging service users to use drugs.

Shelters that ensure private space can address the problem of lack of privacy and personal storage in current shelters. Unlike the current shelters where people sleep together in the same space, separate cabins can reduce the possibility of violent interac tions. It was also pointed out that current shelter settings are not working for both low-acuity and high-acuity people as they need separate spaces for different reasons. Individual cabins can address the lack of personal storage problem as well.

Based on the number of homeless individuals and the current bed capacity, there is at least a shortage of 78 beds in the community. However, as pre viously mentioned, the number doesn’t include the homeless individuals who didn’t agree to be on the list, people living in precarious housing, and couch surfing people. If the population at risk of being homeless is included, the gaps in the number of the homeless should be more significant.

“(Homeless) people need a moment of silence to heal their traumatic experience.”

“Wrap-around support has to be available on-site”

There are significant amount of reasons why wraparound support needs to be provided on-site. First of all, even in shelters, people who have experi enced homelessness cannot easily adjust to the different ways of “living.” That is why wrap-around support services to address intensive behavioral health needs, lifelong cycles of trauma, substance use, and complex healthcare needs need to be part of any shelter/housing intervention. And providing services on-site has other benefits as well, such as shelters don’t need to be located in downtown. Without wrap-around services available on-site, the new shelters are going to likely end up being down town as it is the only area where people can have access to health-related services.

However,concerning.thedecision

The need to establish additional shelters primarily comes from the fact that a significant number of people are still sleeping on the street or in tents. Considering that the days of extreme heat and cold get longer due to the climate crisis, people being exposed to these weather events has become more

Risks involved in housing high-acuity people

Improving Social Amenities through Coordinated Community Development And Municipal Planning

Even though the city has committed a significant amount of resources to supportive housing, there are gaps not filled with efforts on supportive housing.

Figure 10 - Considerations for New Shelters

Preparing apartment housing is not cheap and can be slow. Even though three years of project span is reasonable, there are still 222 people sleeping on the street. The city needs an urgent solution for this coming winter to shelter those people.

Do We Really Need More Shelters?

to increase the number of shelters, whether they are in the form of municipal shelters or privately-owned and operated ones, can be controversial. Especially, shelters vs. housing could be a typical controversy that can arise when it comes to prioritization. In 2020, the City of Moncton had committed $6 million over the three years to expand Rising Tide supportive housing, adding to a $15.4 million investment combined with the funds from the province. According to the business plan of Rising Tide, the goal is to construct 125 support ive housing over three years. So far, 45 units have been built, 37 were planned this year, and 20 are planned for the next year to be completed.

Chronic homeless individuals going through a lot of disabling conditions such as mental and physical health problems can have a hard time in Rising Tide properties. They need full support to transition from street to apartment-style living. However, due to the lack of wrap-around support, there have been few cases of evictions already as they didn’t stick to the behavioral rules.

Slow and expensive

Figure 11 - Tiny Homes in Fredericton (Source: CBC)

As houisng becomes available, 12 Neighbors work with the Fredericton coordinated access system which is managed by Social Development and other housing agencies and nonprofits in the city. Social development currently manages an Afford able Housing waitlist as well as a by-names list of people with housing needs.

Case Studies

Located at 269 Two Nations Crossing in Fredericton, it is outside of downtown. However, when Marcel Lebrun, the founder of 12 neighbors, began to look for a location, he considered several different criteria. The criteria include the availability of grocery stores nearby, availability of entry-level jobs nearby; the presence of social services within 10min walk distance; and access to public transit.

ty-member-finds-purpose-in-picnic-tables-1.5837045?cache=?clipId=104066https://atlantic.ctvnews.ca/mobile/i-m-at-peace-doing-it-n-b-tiny-home-communi

Zoning

12 Neighbors is a community of 96 micro homes built in blocks of 12, as well as a social enterprise center. Each home is 10’ x 24’ and has a covered front deck, a three-piece bathroom, a kitchen with sink, induction stovetop, microwave, apart ment-sized fridge, sleeping accommodations for one or two people, and a living and dining area, plus a storage loft and cathedral ceiling.

Micro Home (Fredericton,CommunityNewBrunswick)

As 12 neighbors is the first of its kind in the city, it took an effort to rezone this area that can allow the uses on the site (housing + social enterprise). Originally zoned for big box retail development, it had been rezoned to ‘Comprehensive Development District (CDD),’ which was adopted for the first time for this specific uses.

Working with the Coodinated Access System

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Selecting the Location

Overview

- Rapid & Scalable: Each shetler can be assembled in under an hour, while more traditional methods of housing people experiencing homelessness could take years.

- Transitional: They offer personalized on-site social services, foods, showers, and laundry to help people transition to permanent housing.

Basic on-site services include meals, showers, case management, and mental health services. To increase security, they hired a third-party security company. The ratio of security to residents is 1:18. They also provide mobility to the social workers on site, especially when they need to accompany residents to social services, they are encouraged to use the cars. Lastly, in partnership with the non-profit organizations, they provide art therapy, music, and community gardening.

Improving Social Amenities through Coordinated Community Development And Municipal Planning

The price for a pallet cabin is $6,995 and $9,495 for 64 sqft and 100 sqft, respectively. Based on the conversation with the pallet operator in California, the amount of money that is expected to be needed per person is $55/bed/night (USD), which includes housing and wrap-around support. This means establishing pallets needs an overall budget of around USD 20,000 (roughly CAD 25,000) per person per year.

Prefabricated Modular Shelter / Pallet (California, United States)

On-site services

vices, substance-use treatments, emergency room visits, police interaction, incarceration, shelters, and supportive housing.

& Community : Creating private and safe spaces. They provide private sleeping cabins with lockable doors as well as on-site resources such as community rooms.

-al.’Privacy

Funding

Communication

“Shelters that can be built in a day.” As its slo gan says, pallet shelters - prefabricated modular shelters - can be literally built in a day. The major product is an individual cabin for one or two people that can be built quickly at an affordable price. Their core infrastructural concepts revolve around ‘Prica cy&Community,’ ‘Rapid&Scalable,’ and ‘Transition

When shelters are built, it often gets a lot of community pushback. Good communication with the neighbors is a way to succeed. In California, Hope of the Valley conducted a week-intensive open house where they invited local residents to look around the site and get the contacts of communi ty response teams. They focused on increasing accountability and made sure that there are people accountable for potential problems.

Figure 12 - Conceptual model for pallet shelter (Source : Pallet)

Overview

- Cost-effective: The cost for construction becomes more affordable as they use fiberglass reinforced plastic with a foam insulating core for the panels and sheleves.

This number is way smaller than maintaining the status quo, according to Nanaimo Homeless Co alition. In Canada, the average cost for a person struggling with homelessness could cost the tax payer $53,144 per year, which includes health ser

When establishing shelter, Moncton has been con sidering several different considerations. First, there is a need to disperse social amenities because they are heavily concentrated in downtown. The concen tration of services in downtown makes sense when individuals have to have access to different ser vices – shelter, transitional housing, mental health and addiction, harm reduction, soup kitchen, etc.to meet their everyday needs. It inevitably resulted in the strong presence of the homeless population in downtown, which has provoked concerns for the business community. Second, there is a need to combine shelters with proper wrap-around support so that the homeless population can move along and overcome the trauma of homelessness.

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Rezoning Process

- How are other jurisdictions defining and permitting this use?

Consideration for Climate

- What zones are they typically permitted in?

The weather during the winter in Eastern Canada can be very harsh, and therefore proper insula tion is vital. According to the Pallet company, the shelter exterior panels have a foam insulating core made of expanded polystyrene. They also offer thicker wall and roof insulation, a 4500-watt heat er, and insulation under the floor panel as part of a cold-weather package. They’ve also done tests for windy and snowy conditions and showed that the shelters could withstand 115mph wind and a 25lb./sq ft snow load for the standard units. A safety feature that comes with every shelter is hold-down rods at the corners of the unit, which allows the unit to be secured to the ground.

For weather-related concerns, it will be helpful to listen to the experience of Boston installing these shelters. However, I couldn’t reach the Boston planning department for related inquiries during this research period.

- What types of regulations are in place for regulating this all-on-one-lot development?

Merits of incorporating pallet model in Moncton

Considering Pallet Shelters In the Context of Moncton

Pallet models are expected to address these concerns as they provide shelters with combined services on-site. People sheltered in pallets don’t necessarily need access to services downtown as frequently as now because they will have ready access to essential services on-site.

Establishing pallet shelters will trigger a rezoning process similar to Fredericton’s 12 Neighbors Project, as it doesn’t meet any of the current definitions in the Zoning By-law. To implement pallet shelters, a sub-study or analysis may need to be conducted to see how this building form of shelter/housing may (or may not) be integrated within Moncton’s zoning framework. The questions of the sub-study may address:

A Quote for Pallet Shelter

Improving Social Amenities through Coordinated Community Development And Municipal Planning

Lack of capacity to deal with emergency situations

Especially during the extremely hot and cold sea sons, the homeless individuals and people living with precarious housing conditions have nowhere to go. This has only become more concerning as extreme weather events have been more common in recent years. Last year, the city had to spend nearly $400,000 to run a dormant fire station as an out-of-cold shelter for three months.

For the homeless individuals to move upward to the system, they need an access to multiple services. A critical part of it is addressing their basic needs such as food, clothes and sanitation. They also need services that will enable them to move on to the next stage, such as job training/referrals and housing consultation. However, these services are currently dispersed and offered in different sites, making it hard for homeless individuals to navigate between various services. In addition, the ques tion of “why the homeless individuals sleep on the street?” can be answered by the lack of daytime destination for these people.

Lack of daytime destination and dispersed services

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Insight 2. Drop-In Center

Figure 13 - The amount of budget spent for out-of-cold shelter

Figure 14 - A person sleeping in front of a church

Background

What Drop-In Centers Are About?

A drop-in center is technically a service agency for the mentally ill, homeless individuals, teenagers, and other communities that offers a place where people can go to obtain food and other services. Unlike a homeless shelter, a drop-in center usually does not provide a temporary residence. Instead, it aims to provide other services to various disadvan taged groups in the community, including the home less, people with addictions, or teenagers. Drop-in centers are usually open during the daytime. Some regular drop-in centers double as warming and cooling centers in the winter or summer and may provide overnight shelter during these months.

Drop-in centers can serve two primary purposes: addressing essential human needs for a dignified life and long-term change through empowerment and health justice. Meals, storage, washroom, laundry, and showers are critical services for the homeless population. However, it can enable longterm change through harm reduction, housing, em ployment readiness training, referrals, computers, support groups, and community empowerment.

Improving Social Amenities through Coordinated Community Development And Municipal Planning

Figure 15 - Drop-In Center Concept

CentralSingle, Drop-In Center Synergiesbetweenservices

Drop-in centers can be either standalone or com bined with shelters. In Moncton, considering that all the shelters are currently at their maximum capacity and, more importantly, all dry, it is not feasible to combine both. Harm reduction services have to be part of the drop-in center. For example, YouthQUEST drop-in center has been operated quite successfully for youth ages 16 to 24 who are either homeless or at-risk of becoming homeless.

YouthQUEST Central operates multiple pro grams for youth, including a drop-in center, case management, transitional housing, and drug intervention program. Specifically, the drop-in center provides laundry, showers, food, clothing, phone, computers/internet, counseling, recreational programming, and artistic activities. Spaces for the drop-in center and their transitional housing are separated, and their drop-in center is also inclusive to those who don’t nec essarily use the housing services.

Considering that the population needing dropin centers is highly concentrated in downtown Moncton, it might not be practical and feasible to establish multiple drop-in centers across the city. There needs to be further study examining models or examples that show barriers and successes in implementing multiple drop-in centers.

Figure 16 - Pros and Cons of Single vs. Multiple Drop-In Centers

Single vs. Multiple Drop-In Centers

Perceived as a “Ghetto”

More manageable/ more personalized care betweendisconnectionPotentialservices

Meanwhile, multiple dispersed sites can be more manageable and can increase the sense of safety. When a lot of people are together in one place, it is hard for social workers and security officers to handle unexpected situations or provide more cus tomized services. On the other hand, if services are dispersed throughout different sites, those services can be disconnected from each other.

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YouthQUEST Drop-In Center

The single and central drop-in center can enable the concentration of different services, making coor dination between services much more manageable. However, a potential concern for this approach is that the site can be perceived as a ghetto, poten tially getting pushback from neighbors. Therefore, impacts on and harmony with the existing neighbor hood character should be taken into consideration.

Pros Cons

MultipleSmallSites

Standalone vs. Combined With Shelters

What has to be considered when the city plans for drop-in centers? One of the criteria the city can consider is the location and the impact of the dropin center on clientelle and the neighborhood.

Figure 17 - Potential List of Drop-In Center Services (Source: Yale University)

be part of the new drop-in center functions. The extensive list of possible services to be considered is laid out in the image below, which is part of the research done by Yale University.

Also, as the city needs to prepare for a space where people can go during the extreme heat and cold, the new drop-in center can function as an out-of-heat and out-of-cold shelter. Given that the money spent operating an out-of-cold shelter for three months last winter was over $350,000, it can be more affordable to have permanent space for these uses in the long term.

A drop-in center with emergency capacity can ad dress multiple homelessness-related problems that the city is going through.

A Drop-In Center with an Emergency Capacity

First, it can provide a daytime destination for these people who don’t currently have places to go. Also, the drop-in center can provide services that are not present at this moment, such as physical resourc es (bathrooms, showers, lockers, etc.) and case management. Especially the case management was highlighted by multiple interviewees that must

Improving Social Amenities through Coordinated Community Development And Municipal Planning

Insight 3. Harm reduction

Harm reduction incorporates a spectrum of strate gies that includes safer use, managed use, abstinence, meeting people who use drugs “where they are at,” and addressing conditions of use along with the use itself. Because harm reduction demands that interventions and policies designed to serve

Normally harm reduction services are categorized into two core components: safe supply and over dose prevention. Safe supply means legal and reg ulated supply of drugs and needles, and overdose prevention means a strategy to make people use previously purchased drugs under trained supervi sion.

people who use drugs reflect specific individual and community needs, there is no universal definition of or formula for implementing harm reduction (National Harm Reduction Coalition, n.d.).

What is Harm Reduction?

Figure 18 - Harm Reduction Concept

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Harm reduction is a set of practical strategies and ideas aimed at reducing negative consequences associated with drug use. Harm reduction is also a movement for social justice built on a belief in, and respect for, the rights of people who use drugs (National Harm Reduction Coalition, n.d.).

The story is from “evaluation and retrospective view” report prepared by Joanne Marshall-Forgie, BSN, MPH in April 2022 for ENSEMBLE Services Greater-Grand Moncton. Three OPS clients, who no longer use the OPS, because they have started and are continuing in a recovery program, shared their stories as part of the evaluation process.

Improving Social Amenities through Coordinated Community Development And Municipal Planning

I have been using for five years. When I first came to the Overdose Prevention Site, I was homeless. I saw a peer being a volunteer. It made me mad at myself. I thought if they could do it, I could. That was it. That was the last time (I used).

Yeah, I am proud of myself - I did it!

What helped? You guys just seemd to care. It was like you saw me different than I was acting. Like you saw the old me before. Something just said this was the time. I just wanted to try to stop.

The first time I came here we started talking about what kind of work I liked. You talked to me like I was a normal person. I was ashamed but you didn’t seem to notice. I’m not sure what happend but I just wanted to stop; I wanted to come back and tell you I had got a job. I am using methadone but want to stop that too. I am sharing an apartment. I am starting a second job because I want my own place and I am going to get it!

The last three months have been a miracle-not really a miracle. I think about being sober all the time. But I have my children again, and have an apartment. I got a scholarship for community college. Lots of people are helping me, but that visit (to the OPS) was the start for me.

I have been using off and on for more than 30 years. It was ridiculous. I was making my family sick with worry. I couldn’t work. Look at me now. I have a real job, my wife is happy.

I always had jobs, I used to have my own place. I lost everything. I was sleeping outside which didn’t make sense even to me. But I couldn’t stand being at the shelter - it’s like we aren’t even humans there; they go though our stuff; there’s no privacy.

Needle provision

Challenges Service time

Location

Wellness navigator

There are key organizations in the community that play an important role in the harm reduction service system. However, there is a lack of deliberate coor dination between those organizations, which makes it harder to share the current status of the service provision and collectively build ideas about what should be further done.

Overdose prevention

Coordination

The injection room is designed to provide a degree of privacy for clients as well as areas where two clients can share substances and/or assist one another’s injection. Harm reduction information is displayed on posters. The OPS staff are always present in the room, and both Naloxone and an AED are immediately accessible. As individuals enter the injection room, they are offered the essential supplies required for an injection.

What Has Been Done

A dispensing machine was installed in 2020 at En semble providing new needles and naloxone kits. Thanks to this vending machine, people can ac cess those amenities 24 hours a day, seven days a week. The machine sits on Ensemble’s porch, and items are dispensed in plain cardboard sleeves, and people can take two of them at a time. The touch screen can also be used to look up different services like food banks, hot meals, homeless shel ters, and places to go for help with addictions.

Thanks to the vending machine, 24/7 operation of the needle provision service have become avail able. However, it is still behind the service capacity as only one vending machine exists in the commu nity. Other services such as overdose prevention only happen during office hours, which is a problem for people using the services.

Figure 19 - A dispensing machine in front of Ensemble (Source: CBC)

Currently, the needle provision and overdose prevention are solely serviced by Ensemble. It is not sustainable as space-wise, and Ensemble is be yond capacity to service all the population in need of the service. Based on the report, the total num ber of visits for about three months (11/25/20213/31/2022) was 1,380. In addition, Ensemble is considered as a gathering place for homeless individuals around the property, which has been a concern of neighboring communities.

The lack of proper training for harm reduction pro fessionals and the organization considering pro viding harm reduction services was highlighted in the interviews. In addition, the lack of education on harm reduction leads to misperception and ground less rumors among the general public.

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In Jan 2022, a Wellness Navigator position was funded by the City of Moncton’s Community Grant program. The position is developed primarily to address housing security and those issues which im pact a person’s ability to retain housing and access other services. In 12 weeks, 52 persons accessed this service for 101 separate issues.

Training and Education

The city can help set up governance to overcome the barriers in coordinating different organizations on harm reduction services. During the interview, it was discussed that within the current governance entities (e.g., Greater Moncton Homelessness Steering Committee) that many harm reduction-re lated organizations are involved in, it is hard to have a deep conversation about the service itself. Suggested organizations that can be potential ly part of the harm reduction governance were Shelters, John Howard Society, YMCA, Salvus Clinic, Ensemble, and methadone clinics. The primary purpose of this governance would be to share a common understanding of the status of service provision and collectively build ideas about what should be further done.

SOPEN is a community-based initiative organized by a group of students in Hamilton, Ontario. SOPEN encourages people to make informed health decisions by sharing knowledge about harm reduction and overdose prevention in a reciprocal way without judgment and in a brave space. They collaborate with people with lived and living experiences of drug use to empower folks to share their valuable knowledge and ex pertise about the drug poisoning crisis. They provide community resources about harm reduction, organize events and workshops, and archive testimonials.

Expanding & Dispersing the services

Improving Social Amenities through Coordinated Community Development And Municipal Planning

Suggestions

Expanding educational resources for different audiences

Figure 20 - Harm Reduction Education Example

More educational resources on harm reduction for both the general public and social workers are necessary. Especially there is a lot of misconcep tion about what harm reduction is in the community, leading to the negative sentiment around the policy to expand harm reduction services. Harm reduction education is also critical for social workers in differ ent sectors as they deal with people using drugs.

Forging governance

Overdose prevention needs to be 24/7 available and more accessible to the broader population. Generally, more funding from the province will be critical. For dispersing the service, mobile services can be considered an option.

The need for more vending machines that dispense the necessary tools for safe drug consumption was pointed out during the interview. Currently, the only one at Ensemble is not fully reaching the population needing this service throughout the city. Therefore, installing additional vending machines is neces sary, but in distant locations from the current one. For example, one spot on Elmwood Drive could be considered.

Student Overdose Prevention and Education Network (Hamilton, ON)

Lack of Public Washroom

A new public washroom was installed in 2021 in the plaza outside city hall after years of requests for more public facil ities, including downtown businesses dealing with damaged bathrooms. The demand for public washrooms increased during the early days of the pandemic as a number of busi nesses were closed entirely to the public. It was planned as an accessible, single-toilet washroom meant to be self-cleaning. It also has mechanisms that clean the toilet and walls with disinfectant on a regular basis. The city has spent $300,000 on the project, with $200,000 of it paid by the federal government through a COVID-19 recovery program.

Insight 4. Public Washrooms and Showers

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Public Washroom in Downtown Moncton

Access to clean water and sanitation is globally recognized as essential for public health. Pub lic toilets should be accessible to all members of society, without social or physical barriers preventing usage. Especially, the public washroom is an essential amenity for the homeless population.

However, in Moncton, there is only one standalone public washroom, not including the ones in the public parks, to which people have easy access. The one is located in front of the city hall, which is a single toilet meant to be self-cleaning. It was initially suggested by a business community and

Figure 21 - Public Washroom In Downtown Moncton

building owners downtown that were having prob lems with homeless individuals using drugs in their washrooms. Vandalism has also been one of the significant problems. For instance, brass bathroom drain covers were stolen several years ago from the Peace Center building occupied by several non-profits that work with people in need. Property damage has led some businesses to hire security as well.

Recommendation

The City has been working on a citywide public washroom strategy to improve access, user experi ence, and management of existing public washroom facilities. The program was operated year-round. All of the mobile washrooms were primarily established on public lands; however, in case the applicants want the City to install them on private lands, they are the responsible party for obtaining permis sion from landowners. Their overall approach is to 1) increase access to washrooms through temporary facilities and partnerships, such as the 2022 mobile public washroom project, and 2) develop more permanent public washrooms.

Edmoncton Public Washroom Strategy

It was unanimously pointed out throughout the interviews that the city needs to consider increasing the number of public washrooms.

Figure 22 - A Case Study on Public Washroom Strategy

Edmonton’s public washroom strategy can be a good reference as they started with a pilot project, which is less burden for the public. The city can consider adopting the idea of installing temporary washrooms based on community engagement and plan for more permanent washrooms accordingly.

However, when the city approaches expanding public washrooms, they can consider engaging multiple stakeholders in selecting the location and types of the public washroom. Also, as quite a significant amount of budget was spent to install the current public washroom in front of the city hall, it is expected to go with a more cost-effective approach when imagining new ones.

33 Improving Social Amenities through Coordinated Community Development And Municipal Planning

Figure 25 - YMCA ReConnect

On September 28th, 2021, the recommendations were made to the Halifax Regional Council to direct staff 1) to rent portable shower facili ties for a period of nine weeks and 2) to explore the potential of refining and expanding the shower program in recreation centers operated by the Halifax Regional Municipality as well as partner facilities. It was to address the hygiene crisis experienced by homeless individuals that was only exacerbated during the pandemic. The report highlighted that portable shower units and recreation centers could be considered to expand shower facilities across the city. In preparation for this work, staff has conducted a preliminary facilities review, primarily of numerous recreation centers throughout the Municipality. And while options to provide longterm shower facilities are being considered, staff recommended installing a portable showering unit for a nine-week period starting October 1st,

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Moncton is not an exception. There are only two sites where currently the homeless individuals have access to shower – YMCA and St.George’s Anglican Church. However, there are also certain barriers for using these facilities. For instance, the barriers for YMCA shower facility is they require government issued photo ID which could be barrier for some homesless individuals. Also the church only offers shower from 8-11 am during their opera tion hour as it is the only time frame they are open and staffed. Therefore, the need for more shower facilities have been pointed out.

Halifax Mobile Shower Pilot Program

Figure 24 - St.George’s Anglican Church

individuals adamantly seek out showers and other forms of maintaining hygiene, individuals who sleep outdoors or participate in substance use are at greater risk of being unable to regularly access showers and sanitation.

Access to sanitation methods such as showering is a precondition for good health and hygiene. Individuals who do not have access to showers and thus shower only occasionally are at risk for diseases and infections org/access-to-showers/).(https://borgenproject.Thoughmanyhomeless

Figure 26 - Halifax Mobile Shower Pilot Program

Lack of Shower

◄ Moncton has a food security schedule where different organizations operating soup kitchens coordinate with each other to provide information about the service provision, which contributes to predictable and effective service provision.

Improving Social Amenities through Coordinated Community Development And Municipal Planning Recommendation

Figure 27 - Food Security Schedule between Soup Kitchens in Moncton

Food Security Schedule in Moncton

Tapping into existing infrastructure

running a food security schedule.

The city can consider forging a partnership with organizations that have shower facilities in their buildings by providing financial support for oper ations and staffing costs. Some organizations, such as Salvation Army, have a shower facility and already meet their clients regularly as they do case management and outreach. Starting a conversation about better using existing infrastructure with these organizations could be one way to expand services. The community is already experienced with the coordinated approach to providing services through

Mobile shower trailer

Mobile shower trailers can always be considered to provide services more immediately. Especially during the Summer, there is increased need for showers.

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One of the typical ways that the municipalities leverage their public power to guide development is through zoning. Zoning can be used for regulating

Insight 5. Institutions

Figure 28 - Concepts of Social Inclusion

Institutions to Expand Social Amenities

the built environment of the development as well as its operations. Besides, zoning is often used to pro vide incentives for private developers to contribute to public amenities such as washrooms and public spaces.

Municipalities can also support non-profits in build ing various social amenities by disposing of public lands and properties at a reasonable and affordable price. Public-private partnership is important to make the development scenario for social ameni ties more feasible.

While previous chapters dealt with amenity-specific suggestions, this chapter addresses the potential ways the City can prepare the institutional infra structure to expand social amenities in the long term. Expanding social amenities not only means the numerical increase of social amenities and ser vices, but also their development is properly guided and regulated.

Figure 29 - City of Moncton Zoning-by-law

Four emergency shelters are permitted in all different zones – suburban commercial zone, mixed-use, secondary business district, and central business districts. The below is the definition of residential care facility in the Zoning By-law.

A “residential care facility” means a building or part of a building used as a dwelling in which nurs ing, supervisory care, or personal care is provided or made available to four or more persons with social, health, legal, emotional, mental, or physical disabilities or problems, and includes but is not limit ed to such facilities as are regulated under the Family Services Act, S.N.B. 1980, c. F-2.2, but does not include any public or private hospital, sanatorium, jail, prison, reformatory, or hostel. (établissement de soins spéciaux pour bénéficiaires internes)

Zoning is a typical institution that local government can leverage to guide and regulate development. Zoning can be used as a tool to influence how a community changes and grows and to increase housing affordability. Zoning is the practice of dividing land into different areas, or zones, according to how the land can be used. It can also regulate the types of buildings that are permitted, their height and location on the property, their appearance, and other characteristics.

Moncton has relatively non-prescriptive zoning when it comes to the social amenities for homeless individuals. One of the examples is zoning for emergency shelters. Under the current zoning by-law and through likely unintended, shelters are mainly permittted in various zones via the “residential care facility” use. “Residential care facility” is a “permitted use” in the following zones: R2, R2U, RM, R3, SC, MU, PS, CBD, SBD, and UR; and a “conditional use” (requiring Planning Advisory Committee ap proval) in the following zones: P-1 and LI. Section 101 limits the floor area of a “residential care facility” to 225m2 in the R2, R2U, and RM zones.

Zoning

Improving Social Amenities through Coordinated Community Development And Municipal Planning

While zoning is primarily understood as a measure to regulate development, it can also be used as an incentive through policies such as density bonusing and Community Amenity Contributions (CAC). A density bonus is a voluntary system of exchange between a local government and land developers. Community Amenity Contributions (CACs) are in-kind or cash contributions provided by property developers when the city council grants development rights through rezoning.

Assessing Current Conditions of Zoning By-Law in Moncton

To properly guide and regulate the development of emergency shelters, they developed separate shelter uses. While limiting the period of the permit, they permitted the shelter in all zoning districts ex cept industrial districts, low-density residential uses, or any site deemed unsuitable due to the adjacent land uses which may create life safety issues. They also regulated on-site supervision and support services are provided at all times when such shelter is occupied, occupancy start date and anticipated end date, and the maximum number of people being accommodated.

TORONTO

SASKATOON

The City of Saskatoon has done a zoning bylaw amendment to help establish temporary emergency shelters for homeless individuals in 2021. As winter approached, the administration was approached by community groups who have expressed an interest in providing safe housing and/or temporary shelters for those in need.

- What is the enabling legislation for municipalities to regulate shelters? (assuming it is provincial)

- If approved, how does a municipality accept operational plans?

Next Steps

- What are the staffing resources for the municipality in dealing with shelters? (i.e., expertise, job titles, etc.)

Case Studies

In Toronto, municipal shelters and crisis care shelters were permitted as-of-right in most zones. As-of-right zoning means that if the development complies with all applicable zoning regulations, they do not need discretionary action by the city planning commission or board of standards and appeals. Zoning needs to be prescriptive enough to do that so that the city can develop enough regula tory details without a discretionary review process. Toronto also has municipal shelters and crisis care as different permitted uses.

To take these examples to inform Moncton’s zoning amendment, a future study will need to dive deeper into these cases. The prospective study might address the following questions:

- How are the shelters or the equivalent managed for compliance by the municipality?

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Before 2019, these uses were permitted subject to two conditions: 1) 250-meter separation distance from another shelter, 2) requirement to be located either on a major or minor arterial road – a street with significant traffic volume – or close to the main street. However, they repealed these conditions in 2019 to remove the barriers as communities constantly pointed out that it violates the Canadian Charter of Rights and Freedoms.

• Substance Use Care : Use of land, buildings or structures to provide services to the general public associated with substance use, and includes the following: Harm reduction supply dispensing; Overdose prevention; Substance testing; Witnessed consumption of substance - safe injection/inhala tion; Dispensing of controlled substances

GUELPH

CAMPBELL RIVER

- Every emergency shelter outside of the D.1 zone shall have a minimum of 1 off-street parking space for every 4 beds.

• Supportive housing: means the use of a building with dwelling units to provide services and sup ports on-site that are designed to assist residents who need specific support services while allowing them to maintain a level of independence. Support ive services may include, but are not limited to, col lective dining facilities, laundry facilities, counseling, educational services and life skills training.

Since June 2022, the City of Campbell River has been exploring changes to how social services are regulated in the community through a zoning bylaw amendment. If adopted, the bylaw would adjust how social services are defined and where they are permitted to operate in the community. Following direction from the council and considering public consultations and professional recommendations, a dispersed service delivery model that avoids a concentration of services downtown is proposed. Social care and substance use care have been considered as separate permitted uses.

• Social Care : Use of land and buildings or struc tures for the provision of services and care that are delivered on a first come, first serve basis (drop-in), for persons who require specialized care for any purpose including, but not limited to, community kitchen, food bank, provision of meals, hygiene (showers and laundry) and clothing

• Emergency shelter: means a facility which provides lodging and services to meet the needs of people experiencing homelessness.

The city of Guelph has developed detailed regulations for different housing types relevant to serving the homeless population.

- An emergency shelter shall be limited to a maximum of 16 beds.

• Support care bachelor units: means a group of self-contained bachelor units including a common room designed for single adults and supervised as a residential care facility.

39 Improving Social Amenities through Coordinated Community Development And Municipal Planning

City of Monterey, CA

Nevertheless,process.potentially

framing out a new use for as-of-right purposes, more “hands-on” provisions relating to operations may be done through agreement (e.g., rezoning or section 131 agreement with the developer via conditional use). Section 131 of the Community Planning Act would still require entering into an agreement with Coun cil, but not a public hearing process (however, the public gets the opportunity to speak at the Planning Advisory Committee meeting). Despite involving an agreement, it is the intent of planning legislation to approve a conditional use (permitted subject to conditions). The agreement helps implement the conditions.

Scenario2. Introducing ‘emergency shelter zoning overlay’

Scenario1. Introducing ‘emergency shelter’ as a separate permitted use

The city can consider defining shelters as a separate permitted use. One of the references could be Toronto, where they define ‘municipal shelter’ and ‘crisis care shelter’ as separate uses in the zoning by-law. In this way, the city can be more clear about where these uses are permitted and what desired development and operation codes are. As this way of zoning regulation does not require a discretion ary review process when they meet the regulatory details outlined in the zoning, this way of zoning regulation is normally called “as-of-right.”

If a developer proposes to establish conditions for a development that are additional to those required by a zoning by-law, zoning provisions in a rural plan or a subdivision by-law or regulation, or if terms and conditions are imposed under paragraph 44(6)(a) or (c), paragraph 53(3)(c), section 55, subsection 73(2), section 78 or para graph 125(9)(a) or (e) or (11)(b), the following may enter into an agreement with the developer to ensure the performance of the conditions.

In 2017, Emergency Shelter Overlay District was created to facilitate and encourage the provision of emergency shelters for homeless persons and households by allowing permanent year-round emergency shelters without a con ditional use permit or other discretionary action. The District rules operational and management requirements that include the maximum number of beds, off-street parking, light levels and spac ing, size of indoor waiting areas, on-site management, security, length of stay, and distance rule from other shelters.

Emergency shelter overlay district identifies ar eas within the city in which emergency shelters for the homeless and multi-service centers for the homeless may be established. The requirements imposed by the zone are intended to supplement and supersede those requirements contained in the base zone. Creating separate zoning for shelters requires a sense of emergency at the higher politi cal level.

However, in the case of Moncton, the parent legislation (provincial Community Planning Act) only confers certain powers to regulate as-of-right zoning. As a result, compared to other jurisdictions, Moncton does not have the power to ask for opera tional/supervisory plans etc, through the as-of-right development

Community Planning Act Section 131

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Emergency Shelter Zoning Overlay Case Agreement with developer

Zoning Amendment to a Prescriptive Way

Pros and Cons of Prescriptive Zoning

When those specifities are reflected in the zoning code so that every case doesn’t need to go through a discretionary review process (= by-right), it can not only properly regulate but also expedite the establishment of these amenities . As seen in the case of the City of Saskatoon, defining an emergency shelter in a more prescriptive way can guide the incorporation of on-site supervision and support services, parking, access for emergency vehicles, the maximum number of people being accommo

In general, specifying certain amenities through definition and use in the Zoning By-Law may have the opposite effect in enabling it. The zoning amendment can shine a light on this matter, and it can result in further limitations on the locations of these uses. Under the current interpretation of resi dential care facilities, it may be reasoned that more shelters could be achieved in that way.

Various social services for homeless individuals have specific operational codes that need to be considered when permitting. For example, a maxi mum number of beds and the presence of security should be included in shelter regulations, which might not be a consideration for other types of care facilities.

dated.As

mentioned in p.40, Moncton currently does not have the power to ask for operational and superviso ry plans, etc., through the as-of-right development process due to the limiting parent legislation. To consider the utility of introducing more power to regulate as-of-right zoning, further study will be necessary The study will aim to understand better how other jurisdictions are (or aren’t) regulating the operations of facilities and the future potential use of conditions/agreements in the legislative context. It can address other jurisdictions’ legislative powers, zoning mechanisms if applicable, legal agreements if appli cable, legal liability for reviewing/accepting/approving operational plans, and compliance/enforcement.

Improving Social Amenities through Coordinated Community Development And Municipal Planning

PROS CONS

A Call for Further Study

Put further limitations on the locations where these uses are allowed in the city

In addition, based on the recent experiences of the city administration with development applications for supportive rental housing, the NIMBY effect on a shelter as a permitted use is expected to be substantial. It implies that it could result in Council not permitting shelters in any zone in the amendment process.

Regulate proper operational codes for sensitive social amenities

The City of Moncton has recently adopted a dis position and acquisition of municipal land policy in June 2022. The policy includes surplus land desig nations for primarily five purposes: economic devel opment, affordable housing development, extraordinary, remnant, and intergovernmental transfer.

Disposition and Acquisition of Municipal Land

For land disposition for affordable housing, the ‘ScheduleB – Disposition of Affordable Housing Properties’ indicates that the administration shall develop and maintain a list of affordable housing, not-for-profit corporations currently or interested in operating in the City of Moncton.

Introduced on June 20, 2022, the purpose of this policy is to provide direction to the City Council and Administration in the disposition and acquisition of municipal land. Specific protocols for the disposition of surplus land, as per respective surplus designations, are also contained. As a criterion for surplus land designation, the policy recommends administration to consider proximity to the transportation network, essential services, public amenities, heritage resources, adjacent land uses and compatibility etc.

Figure 30 - Moncton’s Public Land Disposition and Acquisition Policy

This chapter deals with how the city can think about utilizing its land acquisition and disposition policy and zoning to forge a public-private partnership in providing various social services.

The challenge is not an exception to the City of Moncton. As governance reform goes on, the City is expected to take on more roles that were traditionally provincial government’s. To cope with these changes, the City may need to think outside of the traditional ways of providing subsidies and consider different ways to finance the development with public resources.

Public-Private Partnership

However, it was noted that the city doesn’t have many land holdings left for disposition. It necessi tates strategic property acquisition policy in the long term which is addressed in the next page as part of recommendation.

In most cases, establishing social services costs a lot as it is hard to profit from their operation. As a result, it often causes local governments to provide significant amount of public subsidies.

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However, the reality that many local governments face these days is that they are supposed to be more responsible for expanding social amenities. As the role of local government expands with the reduction of the responsibility of higher levels of government, it causes an huge fiscal burden for many local governments.

Leveraging public land disposition policy

On the schedule, the meaning of affordable hous ing can be more broadly defined to include different types of housing and services that non-profit organizations provide in the community – emergency shelters, short-term and long-term transitional housing, and even substance use care (as seen in the case of the City of Cambell River). This action can potentially help when there is a proponent of specific social amenities currently not part of disposition policy, seeking gifted land from the city.

The City’s public land acquisition and disposition policy say that “the acquisition will be considered by the council if there is an identifiable municipal pur pose connected to the specific property, which may entail environmental considerations including, but not limited to, the preservation of land for environ mental purposes.” Currently, the reason behind the acquisition is limited to addressing environmental considerations.

Figure 31 - CAC and Density Bonusing

• Community Amenity Contributions: Community Amenity Contributions (CACs) are in-kind or cash contributions provided by property developers when City Council grants development rights through rezoning.

of introducing these policies

Land acquisition policy can be expanded to include the acquisition of various social purposes, including increasing social amenities. For example, the Hali fax Regional Municipality states that it may acquire property that it requires for its operational or public •purposes.Infrastructure like roads, sidewalks, and bridges

Improving Social Amenities through Coordinated Community Development And Municipal Planning

• New municipal facilities such as community cen ters, fire stations, transit terminals, and parklands

Incentive Zoning

Introducing incentive zoning can impose private developers to share the burden of expanding social amenities. There is currently few mechanism where private developers are encouraged to contribute to various social amenities, including public washrooms and vibrant public spaces. The City can consider introducing a voluntary mechanism where private developers can contribute amenities or money in return for various incentives.

To better execute the acquisition policy, many local governments have corporate real estate offices so that they can work in cooperation with municipal client departments to acquire the property or property rights needed to accommodate particular municipal projects. The City of Moncton can also consider activating real estate functions further.

• Density Bonus Zoning: Density bonusing, sometimes referred to as bonusing or floor area relax ations, is used as a zoning tool that permits devel opers to build additional floor area in exchange for amenities and affordable housing needed by the

are that City’s current zoning is already relatively non-restrictive and have relatively high-density ceiling, making little room for negotiating power from the government.

Strategic property acquisition

Expectedcommunity.challenges

Re-zoning and amendments

Community Planning Act Section 59

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NIMBY Market Condition Provincial Legislation

3) Limiting provincial legislation

To collect cash-in-lieu, the Incentive or Bonus Zoning Agreement By-law would first need to be enacted. The City has been exploring the utility of this tool for affordable housing and green devel opment standards. However the City hasn’t gone down this path yet for several reasons.

2) Need for a thorough assessment of the market context

For Density Bonusing, the City has been us ing the section 131 tool as sort of a current workaround for density bonusing. They have had their first building variance (allowing greater density) be subject to conditions of affordability via agreement. They have linked the agreement to the affordability conditions of the Canada Mortage and Housing Corporation (CMHC) program.

Incentive Zoning (Cont’d)

Other provincial jurisdictions have ‘flat rate’ incen tive bonus zoning and cash-in-lieu (e.g. Halifax Regional Municipality) which are built into zoning provisions and need not a full public hearing and legal agreement process. Due to the limiting provin cial legislation, it is possible that Moncton may wait for legislative change at the provincial level.

It will be premature to ‘dial in’ cash in lieu rates for these community amenities without first better understanding the market context.

For Community Amenity Contributions, even though not used actively yet, currently the council theoretically has the powers to negotiate communi ty amenity contributions through the discretionary rezoning process, and this may be done via Con ditional Rezoning Agreement (Section 59 of the Community Planning Act).

What to Consider

1) Potential NIMBY Trigger

Suppose a person applies to the council to have an area of land re-zoned to permit the carrying out of a specific proposal. In that case, the council may impose reasonable terms and conditions by resolution. The council may also enter into an agreement with a person respect ing matters contained in a resolution to assure that the re-zoning of the land in the zone and any building or structure on the land is devel oped and used in accordance with the terms of the agreement.

This tool can only be used for like a rezoning pro cess, involving a full public hearing etc. This would draw out the approval process and be a NIMBY trigger for affordable housing projects.

Improving Social Amenities through Coordinated Community Development And Municipal Planning

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Insight 6. Mapping Potential Sites for Social Amenities

Figure 32 - Concepts of Geographic Analysis

Compatibility with surrounding land uses Community FutureDemographicscharactersdevelopment

However, the concentration of shelters, clinics, and harm reduction services in downtown have been a concern more recently. As the city experience an increasing level of homelessness, the presence of the homeless individuals in downtown has become more salient. This has been a concern for business

Where is a good location to plan for social ameni ties? Understandably, the primary principle will be accessibility to the people using them. In Moncton, as many services for the homeless individuals are already quite concentrated in downtown, it will make sense to add another one in downtown.

owners in downtown as they see more panhandling and potential crime during the nighttime.

Integrating Geographic Components Built

EnvironmentFactor

Moreover, there was a suggestion that social ser vices could be smaller and dispersed throughout the city so that those services could reach more people. For instance, as pointed out earlier, current shelters are bigger than they are supposed to be. It has resulted in not only the lack of personalized care for clients but also a significant neighborhood impact where they are established.

This geographic analysis aims to explore multiple factors in identifying potential locations for social amenities in the city using suitability analysis. As different social amenities require consideration of different factors, this analysis tries to locate pallet shelters, one of the suggestions of this report.

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Socio-Political Factor

+ Distance/proximity PhysicalTransporationconstraintsAreaoflandparels

Improving Social Amenities through Coordinated Community Development And Municipal Planning

The distance to the health services and food was not included in the final formula. It’s because it’s been assumed that mental health care, harm reduction, and meal services are on-site. Therefore, the people living in the new shelters don’t neces sarily need access to Salvus, Ensemble, and soup kitchens on a daily basis. However, the accessibility to these uses is indirectly considered through the proximity to the bus network as almost all the bus routes go downtown.

in the next 100 years. Therefore, in the analysis, the land parcels that are on the flood prone area were excluded from the consideration as potential sites.

• Distance to the existing shelters

Constructing Site Suitability Analysis Model

Weighted Site Selection and Suitability Analy sis

STEP3: Relationships with other amenities

• Distance to the food: Grocery and soup kitchen

The City of Moncton’s Zoning By-law ensures that all new habitable space in new constructions be built at a minimum elevation of 10.5m to help pro tect properties from flooding events that may occur

STEP2 : Consider environmental hazard

Figure 33 - Steps for Land Suitability Analysis for Shelters

The first step was to identify available land based on the planning department’s vacant land analysis. The data includes information that includes but is not limited to geographic location, ownership, and assessed land value.

To construct a formula for weighted site selection, multiple variables like below were initially consid ered.

STEP1 : Identifying Land Availability

• Proximity to the bus network

• Proximity to the sensitive uses (day care facilities and •schools)Distance to the health services; Salvus and Ensemble

Site selection or suitability analysis is used in GIS to determine the best place or site for something. Weighted site selection analysis allows for the rank of raster cells and assigns a relative importance value to each layer. The result is a suitability surface that ranks potential sites from 1 to 5. Sites with a value of 1 are least suitable, and those with a value of 5 are most suitable. Weighted site selection is vital because it includes options for viewing the next-best sites when the ideal sites do not work (Briney, 2014).

Interactive Maps

Interactive Web Map

Geographic scope of Analysis

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This web map shows potential lands that can be used to establish pallet shelters. Besides, the map includes the following information: ward boundar ies, locations of essential amenities (grocery stores, salvus clinic, ensemble), walkshed analysis (distance from bus stops, existing shelters, sensitive uses), demographics (population, income), flood zone, and municipal boundaries (Moncton, Dieppe, and Riverview). Each layer has relevance in identi fying good candidate areas and sites for additional

scope of the analysis includes Moncton, Dieppe, and Riverview. All of the geo graphic analysis were done in three municipalities as they closely work together. Especially social services for the homeless individuals are currently concentrated in the Moncton area, which might need to be dispersed throughout three municipali ties in terms of burden sharing. However, vacant lot analysis was only done in Moncton due to the data availability.

Theshelters.geographic

Walking(score1).distance

Each variable was weighted 60%, 20%, and 20%, respectively, to develop a map showing the distri bution of suitable areas and land parcels for shelter placement.

Walking Distance from Sensitive Uses

Walkshed Analysis

Walking Distance from Bus Stops

Walkshed analysis was conducted based on the locations of bus stops, existing shelters, and sensi tive uses. A walkshed is the area around a specific point of interest that is reachable on foot for the average person.

from sensitive uses (day care centers and schools) to determine the adequate distance from points of concerns. Depending on the walking distance, they are assigned differ ent scores: Land parcels within 15-min walkshed (score1), land parcels within 30-min walkshed (score3), and land parcels outside of 30-min walk shed (score5).

from shelters is used to deter mine the level of dispersion of shelters. Depending on the walking distance, they are assigned differ ent scores: Land parcels within 15-min walkshed (score1), land parcels within 30-min walkshed (score3), and land parcels outside of 30-min walk shed

Walking distance from bus stops was used to deter mine the accessibility to the transit network. De pending on the walking distance, they are assigned different scores: Land parcels within a 5-min walk shed (score5), land parcels within a 10-min walk shed (score3), land parcels within 15-min walkshed (score2), land parcels outside of 15-min walkshed

49 Improving Social Amenities through Coordinated Community Development And Municipal Planning

Walking(score5).distance

Walking Distance from Bus Stops

(DaycarefromWalkingSheltersDistanceSensitiveUsesandschools) XXX 20%20%60%

Walking Distance from

Walking Distance from Shelters

the area around Elmwood Drive, and Frenette Avenue, the area around Magnetic Hill got relatively higher suitability.

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After the walkshed analysis for each variable, they are weighted based on their significance to the mapping process. Accessibility to the transit network was weighted 60%, and the other two vari ables (distance to the existing shelters and sensi tive uses) were weighted 20%, respectively.

As a result, the raster map above shows the gen eral trend of land suitability for shelters. Darker the color means that they got higher suitability. One of the most noticeable trends is that downtown is the least suitable area, presumably because of the concentration of shelters, daycare centers, and

Weighted Raster Calculation

Interactive Maps

Inschools.Moncton,

Land Suitability Analysis

51 Improving Social Amenities through Coordinated Community Development And Municipal Planning

After producing a weighted raster calculation map, those suitability scores were applied to the land parcel data. Land parcels were assigned the raster value based on their geographic location. In the interactive map, when users click on each parcel, they can see the information on those land, including but not limited to zoning, current use, ownership, and the assessed value).

Suitability

Based on the 2021 census, population and income data (by census tract) were incorporated into the map. These data show the context in which land parcels were situated, informing the social implica tions of decisions to establish shelters in a specific

Population by census tract

Integrating Census

Income by census tract

density can help infer the density of city fabric which is related to the availability of lands and properties and the neighborhood characters. For instance, when the population data is juxta posed with other information layers of the map, such as land values and zoning, it can further inform decision-making.

Interpreting average income data can be tricki er than population data. Usually, as the average property values in low-income areas are lower than the high-income areas, there can be a tendency to locate these NIMBY-prone amenities in lower-income neighborhoods. It is also partly because these amenities often get more powerful commu nity pushbacks when there is an attempt to locate these in higher-income neighborhoods. However, decision-makers need to take into consideration the common tendency of these amenities to go to lower-income neighborhoods that can enhance spatial inequality.

Populationarea.

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And Municipal Planning

Notes on Feedback

The seperation rule adopted in the analysis is to integrate the suggestion from previous reports (i.e. call for smaller and more dispersed shelter sit ings on the Joint Action Report on Homelessness and Downtown Security) and address the existing concerns of shelter being heavily concentrated in downtown. However, the analysis is not suggesting that it should be part of any legal and regulatory documents. It could be one of the internal consid erations for municipal governments when they are looking for locations.

1. As highlighted in the case study (p.38), Toronto recently repealed the conditions included in the zoning that rules 250-meter seperation distance from another shelter. It is because these conditions are considered as barriers as communities pointed out that it violates the Canadian Charter of Rights and Freedoms. In this light, creating buffer distances between social facilities supporting disadvan taged populations (e.g. required zoning seperation distances) might not be a right move.

2. There was a feedback that “Walking distance from sensitive uses” layer which is a negative buffer creates an unrealistic output of shelters being inap propriate for the downtown area and appropriate for locations such as Frenette Avenue (zoned Industri al Park (IP)) and Magnetic Hill (zoned Tourism (TR) and Parks and Community Use (P-1)).

First of all, it will be important to highlight that this mapping considers Pallet shetler in mind which is a self-sufficient model combining shelter and related services. The rationale for pallet started from the fact that it doesn’t need to require daily access to services in downtown which gives a little bit of freedom in locating these types of shelters. Howev er, there is a risk in generalizing this model to other types of social amenities as individuals expeirenc ing homelessness do graviate to the downtown as there is a concentration of services.

Coordinated Community

3. In terms of interpreting the result of the analysis, though they may ‘score’ well in the analysis, there was a feedback that functionally it would not likely be feasible to have a shelter in some areas, with exception of Elmwood Drive. I agree with this feedback, and there needs to be further qualitative assessment of the land that got high score in the technical anaylsis. Those qualitative assessment can consider neighborhood character, market conditions, appropriate zoning, and potential opposition.

Improving Social Amenities through Development

Insight 7. Communication Strategies

done about it and who is responsible for taking action. This way of thinking goes largely unchallenged and existing stories often likely inadvertently reinforce it.

PublicProblemthinking about homelessness is trapped by the idea that a person’s circumstances are determined by their willpower, character and choices. And this view shapes how people make sense of homelessness – its causes, what should be

The public seeing the ‘typical’ homeless person as a “middle-aged man” has profound implications for how those affected are perceived: as either out siders or victims, as individuals who belong in a separate category of society. As a result, the public naturally struggles to understand the experiences and how they might be helped.

opportunity that can challenge com mon misperceptions about “who are the homeless” is necessary. Diversity in housing problems (from sleeping on the street to Couchsurfing) they go through, and demographics (from young people to people with their kids) needs to be better communi cated. Education about different demographics and cases experiencing homelessness can enable the community to associate themselves with diverse stories.

Communication to Constituents

Every day people often don’t see their roles in addressing homelessness. As a result, people wait for the municipal government to act. However, it is important to engage vocal citizens by letting them know potential actions they can be involved in, such as advocating for MLAs and their representa tives who are keen on housing and homelessness issues. Also, they can be better informed about which organizations they can support to advocate for their work.

Prototype Problem

HighlightSolution systemic problems that cause homeless ness, such as unaffordable housing costs, housing supply shortage, lack of health care (especially mental health and addiction), and lack of harm reduction services.

Action

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Individualism

AnSuggestioneducation

- Eco360, formerly Westmorland Albert Solid Waste Corporation, deals with a collective effort to manage solid waste in the region.

- The issue of homelessness can be dealt with as part of Plan360’s regional planning initiatives.

Measures

- Similarly, with the communication with neighboring municipalities, it was suggest ed during the interview that big cities need to better coordinate in sharing their ap proaches and learning better from each oth er. Moncton, Fredericton, and St.John’s social development departments may set up regular calls.

• In either shelters or drop-in centers, it is critical to provide wrap-around support for them to fully func tion. Especially mental health addiction support has to be fully funded by the province so that the munic ipalities can consider creating these amenities as a way to address homelessness.

• Setting up regular communication

• Big cities in the province need to be in close communication with each other in terms of 1) checking the current status of efforts in each city and 2) demanding the province to politically/financially support the municipal actions to address homeless ness.

• There is a need for more [shelters/drop-in centers/ harm reduction services/public washrooms and showers] to address homelessness in the Greater Moncton area.

- Finding ways to be financially responsible for establishing these amenities has to be dealt with within the tri-municipality conversation (e.g., Regional Service Commission).

- One of the barriers pointed out during the interview was the organizations providing social services in three municipalities are not connect ed, making it hard for them to coordinate. There fore, it was suggested that organizing regular calls between social development departments of three municipalities with bringing relevant organizations would be a good idea.

• Setting up a regular communication

- When considering adding these amenities, the work of identifying potential sites should be a collective effort between the three municipalities

Communication with the Cities of Similar Size in the Province

- Currently, these amenities are concentrated in Moncton downtown and are at their maximum capacity.

Communication with Neighboring Municipalities

Key Messages

- Usually, the Commission has dealt with Plan360 and Eco360.

Measures

Key messages

Improving Social Amenities through Coordinated Community Development And Municipal Planning

• Southeast Regional Service Commission

- Plan360 is the land planning division of the Southeast Regional Service Commission. They are in charge of issuing building and develop ment permits, processing variance, subdivision, zoning amendments, other applications, regional planning initiatives, etc.

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Conclusion

Moncton is one of the fastest-growing cities in New Brunswick, Canada. Traditionally, Moncton has been a welcoming city to newcomers and immigrants in Canada with an affordable housing market. However, as the city grows, there is more and more issue of affordability and homelessness. According to the data dashboard managed by the Human Development Council, the total number of individuals experiencing homelessness is 222 as of June 2022, and individuals experiencing chronic homelessness are 174.

Institutional strategies recommendation dealt with improving institutions (zoning amendment, public land acquisition, disposition policy, and incentive zoning), exemplary geographic analysis of po tential sites for new shelters, and communication strategies. These suggestions can be a starting point when the city considers preparing long-term institutional infrastructure to expand various social amenities.

of-heat/out-of-cold shelters during Summer and Winter. Likewise, shelters can address various problems such as lack of personal space making homeless individuals bring carts around Downtown. Most importantly, harm reduction principles need to be actively incorporated into new amenities.

The report suggested seven key insights that can be categorized into two groups – amenity-specific suggestions and overarching institutional strategies. The need for a drop-in center, shelters, and harm reduction services was critical. The drop-in center can not only address the basic needs of homeless individuals but also function as out-

Figure 34 - A Photo Taken at Salvus Clinic

Providing and expanding social services for people experiencing homelessness is essential to save their lives as well as to move them back to their lives before homelessness. Especially people who went through chronic homelessness must have access to wrap-around support to properly heal their mental health and addiction problems. The homelessness response system needs to interpret the principle of “housing first” as a way to heal the traumas of living without homes in a holistic manner by providing necessary health support for them.

Improving Social Amenities through Coordinated Community Development And Municipal Planning

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Homelessness Steering Committee. (n.d.). Coordinated Entry System Guide Housing Assessment Review Team (HART).