Seniors Housing Task Force - 09 Jan 2018 - Agenda

Published January 9, 2018

Word Count 59192 words

Reading Time 278 min read

Body: Council Type: Agenda Meeting: Regular Date: January 9, 2018 Collection: Council Agendas Municipality: Frontenac County

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Document Text

Senior Housing Task Force - North Frontenac Meeting Tuesday, January 9, 2018 – 10:00 a.m. Clar-Mill Community Hall – 6598 Buckshot Lake Road, Plevna, ON

AGENDA Page 1.

Call to order

Election of Officers a) Election of Chair b)

Election of Vice-Chair

Adoption of the agenda a) That the agenda for the January 9, 2018 meeting of the Seniors Housing Task Force - North Frontenac be adopted.

Disclosure of pecuniary interest and general nature thereof

Adoption of minutes

Deputations and/or presentations

Reports a) Seniors Housing Needs for North Frontenac Mr. Ken Foulds, Re/fact Consulting and Mr. Ed Starr, SHS Consulting will assist the Seniors Housing Task Force - North Frontenac in determining the seniors housing needs in North Frontenac.

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Next Steps

Relevant Documents The following are documents that are relevant or of interest to a Seniors Housing Project:

Business Plan for Seniors Housing
County of Frontenac Seniors Community Housing Pilot Project Final Summary Report

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Communications

Other business

Next meeting date

Adjournment

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A Response to the County of Frontenac RFP for a:

July 17, 2014

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Background ………………………………………………………………………………………………………………………………… 2

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Project Goals and Objectives ………………………………………………………………………………………………….. 2

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The Work Plan …………………………………………………………………………………………………………………………… 3 É

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Contact Information ………………………………………………………………………………………………………………….. 6

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Company Profiles ………………………………………………………………………………………………………………………. 6

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Members of the Project Team……………………………………………………………………………………………….. 8

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Recent Relevant Experience…………………………………………………………………………………………………. 10

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References ………………………………………………………………………………………………………………………………. 22

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Project Budget ………………………………………………………………………………………………………………………… 24

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Project Schedule …………………………………………………………………………………………………………………….. 25 Ê

Detailed Resumes of Members of the Project Team …………………………………………………………………. 26

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Size, scope and scale of the project Community input and Frontenac Islands Council input Engagement with the Housing Service Manager (City of Kingston) Identification of the target market Definition of Roles and Responsibilities Site location options Site servicing considerations Planning considerations Delivery options and identification of preferred option Funding and pro forma analysis External funding and grant opportunities Recommendations o

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Review/confirm scope of work with project authority Review work to date/progress with Task Force Confirm working assumptions with regards to concept, governance, management, follow-on projects, etc. Gather background material/studies Set out administrative protocols – primary contacts, communications, billing, contract documents

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Gather available data on need/demand via existing documentation and updated population profiles (2014) Quantify and validate project needs through community focus group session Expand validation process via individual survey (only if needed, due to project time line) Confirm target market for project based on established need profile Establish working project concept in terms of size, form, tenure and affordability

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Identify potential costs, funding sources and financing parameters for both initial capital and ongoing operations Establish sustainability element costs as component of overall budget on a cost/benefit basis Undertake preliminary financial work-up of prospective option(s) including base assumptions for revenues and expenses to gauge initial project viability and on-going project sustainability Confirm the preferred seniors project option(s) for Marysville

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Identify prospective project sites/buildings and assess development parameters associated with each (i.e. planning, servicing constraints/options and related technical requirements) Review needs, options and funding opportunities with Service Manager (City of Kingston) Identify prospective sustainability principles and potential project elements Identify potential sponsors and partnerships Identify potential project development options for achieving project concept Review and confirm findings with project authority and Task Force

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Roll-up findings from each step into a formal business plan report with a formal recommendation on project feasibility Confirm in the business plan the proposed project configuration with regards to: a. Demonstrated project need b. Size, scale, tenure and affordability c. Development site(s) and technical parameters d. Preliminary financial viability e. Fit with sustainability principles f. Governance and on-going management/operations g. Prospective partners Define a clear ‘go/no go’ recommendation based on established assumptions and findings Present draft business plan to project authority and Task Force

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Edward Starr, Partner, SHS Consulting

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Narmadha Rajakumar, Research Analyst, SHS Consulting

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Edward Starr - $165/hr. Ken Foulds - $150/hr. Narmadha Rajakumar – $75/hr. Disbursements – reimbursed at cost

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COUNTY OF FRONTENAC SENIORS COMMUNITY HOUSING PILOT PROJECT FINAL SUMMARY REPORT

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PREPARED BY:

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Table of Contents INTRODUCTION TO THE STUDY …………………………………………….. 2 STUDY APPROACH ………………………………………………………………. 2 SENIORS HOUSING ISSUES IN THE COUNTY OF FRONTENAC ………. 3 HOUSING OPTIONS FOR SENIORS IN THE COUNTY …………………… 7 SENIORS HOUSING MODELS…………………………………………………. 7 OPPORTUNITY NODES …………………………………………………………. 8 SENIORS HOUSING OPTIONS ………………………………………………. 10 ASSESSING OPTIONS AND OPPORTUNITIES ………………………….. 12 LOCAL POLICY FRAMEWORK ………………………………………………. 13 IMPLEMENTATION STRATEGY …………………………………………….. 14 COSTING OF MODELS ………………………………………………………… 15 MOVING A PILOT FORWARD ………………………………………………. 18 NEXT STEPS……………………………………………………………………… 22 STUDY RECOMMENDATIONS ……………………………………………… 22

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Page 31 of 52 County of Frontenac Seniors Community Housing Pilot Project

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INTRODUCTION TO THE STUDY The County of Frontenac is experiencing the aging of its population. An analysis of population trends showed that the population aged 55 years and over increased from 22% of the total population in 1981 to 30% in 2006 and this is expected to continue into the future with the aging of the baby boomers. Studies have shown that the majority of seniors would like to age in place in their own homes or, at least, in their own communities close to their family and friends. The County of Frontenac Seniors Community Housing Pilot Project is being undertaken as a response to the aging population and the desire to plan for the future in a more sustainable way. Through the study process, the County aims to acquire a better understanding of the housing needs of local seniors and the opportunities that may exist to address these needs.

STUDY APPROACH

Phase 2: Housing Options Analysis involved conducting an environmental scan to identify models for seniors housing that were appropriate for the County context and assessing these models using a defined criteria. Results were summarized and recommendations were made regarding “best fit” models based on the seniors housing issues identified in Phase 1. These “best fit” models were then assessed against identified opportunity nodes to develop a sense of potential options

County of Frontenac Seniors Community Housing Pilot Project

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The overall approach in completing this study involves four phases and incorporates a range of research and consultation methods including statistical analysis, focus groups and interviews, and relevant literature reviews.

Phase 1: Existing Conditions Analysis includes a review of demographic and socio‐economic information related to seniors and the development of an inventory of housing and support service options for seniors in the County of Frontenac. Results of this review were presented to stakeholders through numerous public consultation sessions in the four local municipalities. This phase of the study identified the housing needs and gaps and the key housing issues for seniors in the County.

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that address seniors’ housing needs, resulting in the selection of a preferred option. Phase 3: Policy Framework Analysis involved reviewing land use planning documents and other relevant policy documents to identify opportunities and barriers to creating seniors community housing in the County. Recommendations were developed to address policy barriers identified in relation to the preferred option. Phase 4: Implementation Strategy involved developing an implementation plan for the preferred option, including an assessment of the financial feasibility of this option. This report summarizes the Study results as detailed in the component reports developed through the Study process.

SENIORS HOUSING ISSUES IN THE COUNTY OF FRONTENAC The population of the County of Frontenac is aging and this will have an increasing effect on the demand for seniors housing and support services

County of Frontenac Seniors Community Housing Pilot Project

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The senior population in the County of Frontenac is expected to increase from 15.6% in 2006 to 27.1% in 2036 and this will be especially notable for those aged 75 years and over. There is a strong desire to enable seniors to age in place but to do this, the growing seniors population will need housing options that are smaller in form, require less maintenance and are more accessible than housing that has been developed to date. This growth will also increase demand for support services, both in‐home and in more specialized care environments. Promoting an adequate range of choices throughout the local housing continuum is essential in order to ensure that seniors can live independently to the greatest degree possible and remain in or close to their own communities for as long as possible.

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The permanent population in the County of Frontenac is increasing gradually but growth will continue to be primarily concentrated in South Frontenac A large proportion of the population and household growth is occurring in South Frontenac and this trend is expected to continue, given its proximity to the City of Kingston. As a result, the majority of new permanent dwellings that will be developed are expected to be located in South Frontenac. There is sufficient land to accommodate this growth as 57.8% of the County’s vacant land in designated settlement areas is located in South Frontenac. Growth will also continue in other parts of the County albeit at a much smaller scale. This growth will be very modest in the northern part of the County and it is projected that some permanent dwellings will be converted to seasonal dwellings as a result of this lower growth. Addressing housing needs throughout the County as development evolves will be important, as will the need to ensure that this development is sustainable. The forms of housing being built in the County are not reflective of seniors needs

The age and condition of existing housing stock in some areas of the County will only serve to fuel this problem, making it more difficult for seniors to maintain the homes they are in. Even for those with no economic constraints, there is little choice to downsize in the community and this has led to many seniors staying put despite the changing housing or support needs they may have. To better address these needs and support sustainability, improved access to community amenities and support services is also required. Looking forward, a greater diversity of housing types is needed to meet the needs of the seniors population and provide greater choice in the housing market. A large proportion of seniors have low incomes The average household income of seniors 65 years and older in the County is lower than the average household income of seniors in the City of Kingston or the Province. Furthermore, between 10% and 15% of seniors are spending 30% or more of their income on housing costs, indicating a housing affordability problem. In 2006, almost 15% of older senior households (75 years and older) and 10% of senior households

County of Frontenac Seniors Community Housing Pilot Project

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The analysis of recent and expected housing development activity shows that almost all new housing developments throughout the County have been located outside designated settlement areas and will continue to be in the form of single detached dwellings. This low density form of housing is unsuitable for most aging seniors in terms of size, cost and

ability to maintain. Conversion of seasonal to permanent dwellings is also expected to contribute to housing supply as immigrating retirees continue to make the County their home but, again, these will be outside of most settlement areas and are less likely to meet the needs of aging residents.

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(65 to 74 years of age) had household incomes of $18,200 or less (i.e. within the first household income decile). For these households, an affordable monthly housing payment – whether ownership or rental – would be $455 per month or less. By comparison, in the limited rental market that exists, housing options start at $553 per month for a typical bachelor unit. Figure 1: Average Household Income by Age Range; 2006

available from the Canada Pension Plan but only for seniors who had worked and made contributions. Traditionally, social housing has provided accommodation that best addresses the needs of low income households through rent‐geared‐to‐income accommodation. Within the County, there are a modest number of social housing units but as of October 31st, 2011 there were a total of 74 seniors on the centralized wait list for social housing. For a considerable segment of the seniors population who have low incomes, housing options continue to be extremely limited. There is a need for affordable and appropriate housing options for seniors across the continuum

County of Frontenac Seniors Community Housing Pilot Project

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For seniors with pensions and sufficient retirement savings, a wider variety of housing choices are available. In contrast, those on fixed incomes with only basic retirement benefits have very limited options. This is quite evident when one considers that the total annual pension benefit that a senior can expect from Old Age Security, Guaranteed Income Supplement, and Ontario’s Guaranteed Annual Income System combined is $16,205. Additional pension income would be

While seniors with low incomes represent a clear concern, affordability for seniors along the housing continuum is also an issue. In 2006, more than 55% of older senior households (75 years and older) and just over 42% of senior households (65 to 74 years) had household incomes of $40,446 or less (i.e. within the first three income deciles). Based on this income, households would require accommodation at a monthly cost of about $1,000 or less to be considered affordable. While some parts of the rental market meet this level of affordability, options are very limited and high demand has resulted in increasing rental prices.

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In the case of new ownership options, pricing would stretch the income capacity of average senior households. Even for those who have paid down mortgages and accumulated equity, the carrying cost of older homes that require repairs is becoming increasingly challenging. Unlocking this equity is also a factor given local market conditions, the limited choices available in the housing market and the pricing that new options are commanding. Figure 2: Comparison of Average House Prices to Affordable House Prices by Household Income Decile: County of Frontenac

Affordability is also a concern for those with higher care requirements. At more than $32,000 per year, current average retirement home costs would exceed the means of many senior households, especially for those relying on government pensions. While residence in a long term care home is subsidized, required co‐payments are still beyond what a senior who is solely dependent on government benefits can afford. By expanding the range of housing and support options for seniors across the cost spectrum, the goal of keeping seniors in / near their community would be better served. There is a need for housing and support service options for seniors to allow them to remain in their own communities

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Housing services are available for seniors who require supports to live independently and recent LHIN initiatives are focused on enhancing in‐home care as an alternative to long term care residency. Experience has shown that the provision of in‐home supports to aging senior households can help reduce health risks and isolation. This is particularly important for seniors who are living in more remote areas where existing support services are not as readily available and where the only alternative would be institutionalization. The expansive service area and low density population in the central and northern parts of the County make service delivery for in‐ home care challenging. Demand for in‐home services will

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continue to grow as the senior population increases and maintaining an adequate level of supports will be essential to enable aging in place.

SENIORS HOUSING MODELS The County of Frontenac is rural in character with a permanent population of just over 28,000. It also has a very low density land use pattern and there are many areas within the County with only limited services and amenities. As such, housing options for seniors need to fit appropriately into the rural context of the County. These options should be low density in nature and have a residential rather than an institutional character. Another consideration is the limited servicing in the rural areas as well as the limited transportation options. Where possible, housing options for seniors would benefit from taking advantage of existing services to enhance efficiencies and increase the sustainability of the project. Seniors housing options range from independent living to dependent living / custodial care based on the level of care/ support required by the individual. Independent living options would be most appropriate for seniors who are cognitively intact and can perform activities of daily living, such as preparing meals and personal hygiene. Semi‐independent living, also called assisted living, options would be appropriate

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For County residents who require supports to live semi‐ independently or require 24‐hour care, only limited options are available within the County. For example, there are six long term care homes serving the residents of the County but none are located within the County proper and only one is located in proximity to the south end of the County. Similarly, only two social housing projects that have support services are located within the County. While other housing options are available, most are in the City of Kingston and would require a senior to relocate in order to gain access. Increasing local housing options, especially in the semi‐independent category, would help to support the aging in place philosophy for County residents.

HOUSING OPTIONS FOR SENIORS IN THE COUNTY

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for seniors who need assistance to undertake activities of daily living and who cannot live on their own but do not need 24‐ hour care. Seniors who have higher care requirements and who need 24‐hour care would be best served in dependent living options which are also called custodial care. The housing options examined for the County of Frontenac Seniors Community Housing Pilot Project are:

OPPORTUNITY NODES To better understand the potential fit for these seniors housing models within the County of Frontenac context, an analysis was undertaken of the opportunities that currently existing within the County to accommodate these models. While most of the County population lives outside of the settlement areas, the amenities, choices and development potential these settlements can offer make them possible candidates for seniors’ housing development.

North Frontenac

Increasing level of care / supports

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In North Frontenac, the settlement areas of Ompah, Plevna and Cloyne were examined. As smaller, remote settlements, it is not surprising that these areas have limited amenities and services, rely on private servicing and have little in the way of settlement definition. While Cloyne is situated within the Hwy. 41 corridor, it has limited land potential for project development. Ompah and Plevna both have more ample lands for development but because of their remote location, they would be less attractive to seniors and difficult to sustain. Of the three locations, Plevna would seem to offer the best opportunity for housing development, but given the modest local demand and lower overall growth rate in North Frontenac, providing supports to seniors in‐home would seem to make more economic sense, enabling them to age in place.

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Sharbot Lake, with an estimated population of over 560, is the largest settlement area in Central Frontenac and has a range of services and amenities. Uniquely positioned along the Hwy. 7 and Hwy. 38 corridors, it is well‐situated in terms of transportation. However, the two corridors create two very different settlement forms, with the Hwy. 38 corridor providing a more traditional main street atmosphere. Development opportunities are limited and only minor infill or re‐development opportunities may exist in the south end.

Perhaps the most notable opportunity lies in the public school which is expected to be surplus within the next year. As a pre‐ existing building, potential for adaptive reuse or conversion to seniors housing may be possible and sustainable, given the local ‘critical mass’ of services and amenities which exist close by.

South Frontenac South Frontenac is home to a number of populace settlement areas including Sydenham, Verona, Harrowsmith, Inverary and Battersea. Situated to the east, both Inverary and Battersea have small convenience service clusters but only limited amenities. Their location in close proximity to Kingston makes them attractive to commuters, as exemplified by the modest tract housing development in Inverary. However, development potential is modest with limited infill capability for new housing and only one or possibly two conversions to multi‐residential forms. Harrowsmith offers a similar scale

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In Central Frontenac, the settlement areas of Sharbot Lake, Parham, Arden, Mountain Grove and Tichborne were examined. In the case of the latter two, there are limited populations or amenities to support seniors’ housing development and in these instances, development of a seniors’ housing project would be severely challenged. In the case of Arden and Parham, the size, configuration and scale of the settlements is somewhat larger, with a modest complement of amenities. While a unique opportunity in the form of a surplus school exists in Parham, it is unlikely that a seniors project of that size could be sustained, notwithstanding its proximity to the Hwy. 38 corridor. In the case of Arden, a small scale project may be possible to develop but serious questions remain about its ability to sustain itself, especially given its location on a regional collector.

Central Frontenac

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settlement area but situated on the Hwy. 38 corridor. Amenities and services are somewhat more evident and there are expansive municipal lands in the form of municipal parks situated to the west of the main street. Opportunities exist for new development or possible commercial conversion but ironically, Harrowsmith’s location in proximity to the more populated centres in Sydenham and Verona diffuses its local demand.

The primary settlement on the Frontenac Islands is in Marysville, immediately adjacent to the ferry docks. As a small, walkable village, a modest population is served by a number of services and amenities. Within the village proper, only minor development potential exists in the form of infill or redevelopment and municipal lands are largely already utilized. Given the modest population and access limitations of ferry service from Kingston, there is limited potential for a small scale seniors’ housing development in Marysville. While adjacent, Howe Island is much less populated and has less direct access to Kingston proper. As such, it is not seen as a desirable location for a seniors’ project at this time.

SENIORS HOUSING OPTIONS By taking the models, identifying their development characteristics and assessing their locational suitability with regard for factors that influence opportunities, it is possible to refine the list of potential models which would be best suited for the County of Frontenac to the following:

Small scale standard rental While not exclusively a seniors’ model, a small scale standard rental building of five units with ‘stacked’ home care servicing is certainly a model that can be replicated in smaller communities throughout the County. While scale economies

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Sydenham to the east and Verona to the north, are the two most populated centres in the County, with an estimated population of 730 and 860 respectively. Both have established core areas with a mix of local commercial uses and amenities. In the case of Sydenham, the core area is concentrated and pedestrian friendly. Surrounding the core is established residential development, leaving only minor infill and redevelopment opportunities. Beyond the core area on the periphery of the village, ownership opportunities may exist with the private sector regarding tract lands, particularly given the water service which is unique to Sydenham. Verona, as the most populated centre, straddles the Hwy. 38 corridor, forming a walkable main street with services and amenities. Some infill and redevelopment potential is apparent along this corridor but there are also municipal land holdings to the east which may provide potential housing opportunities, especially in proximity to the existing McMullen Manor.

Frontenac Islands

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will present cost challenges for projects of this size, seeking existing buildings for renovation or rehabilitation may provide a more economical cost structure. To help bolster sustainability, having a settlement population of 250 or more with some local amenities would be advisable (i.e. Marysville, Harrowsmith, Sharbot Lake, Sydenham, Verona).

Abbeyfield

Assisted living / Supportive Housing

Life Lease

A smaller scale assisted or supportive housing model would be best situated in a service catchment area with sufficient access, population and amenities. Again, scale economies will present development challenges but infill opportunities in Verona or Sydenham and adaptive reuse of the surplus school in Sharbot Lake could yield positive projects. Provided a sufficient site could be found, a redevelopment project could also be considered in Sydenham, particularly in light of the available water service.

As an ownership option typically requiring a larger tract of land, the implementation of a life lease project could be ideally located in Sydenham and may be positioned as a partnership with or initiative by local real estate interests. While this model could be replicated elsewhere, the proximity to Kingston, amenities and established housing market make Sydenham an attractive choice.

As a model of congregate living, this option may not appeal to all seniors. As a self‐contained support option, it does, however, favour more rural or small village settings. As either an infill or as a redeveloped building, the Abbeyfield model could successfully be located in Marysville or Sydenham.

Home Care

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Recognizing that on‐going sustainability is a key consideration in developing ‘bricks and mortar’ solutions, especially in more remote areas with low or no growth, it is important that options exist to meet seniors’ needs in these areas. While promoting home care throughout the County is beneficial, it is particularly important in the northern settlement areas of Ompah, Plevna, and Cloyne which have a limited population base with which to sustain a seniors housing facility.

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ASSESSING OPTIONS AND OPPORTUNITIES The evaluation of the five short‐listed options using the developed model assessment criteria indicates that the Assisted Housing / Supportive Housing option and the Home Care option rank highest in terms of overall criteria, primarily on the strength of their ability to impact on seniors needs and their ability to enhance the local area. Ratings 3=High degree 2=Moderate degree 1=Low degree Impact seniors’ need Sustainability Affordability Funding potential Partner potential Enhance local area Leveraging potential Total Rating Score

Small scale standard rental 2 2 2 2 2 2 2 14

Assisted Living /Supported Housing 3 2 3 2 1 3 3 17

Abbeyfield

Life Lease

Home Care

2 2 2 1 2 3 1 13

1 3 1 1 2 2 1 11

3 2 2 2 3 3 2 17

The continued provision and expansion of the Home Care programs can have a meaningful impact, especially in the case of the more remote northern settlements of the County. While a ‘bricks and mortar’ solution is more challenging to justify and support in this area, the flexibility that Home Care programs provide can help address changing needs over time by addressing these needs in‐home and by improving the quality of life for isolated seniors. While expanding the Home Care model can assist in proactively addressing support needs throughout the County, enhancing services in the Ompah, Pleva and Cloyne areas can help better address needs where they might not otherwise be met.

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The preferred options based on rank scoring include both a ‘bricks and mortar’ solution as well as a home care solution. In the case of the Assisted Housing / Supportive Housing option, opportunities for a new infill project in Verona or Sydenham and adaptive reuse of the surplus school in Sharbot Lake are top prospects that could help serve a wide catchment area and enhance the stability of the communities in which they would be situated.

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LOCAL POLICY FRAMEWORK 2.

That the County, as part of the Official Plan process currently underway, incorporate specific policies noted in County of Frontenac Seniors Community Housing Pilot Project

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Housing in Canada and Ontario operates within a framework of legislation, policy and programs. This policy framework, including the local policy framework, influences the development of housing in a community and has an effect on the ability to realize the identified opportunities for seniors housing in the County of Frontenac. For this reason, a review of relevant municipal legislation, strategic documents and local initiatives was conducted to identify potential opportunities and barriers to the development of a Seniors Community Housing Pilot Project. As a result of this assessment, the following recommendations are provided to support a broader range of seniors housing and support services:

the Policy Framework report that encourage the provision of seniors housing options, to support both existing and new development. That the County work with local townships to align local Official Plan policies with the new County Official plan, particularly as they relate to promoting opportunities for seniors housing. That the County work with local townships to expand zoning provisions as noted in the Policy Framework report that support a range of housing options for seniors that are consistent with County and local Official Plan policies. That the County institute a housing first policy for its surplus municipal lands and work with local townships and institutional agencies to develop an inter agency protocol which promotes an exchange or right‐of‐first‐refusal approach for surplus lands deemed suitable for housing development. That the County continue to work with the City and with local townships to implement the recommendations of the Municipal Housing Statement and to actively participate

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as a key stakeholder in the development of the Housing and Homelessness Plan being developed by the City of Kingston for the Kingston‐Frontenac service area. 6. That the County continue to pursue implementation of Community Improvement Plans as a vehicle for supporting community renewal in established settlement areas and for helping to promote renewal of housing for seniors using this tool. 7. That the County expand its authority to grant potential incentives for affordable housing by adopting a municipal capital facility by‐law and by encouraging local townships to do the same. 8. That the County continue to advocate for additional support service funding and expansion of service offerings within the County to help improve seniors’ ability to age in place.

IMPLEMENTATION STRATEGY

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Having defined and assessed potential housing models against opportunity nodes in the County, preferred housing options have been identified as follows: (a) Assisted/supportive housing This option would provide an affordable, semi‐ independent living environment for seniors in self‐ contained units, primarily one and some two bedroom units in a small scale configuration. The project would incorporate supports to address the moderate care needs of residents, including coordination of services and daily monitoring to assist with activities of daily living. Such a project could be established through infill, redevelopment or adaptive reuse of an existing structure and possible opportunities have been identified in Verona, Sydenham and Sharbot Lake. By situating a project in one of these established settlements, a wider catchment area can be served and the sustainability of the anchor community can be enhanced. Expanding the service component of the project to include a ‘spoke and hub’ approach could also increase service offerings to the surrounding community and help improve the quality of life for other seniors still resident in their own homes.

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(b) Home care Recognizing that a ‘bricks and mortar’ solution may not be sustainable at this time in more remote areas of the County, an expansion to home care services would help enable aging in place for seniors capable of living independently with minor supports. This is particularly evident in the northern area of the County where the aging of the population and limited rate of growth is more pronounced. While enhancing home care supports for seniors throughout the County would be beneficial, bolstering supports in the communities of Ompah, Plevna and Cloyne should be a priority consideration to address the needs of local seniors. In addition to expanded home care, home adaptation or retrofit programs and community paramedicine services would also assist in addressing the needs of seniors to age in place in more remote areas of the County.

COSTING OF MODELS

Model One – New Build (20 units) Costing for this model is based on a 20 unit single storey rental project and assumes new construction. An important assumption is the inclusion of a capital investment in the amount of $150,000/unit which would come from various government funding programs and local sources. Rents are affordable to residents at 80% of average market rent. Estimated capital costing for this model, including both costs and contributions, is as follows: Model One – Capital Summary Costs A Construction Costs Sub‐total B Land Cost Sub‐total Hard Costs Total (A+B) C Soft Cost Total Total Project Cost (A+B+C) Contributions D Capital Investment ($150,000/unit) E HST Rebate (82%) F Mortgage Financing Total Contributions (D+E+F) Total Contributions Less Total Costs

County of Frontenac Seniors Community Housing Pilot Project

Total Project 3,138,858 119,780 3,258,638 599,671 3,858,309 Total Project $3,000,000

Per Unit 156,943 5,989 162,932 29,983 192,915 Per Unit 150,000

335,688 522,621 3,858,309 0

16,784 26,131 192,915 0

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On the basis of the assisted/supportive model identified as preferred, detailed costing for three ‘bricks and mortar’ options has been developed. This analysis has been completed using typical costing parameters and is intended to reflect a general picture of financial viability based on set assumptions. A detailed discussion of these assumptions and

the actual analysis can be found within the Implementation Report for this study. As housing projects are influenced by any number of factors which can translate into specific financial impacts, it is important to note that the analysis provided here is for illustrative purposes only.

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Operating estimates for the project indicate a modest annual operating surplus and reflect a healthy debt coverage ratio of 1.64, indicating financial viability. This ratio would actually enable a higher share of project financing if required. Model One – Operating Summary YEAR 1

YEAR 2

YEAR 3

YEAR 4

YEAR 5

Net Annual Revenue

160,298

163,505

166,775

170,110

173,511

Total operating costs Operating Surplus (Deficit)

142,042

144,318

146,642

149,010

151,426

18,256

19,187

20,133

21,100

22,085

Financial viability could be further enhanced for this model by providing relief from municipal development fees/charges.

Model Two – Conversion/Renovation (13 units)

Model Two – Capital Summary Costs A Construction Costs Sub‐total B Land Cost Sub‐total Hard Costs Total (A+B) C Soft Cost Total Total Project Cost (A+B+C) Contributions D Capital Investment ($125,000/unit) E HST Rebate (82%) F Mortgage Financing Total Contributions (D+E+F) Total Contributions Less Total Costs

Total Project 1,569,739 119,780 1,689,519 447,166 2,159,043 Total Project $1,625,000

Per Unit 120,749 9,213 129,963 34,397 166,080 Per Unit 125,000

192,215 341,828 2,159,043 0

14,785 26,294 166,080 0

Operating estimates for this model indicate a modest annual operating surplus and reflect a solid debt coverage ratio of 1.59, illustrating financial viability. This ratio would actually enable a higher share of project financing if required. Model Two – Operating Summary Year 1

Year 2

Year 3

Year 4

Year 5

Net Annual Revenue

103,464

105,533

107,644

109,747

111,993

Total operating costs Operating Surplus (Deficit)

92,520

93,999

95,508

97,052

98,625

10,944

11,534

12,136

12,745

13,368

Financial viability for this model could be further enhanced by providing relief from municipal development fees/charges.

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Costing for this model is based on a 13 unit conversion or renovation of an existing building (e.g. surplus school). Like Model One, the project incorporates rental units that are affordable, renting out at 80% of average market rent. A capital investment component of $125,000/unit has been assumed in this model which is reflective of the lower estimated construction costs. It should be noted that in any conversion or renovation scenario, capital costs would need to be validated based on extensive due diligence, given the potential for structural, fit‐up and environmental issues

associated with existing buildings. Estimated capital costing for this model is as follows:

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Securing the building at a reduced rate could also yield savings that would make the project even more financially attractive.

Operating estimates for this model indicate a modest annual operating surplus and reflect a reasonable debt coverage ratio of 1.20, illustrating basic financial viability.

Model Three – Abbeyfield (8 units)

Model Three – Operating Summary

Unlike Model One or Two, the Abbeyfield model contemplates a project developed using community resources. Costing for this model is estimated based on an 8 unit conversion or renovation of an existing building. As a congregate living project, rents include accommodations, food and housekeeping services. As such, monthly resident charges are higher than average market rents but are lower than typical full service facilities. Financing and fund raising are key assumptions related to this model. Estimated capital costing for this model is as follows: Total Project 611,240 576,300 1,187,540 187,073 1,374,613 Total Project 122,430 221,223 1,030,960 1,374,613 0

Per Unit 76,405 72,037 148,442 23,384 171,826 Per Unit 15,303 27,652 128,870 171,826 0

Operating Surplus (Deficit)

Year 1

Year 2

Year 3

Year 4

Year 5

153,408

156,476

159,606

162,798

166,054

138,253

139,905

141,588

143,308

145,064

15,155

16,571

18,018

19,490

20,990

While assumed as a community funded project, financial viability and affordability for residents under Model Three could be further enhanced by providing municipal grants/loan, relief from municipal development fees/charges or relief from property taxes.

Home Care and Supports In the case of more remote areas of the County, ‘bricks and mortar’ projects are less attractive given limited growth and sustainability challenges. As noted, Home Care options are much better suited to these locales in order to serve seniors needs. Primary responsibility for support services falls to delivery agencies that are funded by senior government programs and as such, increasing or re‐allocating home care funding would need to be pursued with these funders. Another complementary program that has emerged in more rural locales is the use of community paramedicine to help

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Model Three – Capital Summary Costs A Construction Costs Sub‐total B Land Cost Sub‐total Hard Costs Total (A+B) C Soft Cost Total Total Project Cost (A+B+C) Contributions D HST Rebate (82%) E Fundraising F Mortgage Financing Total Contributions (D+E+F) Total Contributions Less Total Costs

Net Annual Revenue Total operating costs

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supplement in‐home health services/supports. Programs like this which help to create a safer, healthier home environment for seniors would certainly enhance seniors independence in remote areas where traditional housing projects are more difficult to justify financially. In that same vein, home adaptation programs that help create safer in‐home living environments for seniors also help support aging in place objectives. Typically the programs work by providing modest grants or loans (e.g. up to $15,000) to eligible households to make homes more accessible or more functional (i.e. grab bars, ramps, etc.). Existing programs like Kingston‐Frontenac Renovates provides finite funding for initiatives like this but could be augmented by the County to help serve a greater number of senior households.

Resource/funding opportunities

 Waivers/reductions in County and/or local municipal building and development fees and charges  Reductions in County/local property taxes  Contributions of municipally‐owned land  Contributions of surplus buildings (e.g. schools)  Low interest or interest‐free loans  Funding to assist in adapting homes for aging in place (e.g. Kingston‐Frontenac Renovates or County‐funded)  Allocation of Municipal Service Manager funding under housing programs (i.e. Investment in Affordable Housing Program, Commercial Rent Supplement Program, etc.)

MOVING A PILOT FORWARD As noted in the previous section, advancing a capital pilot project requires significant resources, often secured from multiple sources. However, there are a number of other important aspects to consider in moving a pilot project forward, including the process involved in advancing development as well as the necessary project components. Central to this discussion, however, is the role the County should take in any such endeavour.

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Capital projects provide community assets which help to serve local residents over the long term. However, these projects take significant resources to be realized in the short term. Making projects affordable to lower and moderate income households presents an added challenge as development costs must be further offset by funding or financing in order to be affordable and viable. There are also very real fiscal challenges being faced by traditional project funders. As a result, it is more common now to marshal resources from multiple sources or seek out non‐traditional funding in order

to advance project development. Some of the resources that could be utilized in combination to help support the development of local seniors housing are:

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Critical path

Currently, the County is involved in a number of aspects in the local housing system which serves seniors and other residents in Frontenac. These roles include:

In the case of a typical housing project, there are a number of significant milestones in moving a project stepwise from its initial concept through to construction and operation. Following is a brief overview of some of the more notable activities that are undertaken:

Concept development – establishing an initial project team, defining an approach to development and the involvement of potential partners, and creating a working concept
Proof of concept – establishing project demand, refining the working concept, identifying development and procurement options
Preliminary business plan – testing the development potential and financial feasibility, determining fundability and assessing capacity to sustain over the longer term
Initial funding commitment – securing financial resources to move the project through the pre‐development phase, establishing a project site/location
Pre‐development activities – undertaking due diligence, technical testing and formal design work, marshalling resources or financing to construct the project
Construction – construction would proceed via a pre‐ determined procurement process
Pre‐occupancy planning ‐ organizational preparation for operation of the project, transition of financing

 Funding contributor – cost sharing for prescribed social housing programs and services with the City of Kingston  Delivery agent/operator – operating Fairmount Home for the Aged (municipally owned)  Stakeholder – maintaining a vested role within the local housing system for seniors, especially as a delivery agent  Advocate – seeking out other government resources and identifying priorities to help address and support local needs  Facilitator – enabling development, promoting partnerships, setting priorities and providing leadership These roles encompass a wide range of engagement in the local housing system. It is contemplated through the recommendations of the recent Kingston‐Frontenac Municipal Housing Statement that these roles and responsibilities will continue to evolve and align with the local housing system. As the County considers how best to advance a seniors pilot project, it will need to clarify how its involvement will align with or augment these roles.

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County Roles in Housing

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Post‐occupancy wrap‐up – winding up construction matters with the project/development teams

 Support services/resources – having a tangible commitment for support service funding is key in order to provide a successful living environment for seniors

Essential components Moving from the concept of a project through design, construction and operation is a progressive process with multiple decision points along the way. To help ensure project success, there are a number of critical ingredients that collectively can minimize the roadblocks encountered along the way. Some of the key components include:

In addition to external funding opportunities, the County has various resources which it could bring to bear to help support project development. Capital incentives could include:  Waivers/reductions in County and/or local municipal building and development fees and charges  Reductions in County/local property taxes  Contributions of municipally‐owned land  Contributions of surplus buildings/facilities  Low interest or interest‐free loans  Direct capital funding As noted in the Policy Framework component of the Study, the County would need to establish Municipal Capital Facility authorities via by‐law in order to grant a number of these incentives. Similar incentive‐granting authorities are available under the Planning Act for Community Improvement Plans. In order to create the ability to grant seniors housing incentives, it is recommended that the County, in concert with local Townships, establish Capital Facilities By‐laws as recommended in the recently adopted Kingston‐Frontenac Municipal Housing Statement.

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 Clear and articulated project vision – establishing a clear project scope/vision at the outset to guide the process  Experienced development team – having a team that is knowledgeable in order to keep the project ‘on track’  Dedicated project sponsor – an experienced and reliable project partner is critical to long term success  Secured location/facility – a secured site/building for the project can significantly reduce development timelines  Solid business case demonstrating feasibility – Rigorous financial testing using realistic assumptions in order to demonstrate both viability and sustainability  Funding and/or financing – Having sufficient resources for pre‐development activity is critical to get the project off the page. Substantial funding or financing to build the project must be committed or in place prior to construction – this is absolutely essential.

County resources

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Apart from capital incentives aimed at pilot project development, the County could also consider making available other resources/supports to assist with seniors housing issues. These could include:  Adaptation grants/loans – In order to supplement and expand on existing programs/funding (i.e. Kingston‐ Frontanac Renovates), the County could establish its own program to fund housing adaptations for seniors to assist in upgrading or modifying their residence to safely age in place.  Capacity building grants/loans for prospective project sponsors – In order to supplement and expand on existing programs/funding (i.e. CMHC’s SEED or PDF funding), the County could establish its own program to help cultivate local project concepts.

While the focus of the report has been on preferred options identified through the Study process, it is clear that a number of the options considered could have merit depending on local housing market conditions and the willingness of local partners to advance such projects. Notwithstanding the pilot project initiatives with which the County may proceed, the County does have the opportunity to facilitate other housing solutions by creating a conducive development environment. As noted in the Policy Framework component of the Study, the County plays an active role in the regulation of land use policy and has the opportunity to align and create more flexible housing policies which can help to encourage the development of affordable seniors housing alternatives. As recommended in the recently adopted Kingston‐Frontenac Municipal Housing Statement, the County should continue to pursue these regulatory refinements. Likewise, the County plays an active role in advocating for seniors services and supports with the Southeast LHIN and among local service agencies. In addition to pursuing pilot project objectives, the County should continue to pursue enhancements to support service funding that helps seniors age in place.

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As part of it deliberations on roles and the pilot project, the County should also identify what capital incentives it would be prepared to make available to foster a pilot project. It could then offer up incentives to interested local partners based on the degree to which they meet pilot project objectives. Prospective projects are usually identified through an open procurement process – either via Expressions of Interest or a Request for Proposals.

Facilitating other options

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NEXT STEPS In order to advance a viable seniors pilot project, the County would need to:  Identify the scope of the seniors pilot project it wishes to pursue and define the County role  Establish financial authorities and tools, as well as committing funding and/or resources for the project  Seek out interested partners to advance the proposed pilot project through development  Continue to create an attractive development environment for appropriate seniors housing projects

STUDY RECOMMENDATIONS

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In addition to addressing those recommendations made as part of the Policy Framework component of this study, the County will need to pursue a number of avenues specifically related to pilot project development. To advance a seniors pilot project, it is recommended:

That the County form an implementation group/task force to help establish a seniors housing pilot project
That the County adopt a project scope for the preferred housing pilot and define its role for the project
That the County identify funding, resources and incentives that it is willing to provide to support a

seniors pilot project. In addition to establishing Municipal Capital Facility authorities, the County should consider the use of the following incentives:  Capital funding  Waivers/reductions in County and/or local municipal building and development fees/charges  Reductions in County/local property taxes  Contributions of municipally‐owned land/buildings  Low interest or interest‐free revolving loans 4. That the County seek from the City of Kingston (as Service Manager) a funding commitment to help support the pilot project and local seniors housing needs 5. That the County promote SEED funding to possible pilot project sponsors in order to build local capacity and undertake project viability investigations 6. That the County solicit detailed pilot project proposals from interested community partners using an Expression of Interest or a Request for Proposal 7. That the County, in conjunction with local support agencies, seek funding enhancements from the Southeast LHIN for local seniors support services, local home care services , community paramedicine initiatives and home adaptation initiatives. 8. That the County foster the development of other forms of affordable and appropriate seniors housing by creating a more flexible local regulatory environment.

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