 |
Office of Housing and Construction Standards |
|
|
|
Office of Housing and Construction Standards |
|
Planning Tools for Supportive Housing
What does the legislation say about supportive housing?
How to determine your community's need for supportive housing
How local government policies can encourage supportive housing
How local governments can help make supportive housing affordable
How to monitor and enforce provisions for supportive housing
Evaluating Supportive Housing Proposals
Supportive Housing for Seniors: A Policy and Bylaw Guide has been prepared to assist local governments, community groups and health authorities understand and respond to the housing needs of older citizens.
I am aware that many communities are looking for ways to help their older citizens remain independent. Local governments are frequently asked to consider proposals for housing that provides a combination of independent living with services such as housekeeping and meals, in a safe and comfortable environment. This guide will help staff and councils to evaluate those proposals and to encourage others.
I am pleased that the Ministry of Municipal Affairs and the Ministry of Health and Ministry Responsible for Seniors have worked closely on this guide, with assistance from BC Housing. The guide provides practical tools to encourage the development of supportive housing so that older citizens can live independently for as along as possible.
I hope you find the guide informative and that it proves to be a valuable resource.
Many communities across British Columbia are facing the challenges of providing housing for an aging population. This guide was prepared to help communities address these challenges. It brings together information from a variety of sources to help communities ensure that their older citizens can find housing that enables them to live independently for as long as possible.
Local governments are involved in housing through their land-use decisions, which determine the location and the density of new developments. Local governments can encourage supportive housing for seniors by removing barriers that limit development. These barriers include zoning bylaws that prevent congregate or group housing in traditional suburban neighbourhoods, and building standards more suited to institutions than housing developments. Local governments can also encourage supportive housing in more positive ways, such as by density bonusing, contributing land or waiving fees.
While senior governments can contribute to supportive housing through housing and/or health care subsidies, the need will usually be greater than programs can meet. By default, local governments have a critical role to play.
This guide is intended to:
| Although this guide was prepared to assist local governments with the development of policies and bylaws, each local government must seek its own legal counsel for specific legal interpretation and advice. |
The information in this guide is organized into six major sections:
The Basics - definitions and general background information about supportive housing.
Roles and Responsibilities - an overview of the roles and responsibilities of the various partners involved in supportive housing.
Principles - key principles that local governments should consider when developing policy for supportive housing.
How-to - The first section, Planning Tools for Supportive Housing, describes the legislative context of supportive housing and specific information and tools local governments can use to plan for supportive housing. The second section, Evaluating Supportive Housing Proposals, provides specific information and tools local governments can use to evaluate supportive housing proposals.
Glossary - definitions of commonly used terms related to supportive housing.
Other Sources of Information - a brief resource list on supportive housing for seniors. A list of useful contacts is also included.
Appendices - A Local Government Policy Checklist provides local governments with an easy reference to use when reviewing their existing policies. Supportive Housing Design Considerations provides design considerations for developers of supportive housing.
The primary users of this guide will be local government administrative staff, planning staff and elected officials. Other partners and interested individuals and groups such as health authorities, non-profit organizations and the general public will also find it useful.
Information - The guide draws upon the extensive collection of information about supportive housing for seniors in the ministry's resource centre. It also synthesizes the experiences of many local governments across British Columbia and distills the information into useful components.
Tools - Sample policies and checklists will assist local governments in their research, policy development and decision making related to supportive housing.
Examples from BC communities - Policies, bylaw excerpts and examples will help communities learn from the experience of others.
References - This guide is only one of many resources the provincial government has developed to provide information and advice about supportive housing. The Ministry of Social Development and Economic Security (formerly Municipal Affairs) also maintains a supportive housing resource centre and web site (www.housing.gov.bc.ca/housing/), both of which focus on supportive housing for seniors. Information on adaptive housing and on building supportive communities is available on the ministry's accessibility web pages (www.housing.gov.bc.ca/housing/access/bibliography/).
The Ministry of Health Library also contains valuable resources. Its web site (www.hlth.gov.bc.ca/library/) includes the capacity to search the catalogue.
Other information on supportive housing is available on the worldwide web and in print sources. References to more detailed information are included throughout this guide and at the end of the document.
There is no single, precise definition of supportive housing, and various jurisdictions use different definitions for the term. The BC Supportive Housing Review, an initiative of the Ministry of Municipal Affairs and the Office for Seniors (Ministry of Health), describes supportive housing broadly:
"Supportive housing combines building features and personal services to enable people to remain living in the community as long as they are able and choose to do so. It is housing with a combination of support services, including, at a minimum:
Nursing and other health-related services are delivered by the local health authority by special arrangement or as they would be to any other individuals living independently in the community."
Supportive housing is a supportive, but not a health care environment, not regulated as a care facility. Supportive housing should also be distinguished from assisted living, in which care services are offered on site, usually on an as-needed, flexible basis. The key difference is that supportive housing is first and foremost housing that reduces day-to-day demands on the resident; assisted living is a form of care that takes place in a housing-type setting.
A key characteristic of supportive housing is that it is embedded in a supportive community. That is, it allows ready access to all services and amenities people need to maintain their lives as members and citizens of the community. Making a community more supportive can be as simple as ensuring that the sidewalks are well repaired and that transportation is easily available.
Supportive housing can take a variety of forms, including purpose-built housing, converted dwellings (such as a renovated hotel, large house or manufactured home park) and secondary or garden suites. A neighbourhood may evolve into a "naturally occurring retirement community" (NORC) if housing stock is suitable and local resources, such as a community centre that provides communal meals, are developed.
Although this document focuses on the supportive housing needs of elderly citizens, supportive housing is also required by other members of the community. Individuals with physical or mental illnesses or substance addictions may be able to live independently if they have the right housing, but may become homeless if they don't.
For many older individuals, a time may come when they no longer choose to, or are unable to, live on their own without assistance. Tasks such as meal preparation, grocery shopping and regular home maintenance may become more onerous and safety considerations more important. This is most likely to occur among older people who live alone, or when a spouse is no longer able to provide assistance. Although many older people enjoy living alone, it may result in social isolation, which can affect the quality of life and health. At the same time, the older person may not be ready, willing or even eligible for placement in a long-term care facility.
Historically under these circumstances, older citizens often lived with their adult children and grandchildren. However, this option is not popular among today's older Canadians; only about three per cent do so. Most now prefer to continue to live independently, but seek a less demanding and more supportive environment.
The importance of providing supportive housing options for seniors has been affirmed by several organizations. The Canadian Medical Association has recognized the role that supportive housing can play in maintaining health and preventing unnecessary institutionalization of many seniors. As well, the National Advisory Council on Aging and the Seniors' Advisory Council of BC have identified the need to give seniors a choice of housing options that can support their independence. A 1996-97 national study revealed a demand for supportive housing options for seniors and high levels of satisfaction among existing residents.
In British Columbia, the number of elderly people in the age group most likely to consider supportive housing is increasing. Studies show that supportive housing would appeal to seniors in all age groups, but primarily to those aged 75 and over. There are currently 240,000 people aged 75 and over in BC, and this number is projected to rise to 408,000 by 2021. This is an expected 70 per cent increase, while the total BC population will grow by only 40 per cent.
Further information about the number of older persons who may choose supportive housing is contained in the 1999 report, Supportive Housing in Supportive Communities, prepared by the Ministry of Municipal Affairs and the Office for Seniors (Ministry of Health).
While not everyone within the 75-plus age group would choose supportive housing, many would for a more convenient location, a desire to reduce everyday tasks such as meal preparation, the need for personal assistance as a result of physical limitations, and/or the desire for companionship and a feeling of security and safety. Individuals may also choose supportive housing for temporary accommodation after an illness, or they may move from a care facility into supportive housing after a medical condition has stabilized.
Supportive housing can be a response to immediate needs, or part of an older person or couple's planning for future needs. Often, seniors who are healthy and active will move into supportive housing so they will be able to remain where they are if their needs change.
Recognizing these needs and services, more developers in both the private and non-profit sectors have been producing purpose-built housing that combines shelter with support.
Supportive housing is one component of a supportive community that seeks to find ways to enable seniors to remain independent and active for as long as possible. In addition to facilitating new or improved housing options, supportive communities may look to improving local support services for seniors. A supportive community will ensure older citizens have good access to amenities and resources, and have every opportunity to participate in community life. One important way local governments remove barriers to continued independence is by providing a high level of physical accessibility in their public works and in their public buildings.
Supportive housing should be regarded as an integral component of the housing stock in a community. Local governments should consider the supply of housing suitable for various aging members of the community in the same way they would consider the provision of housing for families with young children.
In British Columbia, supportive housing is often the product of partnerships involving non-profit organizations or the private sector with local government, the health authority, and/or other community agencies. These partnerships and linkages are important in creating a supportive community that enables and encourages aging residents to remain independent.
In some areas, the health authority or other community-based group may be interested in developing "assisted living." This is a form of housing that incorporates some medical care services on site. These are not, strictly speaking, supportive housing developments. However, a campus that includes a range of housing options, including fully independent housing, supportive housing, assisted living and/or a full-care facility is a popular approach for seniors who prefer not to have to move if their health or care needs change.
Supportive housing is not an integral component of the health care system in BC and supportive housing developments are not licensed under the Community Care Facility Act. However, since all BC residents are entitled to home support and home nursing care where required, people living in supportive housing may receive these services, too. As supportive housing becomes more common, local health authorities and service agencies may find ways to provide effective and efficient services in supportive housing settings.
All levels of government in Canada, as well as the private and non-profit sectors, play a part in the provision of supportive housing for seniors.
The federal government is involved in supportive housing through the Canada Mortgage and Housing Corporation (CMHC) which:
Housing, like health, is a provincial matter under the Canadian constitution. The provincial government in BC provides:
Local governments play a key role in supportive housing through:
Housing providers, both private and non-profit, are responsible for the development and management of supportive housing. Other community groups and agencies frequently offer paid and volunteer services that are useful to elderly residents.
Local governments may wish to consider the following principles when developing their policies for supportive housing.
Supportive housing is most successful when it is situated in a supportive community where:
Local government policy should respect and provide choice and opportunity to seniors, as to all citizens. Five principles to incorporate into all policies are:
These are further developed in a policy guide, Principles of the National Framework on Aging: A Policy Guide, prepared by the Federal/Provincial/ Territorial Ministers Responsible for Seniors in recognition of the Year of Older Persons (www.hc-sc.gc.ca/seniors-aines).
In most communities, supportive housing is founded on partnerships and relationships created among local governments, health authorities, the private sector and non-profit organizations and service agencies. Partnering with community groups, which have different specialized skills and resources, enables communities to better assess and meet the needs of their older citizens.
Return to Table
of Contents
Return to Housing Policy
home page
