Community Action Plan for the Gander & Area
Community Advisory Board (CAB)
Prepared by:
Goss Gilroy Inc.
Management Consultants
401 Empire Avenue
St. John’s, NL
A1E 1W6
Tel: 754-2065
Fax: 754-6303
www.ggi.ca
For further information please contact:
NL Housing & Homelessness Network
435 Blackmarsh Road
St. John’s, NL, A1E 1T7
Tel: (709)-753-2000
Cell: (709) 691-7570
www.nlhhn.org
April, 2013
The path to wellness is finding suitable accommodation. (Service provider)
“People should have a decent and affordable place to live…it is difficult to live a good life when
you don’t have suitable housing. “ (Person who experienced homelessness)
Vulnerability can cross all groups – if you do not have supports behind you then it increases
your exclusion. (Service provider)
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List of Acronyms
Abbreviation
AES
AHI
CAB
CEYS
CHHN
Choices
CMHC
CMA
CYN
FRC
GNWV-RS
HPS
HSW
LSW
MFRC
MLS
NLHHN
NL
NL Housing
NLSA
PHF
SA
THANL
WISE
Goss Gilroy, Inc.
Description
Advanced Education and Skills
Affordable Housing Initiative
Community Advisory Board
Career Employment and Youth Services
Central Housing and Homelessness Network
Choices for Youth
Canada Mortgage and Housing Corporation
Census Metropolitan Area
Community Youth Network
Family Resource Centre
Gander-New-Wes-Valley Rural Secretariat
Homelessness Partnering Strategy
Housing Support Worker
Liaison Social Worker
Military Family Resource Centre
Multiple Listing Service
Newfoundland and Labrador Housing and Homelessness
Network
Newfoundland and Labrador
Newfoundland and Labrador Housing
Newfoundland and Labrador Statistics Agency
Provincial Homelessness Fund
Salvation Army
Transition House Association of NL
Women in Successful Employment
iii
Table of Contents
1.0
INTRODUCTION ..............................................................................................................................................................1
2.0
METHODOLOGY ..............................................................................................................................................................1
2.1 PLANNING SESSION ............................................................................................................................................................................. 2
2.1.1
Defining the region ........................................................................................................................................................... 2
2.1.2
Preliminary identification of priority populations ............................................................................................... 2
2.1.3
Identification of key informants .................................................................................................................................. 3
2.1.4
Individual “mini” case studies with people who are at risk of, have experienced or are
experiencing homelessness ............................................................................................................................................................... 4
2.2 DATA COLLECTION ............................................................................................................................................................................. 5
2.2.1
Statistics Canada/Community Accounts .................................................................................................................. 5
2.2.2
Canada Mortgage and Housing Corporation (CMHC) ........................................................................................ 5
2.2.3
Advanced Education and Skills (AES) ...................................................................................................................... 6
2.2.4
Newfoundland Labrador Housing .............................................................................................................................. 6
2.2.5
Evangel Pentecostal Church .......................................................................................................................................... 6
2.2.6
The Salvation Army Gander .......................................................................................................................................... 6
2.2.7
Transition House Association of Newfoundland & Labrador (THANL) ....................................................... 7
2.2.8
Women’s Centres ............................................................................................................................................................... 7
2.2.9
Choices for Youth (Choices) ........................................................................................................................................... 8
2.2.10 Naomi Centre (Stella’s Circle) ...................................................................................................................................... 8
2.2.11 RCMP – Gander Detachment ......................................................................................................................................... 8
2.2.12 Other Data Sources ........................................................................................................................................................... 9
2.3
LIMITATION TO THE RESEARCH .................................................................................................................................................. 9
FINDINGS ......................................................................................................................................................................................9
3.0
PROFILE OF THE GANDER REGION ..........................................................................................................................9
3.1 POPULATION AND DEMOGRAPHICS ................................................................................................................................................10
3.2 SELF-RELIANCE RATIO ....................................................................................................................................................................10
3.2.1
Market Income and Sources ........................................................................................................................................ 10
3.2.2
Government Transfer Income ..................................................................................................................................... 11
3.3 INCOME SUPPORT .............................................................................................................................................................................11
3.4 HIGHEST LEVEL OF EDUCATION .....................................................................................................................................................12
3.5 EMPLOYMENT INSURANCE ..............................................................................................................................................................13
4.0
4.1
5.0
5.1
5.2
5.3
5.4
5.5
5.6
5.7
5.8
ASSET MAPPING .......................................................................................................................................................... 13
EXPANSION OF ASSETS IN THE REGION .........................................................................................................................................19
HOMELESSNESS AND HOUSING INSTABILITY IN THE GANDER REGION ............................................... 19
LACK OF EMERGENCY SHELTER/TRANSITIONAL HOUSING .........................................................................................................20
ACCESS TO BASIC NEEDS/POVERTY ................................................................................................................................................21
INDIVIDUALS WITH COMPLEX NEEDS .............................................................................................................................................23
YOUTH – IN PARTICULAR, YOUNG MEN WITH COMPLEX NEEDS .................................................................................................25
SINGLE PARENTS ...............................................................................................................................................................................27
SENIORS ..............................................................................................................................................................................................28
PERSONS WITH DISABILITIES ..........................................................................................................................................................29
LACK OF SUPPORTS/AWARENESS OF SUPPORTS ..........................................................................................................................29
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5.9 AES/INCOME SUPPORT ...................................................................................................................................................................30
5.10
SOCIAL HOUSING ..........................................................................................................................................................................31
5.11
RENTAL PROPERTIES/SUBSTANDARD PROPERTIES ..............................................................................................................32
5.12
EMPLOYMENT ..............................................................................................................................................................................32
5.13
TRANSPORTATION ......................................................................................................................................................................34
6.0
AFFORDABLE HOUSING ............................................................................................................................................ 34
6.1 CORE HOUSING NEED ........................................................................................................................................................................35
6.1.1
National context .............................................................................................................................................................. 36
6.1.2
Provincial context ........................................................................................................................................................... 36
6.1.3
Gander region ................................................................................................................................................................... 37
7.0
PERSPECTIVES ON AFFORDABLE HOUSING IN THE GANDER REGION .................................................... 38
7.1 DEFINITION OF “AFFORDABLE” HOUSING .....................................................................................................................................38
7.2 WHAT DOES “AFFORDABLE” HOUSING MEAN IN THE GANDER REGION? .................................................................................38
7.3 THE NEED FOR AFFORDABLE HOUSING IN THE GANDER REGION ..............................................................................................39
7.3.1
Male youth.......................................................................................................................................................................... 39
7.3.2
Female youth ..................................................................................................................................................................... 39
7.3.3
Women ................................................................................................................................................................................. 40
7.4 AFFORDABLE HOUSING OPTIONS IN THE GANDER REGION ........................................................................................................42
7.4.1
NL Housing........................................................................................................................................................................ 42
7.4.2
NL Housing Waitlists...................................................................................................................................................... 43
7.4.3
AHI units in the Gander region (as defined by the Gander CAB) .................................................................. 43
7.5 WHAT IS NEEDED FOR THE GANDER REGION? .............................................................................................................................44
8.0
COLLABORATIVE EFFORTS TO ADDRESS HOUSING AND HOMELESSNESS IN THE GANDER REGION
45
9.0
MUNICIPAL ENGAGEMENT ...................................................................................................................................... 47
10.0 PROFILE OF HOMELESSNESS .................................................................................................................................. 48
11.0 STRATEGIC DIRECTIONS .......................................................................................................................................... 49
11.1
11.2
11.3
11.4
11.5
SUPPORTING INDIVIDUALS WITH COMPLEX NEEDS IN PARTICULAR YOUNG MALES <30. ...............................................50
EMERGENCY/TRANSITIONAL HOUSING ...................................................................................................................................51
AFFORDABLE HOUSING ...............................................................................................................................................................52
DATA COLLECTION ......................................................................................................................................................................55
RAISE AWARENESS OF HOUSING AND HOMELESSNESS ..........................................................................................................56
12.0 CONCLUSION ................................................................................................................................................................. 56
APPENDIX “A” – GANDER CAB PRE-PLANNING SESSION AGENDA ........................................................................ 57
APPENDIX “B” – KEY INFORMANT GUIDES .................................................................................................................... 60
APPENDIX “C” – INDIVIDUAL “MINI” CASE STUDY GUIDE ........................................................................................ 66
APPENDIX “D” – WEB LINKS FOR CMHC PUBLICATIONS AND SITES.................................................................... 68
APPENDIX “E” – HOUSING SUPPORT WORKER: JOB DESCRIPTION ...................................................................... 70
APPENDIX “F” - AFFORDABLE HOUSING INITIATIVE................................................................................................. 73
APPENDIX “G” – AFFORDABLE HOUSING UNITS IN THE GANDER REGION ........................................................ 76
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1.0 INTRODUCTION
This report is provided in completion of a contract between Goss Gilroy Inc. (GGI) and the
Newfoundland and Labrador Housing and Homelessness Network (NLHHN) to develop a
community action plan for the Gander and Area Community Advisory Board (“Gander CAB”),
in collaboration with critical stakeholders and partners. This plan will be the foundation for
forward movement on identified priority areas in relation to housing instability and homelessness
in the region. Two other components of this contract – development of a communications
strategy for the Gander CAB and a toolkit which would provide a template/guide for facilitating
action planning for new and emerging CABs in Newfoundland and Labrador (NL) – are
provided in separate documents.
This report also provides information on the extent and nature of homelessness and housing
instability in the Gander and Area region (“Gander region”), with a focus on the following
priority populations, as identified by the CAB and its partners/supporters at a planning meeting
held in advance of the research:



Individuals with complex needs, in particular male youth <30
Single parents
Seniors
These priorities were further explored during the information gathering phase of the research. As
well, perspectives on other priorities for this region were sought.
Finally, this report provides several strategic directions for the Gander CAB to consider in its
efforts to address the housing and homelessness issues facing their region.
The research for this report was undertaken in the Fall of 2012.
2.0 METHODOLOGY
This study used several methodologies including:




Planning session undertaken in advance of the regional research
Key informant interviews
Individual “mini” case studies
Data collection and analysis
Each methodology is explained in more detail below.
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2.1
Planning session
On October 16, 2012, a planning session was held with available members of the Gander CAB
including for example, representatives from the Department of Advanced Education and Skills
(AES) and local community based employment, disability, youth and/or women’s organizations,
as well as faith groups. Representatives of a number of the Gander CAB’s partners/supporters
(e.g. the Regional Coordinating Committee on Violence, Central Health), as well as the
Executive Director of the NLHHN also were in attendance. The session was facilitated by the
project manager from GGI.
A number of methodological issues were discussed at this session (see the pre-planning session
agenda found in Appendix “A”). These included preliminary identification of the priority
populations in the region who are experiencing housing instability and homelessness, defining
the scope of the region on which the research was to focus, identification of potential key
informants, and sources for data collection.
2.1.1 Defining the region
The geographic area covered by the Gander CAB is the Gander-New-Wes-Valley Region of the
Rural Secretariat (GNWV-RS Region), which spans from Terra Nova National Park in the East to
Lewisporte in the West and includes a hundred plus coastal communities in between. During the
pre-planning session, it was identified that it would be important to try and capture views of
informants across the region, as possible.
2.1.2 Preliminary identification of priority populations
A key focus of this planning session was seeking perspectives on the nature and scope of housing
instability and homelessness identified to date in the Gander region, based on what the planning
session participants had seen/addressed in their work, their volunteer efforts and/or research. A
discussion was held on the root causes of homelessness/housing instability, assets to address the
identified issues/areas and related gaps, and the priority areas for action. This meeting also
included a discussion on how to raise the profile of homelessness in the region and how to better
engage municipalities in the region in addressing housing instability and homelessness.
At this preliminary stage of the research process, participants identified the following
populations as priorities due to the lack of services to meet their needs and their increased risk of
housing instability and homelessness:



Individuals with complex needs, in particular male youth <30.
Single parents
Seniors
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2.1.3 Identification of key informants
Participants at the planning session were asked to identify community and government service
providers and stakeholders who could best inform the extent and nature of homelessness and
housing instability in the Gander region, with a focus on the priority populations identified in
section 2.1.2. It was anticipated that these informants also would have the knowledge and
backgrounds to identify housing and homelessness concerns, which were not priorized at the
initial planning meeting.
It was suggested to participants that key informants be drawn, as relevant and practical, from a
range of potential informant groups including:






Provincial government
Municipal governments
Community based service providers
Faith groups
Local youth groups
Local housing providers
In consultation with the planning day participants, both during and in the weeks following the
planning session, 19 key informants were identified. Interviews were completed with 13 of those
identified, including one or more representatives of the following:









Advanced Education and Skills (AES)
Gander CAB
Central Health
Faith groups
Community Youth Network (CYN)
Family Resource Centre (FRC)
RCMP
Women’s organizations
Central Housing and Homelessness Network (CHHN)
Of note, in addition to the 13 key informant interviews completed for the research, the interview
guide was sent to three other key informants at their request to complete on their own or to be
forwarded onto a more appropriate informant. No information was forthcoming from these three
informants, two of whom identified that they were not aware there was a problem with housing
instability and homelessness in the region.
The majority of those interviewed were current or past CAB members. Two other informants
were involved with the CHHN. Most informants were working with community/government
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providers which were serving participants/clients who were experiencing housing instability and
homelessness.
The key informant guides are found in Appendix “B”. Note: all key informant guides (including
those used with individuals experiencing homelessness – see section 2.1.4) were vetted by the
Gander CAB.
The Town of Gander
As the information gathering progressed, it became apparent that it would be helpful to consult
with members of the Town Council in Gander. Information was sought from Council members
via e-mail with one response received. One of the Council members participated in a telephone
interview. The key informant guide used for these consultations also is found in Appendix “B”.
2.1.4 Individual “mini” case studies with people who are at risk of, have experienced
or are experiencing homelessness
The second key informant group included those who are at risk of, have experienced, or are
experiencing homelessness. Planning day participants, as well as members of the Gander CAB
who could not attend the day, were asked to identify and connect the consultants to four
representatives of this informant group who, as possible, also fit their priority populations.
The focus of the individual “mini” case studies was on gathering in-depth information on the
lived experience of those experiencing/facing homelessness, the extent to which their needs were
being met, any service gaps in meeting their needs, as well as their suggestions for how these
gaps could best be filled.
Individuals who agreed to participate were not required to provide their names to the consultants
and were interviewed via telephone. An honorarium was provided to each individual who
participated.
Six informants were identified and interviewed including three women: two older married
women, one of whom has grown children and a younger single mother. Two of the women have
limited education while the other has completed some community based employment
programming. None of the women are currently working due to health issues, age and/or
disability, and all are receiving Income Support.
Three young single men (all in their 20s) were interviewed, including two who had identified as
cycling in and out of the foster care system. Two of the men had limited education, a diagnosed
mental illness, and were in receipt of Income Support. The third informant had some postsecondary education and had been working steadily in a trade for a few years.
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The individual “mini” case study guide is found in Appendix “C”.
2.2
Data Collection
Participants in the pre-planning session, and the Gander CAB members unable to attend this
session, were asked if they could identify and/or provide any data which could inform the extent
of housing instability and homelessness in the region, in particular that which spoke to the
experiences of the priority populations. Data was subsequently received from The Salvation
Army (SA) Gander, the Gander Women’s Centre, the regional AES office, Cara Transition
House and the Evangel Pentecostal Church.
Information also was sought from a range of other community and governmental sources.
2.2.1 Statistics Canada/Community Accounts
Relevant information was drawn from the most recent data available from Statistics Canada and
the NL Statistics Agency’s (NLSA) Community Accounts to develop a profile of Gander
including, but not limited to the following information:





Demographics
Income
Education
Employment/self-reliance
Housing type and prevalence
2.2.2 Canada Mortgage and Housing Corporation (CMHC)
Information also was drawn from the most recent relevant CMHC publications and websites
including:






Canadian Housing Observer - with a feature on Affordable Housing, 2009
Canadian Housing Observer - with a feature on Housing Finance, 2011
Canadian Housing Observer 2012
Housing In Canada On-line (HICO)
Housing Market Outlook – Canada Edition, Fourth Quarter 2012.
Rental Market Report Newfoundland and Labrador Highlights, Fall 2012
Internet links for these publications and sites are found in Appendix “D”.
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2.2.3
Advanced Education and Skills (AES)
Information provided by representatives of AES Central Region – Gander office included
snapshots of a number of individuals experiencing homelessness in August 2011, statistics on
numbers seeking emergency accommodations, and Income Support data for the GNWV-RS
Region for September 2012. This AES office also provided responses from a survey related to
the experiences of youth living in poverty conducted with AES front-line staff in three district
offices in August 2011. Of note, this survey was conducted via Survey Monkey and there were
no forced answers. It is understood that this was a localized opinion survey and so the content,
sample size and sampling methodology are not statistically valid, but the 25 responses received
do further inform the issues of youth in the region.
2.2.4 Newfoundland Labrador Housing
NL Housing was contacted and the following information was requested and received for the
GNWV-RS Region:





The number of NL Housing units in each of the larger cities/towns in the region
The number of occupied/vacant units in the region
Waiting lists – and whether there is a preponderance of one group or another
Number of people on the waiting list under the Victim of Family Violence
policy/category
Number of Affordable Housing Initiative (AHI)1 units constructed in each of the
communities in the last two years and for whom (i.e. were these built for seniors? single
parents?)
Of note, all of the information requested from NL Housing could not be provided at the time of
writing of this report as a new data process was being implemented by the Corporation.
2.2.5 Evangel Pentecostal Church
Information was sought from the Evangel Pentecostal Church on participation and growth in
their community-based programs and services, including their furniture/household items
distribution and emergency fund disbursements.
2.2.6 The Salvation Army Gander
Information was requested from The SA Gander on participation and growth in their various
community-based programs, including their food bank, meal program, Christmas hampers,
emergency accommodations funds and Coats for Kids.
1
For an explanation of the Affordable Housing Initiative, see Appendix “F”.
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2.2.7 Transition House Association of Newfoundland & Labrador (THANL)2
Transition Houses on the island of Newfoundland (excluding Cara House in Gander) were
contacted and asked if in the 2010-2012 time period they had received referrals of women and
their children experiencing violence from the Gander region. Specifically, they were asked:

Did you get referrals from the Gander region for women and their children experiencing
violence?

If so, how many women and were they youth/adult/senior; did they have children; and
where in the region did they come from?

As well, did the women identify why they were not able to be accommodated in their
own region/community?
The intent was to try to inform the degree of mobility of women and their children experiencing
violence away from the Gander region, reasons for this mobility, and information on where they
are directed (e.g. shelters in other regions).
Cara House was asked to provide information on:

The number of women and children they supported in each of the last three years, and
how many of this population identified experiencing homelessness or affordable housing
concerns

Whether or not Cara House was unable to accommodate any of the women and children
who came seeking support and, if not, why not (i.e. any turn-aways)?

Of those who did come and stayed at the shelter - how many then experienced difficulty
finding affordable housing when it was time to leave?
2.2.8 Women’s Centres
Information was sought from the Gander Women’s Centre on the following:

How many women came to the Centre with housing concerns in the March 2011October 2012 time period?

What percentage of the overall numbers coming to the Centre does this constitute?
THANL includes transition houses across the province: in St. John ’s, Carbonear, Marystown, Gander, Corner Brook,
Happy Valley-Goose Bay, Sheshatshiu, Labrador City-Wabush, Nain, Rigolet, Natuashish, Hopedale
2
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Information also was sought from Marguerite’s Place in St. John’s on the following: over the
2010-2012 time period,

Did you get referrals from the Gander region to assist women to find accommodations?

If so, how many women and were they youth/adult/senior; did they have children; and
where in the region did they come from?

As well, did the women identify why they were not able to be accommodated in their
own region/community?
Again, the intent was to inform the number of women experiencing housing and homelessness
issues in the Gander region, and the degree of mobility of women away from this region to
access resources in other regions.
2.2.9 Choices for Youth (Choices)
Choices was contacted and asked to provide data on the number of male youth who came from
the Gander region seeking their shelter services in the 2010-2012 time period, and why these
young men could not be accommodated in their own communities.
The intent was to try and inform the number of young men experiencing housing and
homelessness issues in the Gander region, and the degree of mobility of this population away
from this region to access resources in other regions.
2.2.10 Naomi Centre (Stella’s Circle)
Naomi Centre was contacted and asked to provide data on the number of female youth who came
from the Gander region seeking their shelter services in 2010-2012, and why they could not be
accommodated in their own communities.
The intent was to inform the number of young women experiencing housing and homelessness
issues in the Gander region, and the degree of mobility of this population away from this region
to access resources in other regions
2.2.11 RCMP – Gander Detachment
The RCMP – Gander Detachment was asked if they have taken individuals who have no other
options for shelter into their correctional facilities. Specifically, information was sought on how
often this happens and the demographics of those involved.
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2.2.12 Other Data Sources
Other information sources accessed included the Seniors Resource Centre NL, Single Parents
Association of Newfoundland, and The SA St. John’s Wiseman Centre. Of note, none of these
sources was able to provide any data to inform housing instability and homelessness in the
Gander region.
2.3
Limitation to the research
One of the limitations to the research in the Gander region was the lack of available standardized
data to inform the housing and homelessness landscape in this region – whether that be in
relation to, for example, demographics of those seeking housing assistance or the type and
frequency of their requests. Without comprehensive and accurate data being readily available it
is difficult to make evidenced-based decisions in relation to the identified priorities. This
research therefore, has relied on a mix of qualitative information, anecdotal evidence, the
consultants’ extensive knowledge of issues related to housing and homelessness and a range of
quantitative sources in developing the strategic directions outlined in section 11.0.
FINDINGS
3.0 PROFILE OF THE GANDER REGION
This section provides a summary profile of the GNWV-RS Region which informs factors which
can contribute to housing instability and homelessness. These include the incidence of Income
Support (degree of poverty), dependence on government transfers, and unemployment rates.
Information for this profile was garnered from the following sources for 2006 and/or 2011.
Statistics Canada:

Focus on Geography Series, 2011 Census – Census subdivision of Gander, Newfoundland and
Labrador (www12.statcan.gc.ca/census-recensement/2011/as-sa/fogs-spg/Facts-csdeng.cfm?Lang=Eng&TAB=3&GK=CSD&GC=1006009)
NLSA’s Community Accounts:


Gander-New-Wes-Valley Rural Secretariat Region: Well-Being and Indicators
(http://nl.communityaccounts.ca/indicators.asp?_=vb7En4WVgbWy0nY_)
Gander - New-Wes-Valley Rural Secretariat Region Profile
(http://nl.communityaccounts.ca/profiles.asp?_=vb7En4WVgbWy0nY_)
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3.1
Population and demographics
The 2006 Census population for the GNWV-RS Region was 46,850. The median age in this
Region was 44 in 2006.
In 2011, the Town of Gander had a population of 11,054, representing a percentage change of
11.1% from 2006. The percentage of this population aged 65 and over was 15.0%, the working
age population (15 to 64) was 67.1% and children aged 0 to 14 was 17.9%.
In 2011, the number of census families3 in Gander was 3,390, which represents a change of
10.8% from 2006. In Gander, 72.4% of census families were married couples in 2011, while
13.9% were common-law-couples and 13.7% were lone-parent families. Information about
married, widowed, divorced, separated persons or persons who were never married is
unavailable for the GNWV-RS Region in 2011.
3.2
Self-Reliance Ratio
The 2009 self-reliance ratio for the GNWV-RS Region was 71.8%. This is a measure of the
community's dependency on government transfers such as: Canada Pension, Old Age Security,
Employment Insurance, Income Support Assistance, etc. A higher self-reliance ratio indicates a
lower dependency.
3.2.1 Market Income and Sources
In 2009, the sources of market income for persons in the GNWV-RS Region were:


Employment Income (25,160 persons reporting $27,700 average income)
Investment Income (7,040 persons reporting $1,900 average income)
3
A census family refers to a married couple (with or without children), a common-law couple (with or without children) or a lone
parent family. Available from http://www12.statcan.gc.ca/census-recensement/2011/as-sa/fogs-spg/Facts-csdeng.cfm?Lang=Eng&TAB=3&GK=CSD&GC=1006009#FN-CF.
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


RRSP Income (65 and older) (330 persons reporting $4,900 average income)
Private Pension (4,800 persons reporting $17,300 average income)
Other Income (4,750 persons reporting $4,300 average income)
3.2.2 Government Transfer Income
In 2009, the sources of Government Transfer Income for persons in the GNWV-RS Region
were:

Old Age Security/Net federal supplements (8,850 persons reporting $8,700 average
income)

Canada Pension Plan (11,910 persons reporting $5,000 average income)

Child Tax Benefit (5,250 persons reporting $3,000 average income)

GST credit (14,970 persons reporting $400 average income)

Employment Insurance (12,790 persons reporting $10,000 average income)

Workers' Compensation (960 persons reporting $9,700 average income)

Income Support Assistance (2,500 persons reporting $6,400 average income)

Provincial Tax Credits (14,230 persons reporting $600 average income)
3.3
Income Support
The number of individuals in the GNWV-RS Region who received Income Support at some
point in 2011 was 4,215, representing 8.9% of the population. The total number of children ages
0 to 17 in this Region who were in families receiving Income Support Assistance in 2011 was
995.
The average duration or the average number of months people were collecting Income Support
Assistance in the GNWV-RS Region in 2011 was 9.0 months. The average benefits for those
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people collecting Income Support Assistance in Gander - New-Wes-Valley Rural Secretariat
Region in 2011 was $7,000.
3.4
Highest Level of Education
In the GNWV-RS Region almost 67% of people aged 18 to 64 had at least a high school diploma
in 2006 with approximately 33% not having attained this educational level. Of the 33% who do
not have a diploma, almost 30% are people aged 25-54 years of age.
In the GNWV-RS Region about 8.1% of people aged 18 to 64 had a Bachelor's Degree or higher
in 2006.
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3.5
Employment Insurance
The number of individuals in the GNWV-RS Region who collected Employment Insurance at
some point in the year 2011 was 11,600. The employment insurance incidence, the percentage of
the labour force in the Region who collected Employment Insurance at some point in the year
2011, was 44.6%
The average benefit for those individuals collecting Employment Insurance in the GNWV-RS
Region in 2011 was $9,300.
4.0 ASSET MAPPING
A key focus for this research was identification of assets (resources, programs and services)
available to support individuals and/or families in the Gander region who are at risk
of/experiencing housing instability and/or homelessness. A list of assets was compiled primarily
at the initial planning session (see section 2.1) during which time many participants gave a brief
overview of the services their own organization/agency provides. Information on assets in the
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region was supplemented to a small degree through the other research methodologies undertaken
following the planning session.
•Gander CAB
As described in their Terms of Reference, the Gander CAB’s purpose is to represent housing and
homelessness issues and advocate for community agencies and other stakeholders committed to
the goals of the NLHHN. The Network’s goals include: to prevent and end homelessness and
ensure housing stability throughout Newfoundland and Labrador.
• Regional Coordinating Committee on Violence focuses on awareness raising, information
sharing and education in relation to violence prevention, as well as referral to appropriate
services.
• The SA Gander offers a range of programs and services, including a food bank, a free lunch
program, individual counseling, a washer/dryer and shower for those who are experiencing
homelessness and Linkages (a youth employment program). They also offer “community wheels
for seniors” for those needing transportation to, for example, the bank, a medical appointment
and/or to get groceries. If the senior has their own personal support/care worker, this person
accompanies them as required. There are other SA food banks and thrift stores in the region.
The SA Gander also can place individuals and families experiencing crisis situations in local
hotels for one or two nights. These can be self-referrals or referrals from other community and
government agencies. As well, The SA Gander can refer to other shelters in St. John’s.
At the time of writing this report, The SA Gander had applied to the Federal New Horizons for
Seniors program to run a seniors drop-in centre.
• Gander Women’s Centre supports women with a range of housing related issues such as
filling out applications for housing and services, and eviction prevention.
• Community Youth Network - Gander supports youth ages 12 – 18 from low income families
through a range of programming including: recreation; learning activities/support to return to
and/or stay in school; employment and career development – e.g. the Student Work and Service
Program (SWASP), Linkages and Skills Link; community building - e.g. volunteerism; and
supportive services such as information on programs and services they might need and meal
programs.
• AES provides a range of services to numerous vulnerable populations, including those who are
at risk of/experiencing homelessness. They deliver Income Support for rent and basic needs, and
(in certain circumstances) on an emergency basis, and also offer employment/training services.
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For example, Career Employment and Youth Services (CEYS) provides a range of programs and
services including assistance with career counseling, job search, training, and wage subsidies.
Through a number of community partners, AES facilitates programs for persons with disabilities,
youth and others who face barriers and challenges to entering the labour force.
As another example, AES also provides short term funding for Employment Development
Supports4 which is available to help eligible individuals pursue career and employment goals.
Individuals wishing to access this fund must be non-EI eligible, or be eligible to receive support
from the AES and interested in preparing for, getting and keeping a job. Specifically,
Employment Development Supports can assist with:

Training and expenses related to participation in: literacy, Adult Basic Education, shortterm training or job readiness training

Job search activities and personal expenses associated with looking for work (e.g.
clothing, transportation, tools, fees and certificates, etc.), and

A wide range of additional supports and services
This fund could support an individual who requires support to pay for living accommodations for
a short period as they are transitioning to employment or in order to stay employed.
The AES Emergency Supports for Victims of Violence5 allowance includes:

transportation to a shelter/transition house or other safe location

accommodations

personal allowance for the period of time the individual resides at a shelter (this is based
on their financial circumstance and is delivered by the Department of Health and
Community Services)
Supports for Victims of Violence in receipt of Income Support benefits include:

continuation of Income Support benefits based on their financial circumstance

transportation may be provided to move from one shelter to another for safety reasons/

to move household furniture; to supportive counselling and/or outside the province for
safety reasons

start-up allowance as a contribution towards obtaining, for example, furniture, linens, and
clothing, if it is determined to be unsafe to return home for these items

services of the regional Liaison Social Worker
This information was taken primarily from the Department of AES website – “Education Development Supports” available
from www.aes.gov.nl.ca/findajob/developmentsupports.html.
5 This information was taken from the AES website - Services for Victims of Violence, which is available from
www.aes.gov.nl.ca/income-support/victimsofviolence.html.
4
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There are two AES Liaison Social Workers (LSWs) whose mandates include the Gander region
but, of note, their overall area of responsibility is vast and encompasses Marystown to
Springdale. These two LSW have a significant focus on assessment and crisis intervention but
again it is important to recognize they are serving populations throughout the region and not just
in the Gander area. They assist persons with many and varied complex needs who intersect
multiple service providers and systems to connect to supportive services in their communities.
This population often is homeless or at risk of homelessness and the LSWs support them to
explore opportunities to connect with their own resources (e.g. family and friends) and/or those
in the community (e.g. medical, mental health and addictions, employment). The LSWs also
collaborate with community agencies to support these clients.
If no other housing options are identified, the individual is supported to access emergency
shelter. If there are no safety concerns, the individual/family could be housed at a local hotel, for
example. The length of time support is provided varies depending on, for example, availability of
housing in the region, and timely access to other required supports. If there are safety concerns
and a need for enhanced supportive services, the individual can be referred to an emergency
shelter in St. John’s. Of note, however, this referral is seen as a short term solution, as shelters
require that there is planning in progress to support the individual’s move from the shelter to
more permanent housing.
• Cara Transition House in Gander provides emergency shelter for women and children who
are victims of family violence. It is anticipated that the women and children will stay for a
maximum of six weeks during which time they are provided all their daily necessities and
supported to find the services and housing they need. The clients are not “placed”; rather they
make their own choices regarding housing. However, given the lack of affordable housing in the
Gander region, their choice is limited and so increasingly the women are staying at Cara House
for longer than six weeks.
Cara House also has six second-stage housing units for women and children who are
transitioning from the shelter: four three-bedroom units rented for $550/month and two fourbedroom units rented for $600/month. These units are partially furnished and include a washer,
dryer, fridge and stove; heat and light are included in the rent. It was stated that due to staff
limitations, Cara House is unable to provide the depth and scope of support required to those
living in this second stage housing.
• RCMP - Gander Detachment
The RCMP does not have a mandate to address homelessness and cannot formally intervene in
situations where crimes have not been committed. However, it was stated that they can take a
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person into their custody for a night so they are not left exposed to the elements/violence and/or
on the street. The individual is put in a cell but the door is left open, as they are free to leave.
•Family Resource Centres
There are five Family Resource Centres (FRCs) in the region, servicing 17 communities, with a
hub in Dover which on its own services about 200 families. These FRCs offer an array of
programming including cooking classes, nutrition programs, parent/child programs, Healthy
Baby Clubs, and a “Level Best” bulk buying program, in which families pay less to share
products that are purchased in bulk. FRC participants also are referred to external resources as
required.
There also is a Military Family Resource Centre (MFRC)6 located in Gander which provides
services, programs, resources, and support to improve the quality of family life and strengthen its
military community. The MFRC promotes personal growth, skills development, and
social/community engagement by offering various classes, workshops, training sessions and
special events.
• Gander and Area Employment Corporation supports individuals with developmental
disabilities to find and maintain employment.
•WISE offers a range of programming including Linkages, career exploration and job search, as
well as access to a computer lab, and individual client counseling. WISE does not specifically
address housing and homelessness but refers clients to other appropriate services.
•Evangel Pentecostal Church provides a range of supports to individuals and families
experiencing crisis, including homelessness. They provide furniture, food and clothing and
maintain an emergency fund which can meet a range of needs (e.g. transportation, mobility aids)
for those who find themselves experiencing crises. Senior staff can provide some counseling, and
they also have provided community service hours.
The Church has provided small funds to meet initial rent costs and/or the cost of one to two
nights in a hotel for individuals (primarily young men) who are in emergency situations in
relation to housing. They also have provided some up-front financial support to those who need
funds to access rental units. The Church has a duplex in which people in emergency situations
can live for up to one year (for $600/month including heat and light).
6
Information on the Gander MFRC was taken from its website, available from
www.familyforce.ca/sites/Gander/EN/Pages/default.aspx.
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• Central Health (Regional Health Authority)
Mental Health and Addictions services work with people who have severe and persistent chronic
illness including, for example, bi-polar disorder and schizophrenia. They support clients to find
apartments, provide rent supplements and intervene with landlords to seek their agreement to
rent to their clients. As required, they have provided transportation and in some cases provided
food. Overall, they try to put supports in place to keep their clients well.
There also is a mental health team comprised of social workers, a nurse and a psychologist
located in the James Paton Memorial Hospital in Gander. They are not mandated to address
clients’ housing issues, and it was felt they do not have time to do so given the complexities
exhibited by their client group.
A Board and Lodging Supplement is available, based on assessed need, to an adult with
psychiatric, physical and/or intellectual disabilities, 18 years of age and older, who reside with
relatives or non-relatives. These adults have identified needs and require a higher board and
lodging rate to live in these arrangements than is usually allowed. The basic rate of board and
lodging is available through HRLE and the supplement is available through the Regional Health
Authorities.7
In addition, Central Health has a housing “top up” program available to some populations
including youth and single individuals with complex needs. Mental Health and Addictions and
Community Support clients can avail of both the board and lodging and the top up allowance
from Central Health. This extra funding helps this client group to afford higher rental prices.
Public Health Nurses also support a range of populations but are not specifically mandated to
support their housing concerns, although it was stated they try to support their clients as possible
in this regard.
A range of other available services identified in the Gander region included:

Alcoholic Anonymous (AA)

Boys and girls clubs/church youth groups/youth recreational and leisure groups/youth
centres (one in Musgravetown; one in Gambo)

Consumer Health Awareness Network Newfoundland and Labrador (CHANNAL)

Jumpstart programs in Summerford, Lewisporte and Gander.

Kids Eat Smart programs in many schools
7
Department of Health and Community Services. Programs funded through the Department of Health and Community Services.
Available from www.health.gov.nl.ca/health/personsdisabilities/fundingprograms_hcs.html#snbls.
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
NL Housing units throughout the region and a neighbourhood centre in Gander

Private counselors (limited number)

Seniors 50+/recreation clubs

SWAP (needle exchange program run by the AIDS Committee of NL)
It is anticipated that this list of available assets will be expanded on at the Gander CAB’s
regional forum, which will be held on completion of this project’s research phase. This forum
will include both those involved in the research phase, as well as others whose roles do or could
include addressing housing instability and homelessness in the region.
4.1
Expansion of Assets in the Region
A small number of the community based informants said they would be interested to expand
their resources and services, but this would depend on: the expertise available to them internally,
additional funding for expanding existing services/developing new initiatives, and synergy with
their mandate. Examples of potential expansion included: employment related supports for men
(similar to WISE); new second stage housing with a key focus on supportive living; and more
programming for young people.
One specific enhancement to Gander’s regional services will be the Gander CAB’s acquisition of
a Housing Support Worker (HSW)8 position. These staff assist individuals with multiple and
complex needs to find and maintain suitable housing. Working with housing providers and
private landlords, the HSW coordinates support to help break the cycle of homelessness and
instability. Their core responsibilities include support to access and maintain housing, as well as
administrative duties – e.g. maintaining daily logs and statistical information in relation to
working with those at risk of/experiencing homelessness. A complete job description for the
HSW is found in Appendix “E”. The Gander CAB has identified a proponent (The SA Gander)
for the HSW. The NLHHN is assisting in development of an application to be submitted to the
Provincial Government’s Supportive Living Program (an initiative under the Poverty Reduction
Strategy) for funding this position, with a proposed start date of April 1, 2013.
5.0 HOMELESSNESS AND HOUSING INSTABILITY IN THE
GANDER REGION
This section provides information on homelessness and housing instability in the Gander region,
including root causes and gaps in services and supports. This information was drawn from all
8
Information on the HSW was provided by the NLHHN.
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lines of evidence for this research. For ease of reference and to further protect confidentiality of
those consulted, both planning day participants and the community and government service
provider key informants interviewed following the planning day, will be referred to as
“informants”.
5.1
Lack of emergency shelter/transitional housing
AES informants stated that many of their clients with complex needs are experiencing housing
instability and/or homelessness. One informant stated they have placed individuals in hotels for a
minimum of three nights and some for significantly longer, when they cannot stay with family or
friends and have no individual capacity to find their own housing.
This same informant said they have coordinated the placement of a few individuals at the
Wiseman Centre, Tommy Sexton Centre and/or Choices in St. John’s and as well have accessed
the services of The SA Gander to accommodate some of those who have nowhere to live and no
immediate options. They also noted that some individuals have been admitted to hospital due to
their mental health issues with housing identified as a major contributing factor to their level of
distress.
The RCMP informant reported that they and their colleagues, who travel the region as part of
their work, have seen people emerging from the woods in the mornings and/or sleeping in
abandoned cars. They described one incident in which they found a pregnant woman in an
abandoned vehicle and supported her to get immediate assistance.
One of the municipal informants stated that while the evidence of homelessness in terms of, for
example, individuals camping out/sleeping in sheds is largely anecdotal, it appears this has
grown in the last four or five years. This informant said this is a priority issue for the Town of
Gander.
Over the 2011-2012 period, The SA Gander supported 24 individuals and families (the majority
of whom were young men) to access emergency shelter. They fund the individuals and families
to access local accommodations (a hotel) and can support them for up to three nights, although
usually after one night they can connect the individuals with AES/income Support.
As of mid-November 2012, The SA Gander had eight individuals looking for emergency
accommodations. As noted by the informant, the fall/summer are not the peak periods for
homelessness as individuals who need shelter can and do sleep outside - e.g.in tents/under
bridges and/or in cabins. In contrast, the winter months are the most difficult for those who are
experiencing homelessness and it is during this season that there are more individuals seeking
support from The SA Gander.
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The Evangel Pentecostal Church has provided young single men with small sums of money to
meet initial rental costs and/or the cost of one to two nights in a hotel in cases of emergency. As
well, and as stated previously, the Church’s duplex can support people in emergency
housing/homelessness situations for up to one year. As described by one informant,
“People rely on the churches’ generosity or there would be “a lot more people” –
usually single men - on the bus to St. John’s.”
A few informants highlighted that while there are hotels in Gander in which individuals and
families can be accommodated in the event of needing an emergency placement, there are few/no
such accommodations in many other communities in the region.
Many informants, including some of those who responded to the AES front-line survey,
identified the need to have access to 24-hour emergency shelter in the region for individuals and
families needing same. As stated by one informant,
“[Lack of] emergency response services to avert crises is a “huge gap” and needs to
be in place.”
Some informants also noted that there is little supportive transitional housing in the region to
support individuals to move from emergency housing to a more stable setting.
Perspectives of those who are at risk of/have experienced homelessness
The three males all reported having experienced homelessness: one said that for months he had
nowhere to live; one lived in his vehicle for a short time; and one had couch surfed and then
“spent a lot of time roaming the streets”, as he did not want to be a burden to his friends. Two of
these young men reported they had spent time in foster care and at shelters. The other informant
reported being put up in a hotel by The Salvation Army Gander when he first became employed
but noted he remained homeless until he received a pay cheque.
One of these male informants highlighted that more emergency housing is needed in the Gander
region, as if he needed help he would have to go to St. John’s or Grand Falls-Windsor where he
knows no one. He insisted that “Gander, as one of the biggest communities in Newfoundland and
Labrador, should have emergency housing until folks get settled.”
5.2
Access to basic needs/poverty
Food bank statistics from The SA Gander indicated that on a monthly basis they serve
approximately 122 families, and it was identified that this number has been increasing. They
reported that their food bank serves mainly single men and seniors. It was stated that there is an
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increased need for accessing the food bank closer to the time clients’ cheques are coming – as
their money has dwindled by then.
It was reported that The SA Gander food bank and the Gander and Area (community) Food Bank
share the names of those who have accessed their services, so as to restrict usage to once a month
due to insufficient resources to keep up with increasing demand. In the summer, the number of
The SA Gander’s food bank users doubles, as the community food bank closes during this
period. A number of other providers said they try to do what they can for clients who have used
their food bank allotment, but who are still in need of provisions.
The SA Gander also distributed 350 Christmas hampers in the Gander region in 2011-2012,
which was up from 280 in 2010-2011. Further, they identified that three years ago they began a
friendship room – a lunch meal provided every Thursday. The initial attendance was
approximately 20 people. This has grown to an average of 40-60 participants weekly with the
majority being seniors, many of whom are repeat users. Some of the patrons also include postsecondary students who come from other communities/provinces to attend school in Gander.
The number of food vouchers provided by the Evangel Pentecostal Church has increased in
recent years, with fewer than 15 provided in 2009 and upwards of 90 provided up to the end of
October 2012. The Church responded to 193 individuals and families (the majority being
different requests) between January and October 2012 for furniture and household items. The
items distributed included everything from beds (frames, mattresses & box springs), couches,
dressers, tables and chairs, cribs, change tables, and children’s playpens to cutlery, pots and pans.
Informants for the Church reported that furniture most in demand included beds, couches, tables,
washers and dryers – in that order of priority. The SA’s Coats for Kids program also had an
increase of about 5% patronage this year over last year.
Further as detailed in section 3.3, approximately 9% of individuals in the GNWV-RS Region
received Income Support at some point in 2011, with the average benefit being $7000.
The “working poor”
The working poor also were identified as a significant group at risk of homelessness. As one
informant described, “They don’t have the resources to get ahead and if they fall behind, they
can’t catch up.” As stated by another informant, the housing market in Gander is strong and
costs are high, so even a professional moving to Gander could experience financial challenges.
Perspectives of those who are at risk of/have experienced homelessness
A number of those who are at risk of/have experienced homelessness said they are struggling
financially because, for example, of their high rental costs/lack of sufficient income. Their
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financial constraints are restricting their capacity to buy food and/or pay their utilities. As one
informant noted, they are “cold all the time.”
5.3
Individuals with complex needs
There was general agreement from informants that people with multiple and complex care needs,
behavioral issues, mental health and/or addictions issues, in particular young males < 30, are at
the highest risk of homelessness. It was stated that those who have serious mental health issues
and no support networks can end up living in poverty, homeless, incarcerated, in hospital,
moving from service to service seeking appropriate resources and supports and/or drifting from
community to community.
The Gander region does not have an Assertive Community Treatment Team (ACT)9,10, although
it was identified that there is a population in the region that needs access to this service. It was
stated that Central Health has a mental health and addictions unit in Gander to which all ages can
be referred and one related case manager. This unit was described as under-resourced with no
walk-in service, and limited mental health outreach (which is only available during the regular
work week). Some informants stated that, as a result of this limited service, the options available
to those who are experiencing crisis and/or exacerbations of their illness are to go to the
Emergency Department at the hospital and/or in some cases be apprehended under the Mental
Health Act.
There are no community based mental health and addictions services (e.g. drop-in centre or day
program) in the Gander region, which focus on supporting people with mental illness/complex
needs to access needed services and resources and/or which offer counseling, supportive living
and related support services. As described by one informant,
There are insufficient community-based services for persons with mental health and
addictions issues to support them in the community and prevent unnecessary admissions
to the hospital.
The nearest treatment centre for people with mental health issues is in Grand Falls-Windsor.
There is a chapter of the Consumer Health Awareness Network of NL (CHANNAL) in Gander,
but their mandate is self-help, not service. They are primarily focused on building and
strengthening self-help networks among individuals living with mental health issues and
9
Assertive community treatment, or ACT, is an intensive and highly integrated approach for community mental
health service delivery. Further information is available from
http://en.wikipedia.org/wiki/Assertive_community_treatment.
10
There is an ACT Team based in Grand Falls-Windsor which serves Badger to Bishop's Falls, Botwood and
Northern Arm.
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combating isolation for those living with mental issues by offering social and emotional support
through self-help.11 As well, the Gander CHANNAL office currently is not staffed.
An AES informant provided profiles (developed in August 2011) of a few individuals who
accessed their offices or were cited to be in need of support. These vignettes demonstrate the
issues with which people are presenting.
● A phone call was received from a community agency about an older middle aged man who
was living in a cabin in the woods. They were concerned that this individual was depressed and
had not been out of the woods since the early winter 2012. He was in deteriorating health and
losing weight. Members from a local church group had been supporting him and checking on
him.
●A call was received from a friend of another older middle aged man who was described as an
alcoholic and having depression. It was stated that this man had been homeless for two weeks
and was “going downhill fast.” He had been couch surfing with various friends but at the time of
the call, was sleeping in cars and/or in the back of a garage.
●A young woman (late teens/early 20s), who had come to the province for employment in the
Spring of 2012, visited the AES office after sustaining an injury which prevented her from
working. She had no family support in the province and did not want to return to her home
province, even when AES explained they could support her passage back. She self-identified as
having mental health issues and having stopped her medication when she arrived in the province.
The young woman stated she did not like big cities and that “Gander is almost too big” for her.
She was informed that as she was not a resident of the province and had an income in the
previous month, there was not much AES could do for her. At the time of coming to the office,
she was living in a tent near her worksite in the woods.
●A concerned citizen went into the AES office to let them know that a man in his thirties was
living in the woods off an older trail way. He was wondering what AES could do for this
individual as he was homeless and an alcoholic. This man was reported to have been in the
woods for three days and unable to help himself.
A number of informants highlighted a need in the Gander region for more holistic, one-stop
shopping, wrap-around mental health and addictions services. A small number of informants
specifically referenced needing community based supports and services such as those offered by
Choices and Stella’s Circle in S. John’s and the Community Mental Health Initiative (CMHI) in
11
CHANNAL. Who is CHANNAL? Available from http://channal.ca/about-us/who-is-channal.
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Corner Brook. These informants said there was a need for supportive living options,
individualized support, outreach, and a strategic focus on connecting people to their communities
through, for example, social enterprise initiatives and community activities such as a community
choir.
Perspectives of those who are at risk of/have experienced homelessness
Three of the individuals stated that they had diagnosed mental health illnesses – two of whom
reported not being diagnosed till they were older. One of these informants, who also had
frequently been in conflict with the law (although not in recent years), said that his mental illness
“slowed him down and he never achieved much because of these challenges.”
This informant also said there was a need for a more hands-on approach to supporting people
with mental illnesses, stating there must be more therapeutic approaches available, not just
medications and increased emergency services for this population.
I think certain people with mental health issues could use someone on hand. If they
need anything on an emergency basis, now they go to the hospital. [You] cannot have
people with mental health issues wait five hours in a waiting room when all they need
is to talk to someone for five minutes.
5.4
Youth – in particular, young men with complex needs
There was general consensus that the main population of concern in the Gander region is young
men between the ages of 16-35, in particular those who have complex mental health and/or
addictions issues.
Some noted that young people who have little family support, education, inspiration, and/or
motivation are at higher risk of repeating a cycle of unemployment and living in poverty/on
Income Support. This in turn leads to inequality and can lead to other social ills such as violence
and abuse.
A number of informants also felt that for those who age out of the in-care system, the level of
supports and services available to them is drastically reduced. One AES informant said they felt
that quite a few of those who are homeless and referred to them from the Gander area have come
through the foster care system. They stated that these individuals are disconnected from systems
and services and excluded from their communities.
Informants reported that youth can be sleeping in cars, couch surfing, “camping out”. They
reported that even those youth who move around from bed to bed don’t consider themselves as
homeless, although they have no fixed address.
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AES informants stated that, as with anyone who presents as being homeless, efforts are made to
try and encourage the youth to stay with family or friends, at least temporarily. However many
do not have family/friends on whom they can depend and so, often go back to inappropriate or
unsafe situations in their own communities or in Gander. Youth can be supported to avail of
hotels for a short period or to go to shelters in St. John’s – if there is space and if they want to go,
as most do not want to leave their home communities. As described by one informant, they have
sent youth to Choices in St. John’s only to have them come back home and end up on the
providers’ “doorsteps” again, because it (Gander) is home
A youth serving agency representative spoke to the plight of one young man who did not meet
their age criteria and who does not have the capacity or support to help himself:
He has been sent from place to place for resources. ….he is lost. He has mental health
issues and does not have a lot of family support
Perspectives of the front line worker survey respondents
Of the respondents to the front-line workers survey, 68% identified that of the youth on Income
Support with whom they work, each is impacted by four or more of the following issues:

mental health and addictions challenges

lack of personal support (i.e. emotional, financial)

pregnancy/single parent

lack of skills and/or education

coming from families with a present or past attachment to Income Support

abused or neglected in the past

involved in the youth justice system.
Sixty percent of survey respondents also “definitely disagreed” with the statement that resources
and services for youth experiencing mental health and addictions challenges (e.g. professional
counseling, Alcoholics/Narcotics Anonymous support groups, detox centres, outpatient and/or
full time rehab programs) are readily available and easy to access in the area. In addition, almost
43% of respondents stated that it would be important to improve mental health services in the
region with 33% noting that similar improvements are needed for addictions services.
Almost 50% of those who responded to the survey “definitely disagreed” that resources and
services for youth with a lack of personal support and/or are experiencing abuse or neglect
are readily available and easy to access.
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Many informants, as well as some of those who responded to the front-line survey, identified the
need for additional resources and programs to support youth transitioning to adulthood. The list
of needed resources included emergency/transitional/supportive housing/affordable housing with
wrap around supports – including supports to develop skills for daily living. Other needed
resources cited included employment counseling, as well as job search and maintenance
supports; access to social/recreational facilities – e.g. a youth centre; and enhanced community
involvement through programmatic initiatives and access to positive role models and mentors. It
also was noted that there should be more collaborative effort between and among provincial
government providers including, for example, Child Youth and Family Services, Justice, AES
and Health and Community Services to support a shared client group.
In particular it was stated by a few informants that there is a critical need for a Choices satellite
site and/or approach for supporting youth in the region.
Perspectives of those who are at risk of/have experienced homelessness
All of the young men who had experienced homelessness identified gaps in programs and
services for males in the region, with all citing the need for a shelter and one stating it should be
like Choices. They also noted the lack of youth/resource centres in the region, little access to
computers (e.g. in libraries) and/or lack of affordable housing.
One of the young men said he has not asked for any kind of help because there was so little in
Gander: he described feeling “kind of helpless”. He felt that when he was having trouble finding
housing, there was reluctance to put him up in a hotel because it was too expensive. He also felt
that the lack of services and resources was the reason that some young people are involved in
negative activity.
Another young man stated there are not enough resources in his community, and that St. John’s
is “too tough” to live in, and he has no car for transportation needed to find services and
information in other places.
5.5
Single parents
Planning day participants identified that single parents, in particular young single mothers, are a
population at risk of housing instability and homelessness. It was felt that it was very difficult for
young single parents to find affordable housing and this was magnified when they are moving
from rural to urban areas where there are lower vacancy rates, and Income Support is not
sufficient to cover rent and/or increased utility costs. One informant further highlighted that the
cost of purchasing or renting a new home is “way out of line” with this populations’ incomes.
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It was reported that sometimes single moms are moving in with their parents/grandparents and
while on the surface this is a good move, it was identified that they have little personal space. It
also was reported that sometimes young women who are pregnant or already have a baby are
subsequently asked to move from the family home due to the lack of room for the mother and the
new baby.
Some informants identified single moms experiencing domestic violence as being even more at
risk. It was noted, for example, that women from rural communities who experience violence,
often need to move into more urban communities to find affordable housing/shelter. This places
them in a new and often unfamiliar environment with no close support from family or friends. As
a result, some return to their abusive household.
A number of informants highlighted the lack of an FRC in Gander as a significant gap in support
for single parents. Further it was suggested that there should be a “MISE” program (“Men in
Successful Employment”) similar to the WISE program – to further support single fathers and
young men who need pre-employment and transitions programs. This need also was identified by
one or more respondents in the survey of front line workers.
Perspectives of those who are at risk of/have experienced homelessness
The single mother identified several financial issues arising out of living on Income Support. She
also agreed that there is a lack of services in general for single parents in the region. She cited a
“definite” need for an FRC in Gander, as well as self-help/support groups, counselling services,
and increased opportunities to exchange information and ideas on parenting issues and
approaches.
5.6
Seniors
Most informants who could speak to issues facing seniors spoke to the need for affordable
housing for this population. Many reported that there are new seniors’ apartments available in
some areas of the region, in particular Gander, but that for many reasons these accommodations
are not meeting the needs of the overall seniors’ population:

While these are deemed to be affordable, the rents - e.g. $700-$1000+ a month - are still
too high for many on a fixed income.

When new senior units were built in Gander, this freed up some of the less expensive
existing units. However, when there was a turnover in tenants, the lower cost units went
up in price.

More seniors are moving to bigger centres to be near health services but are having
difficulty doing so because of lack of seniors’ housing, especially affordable housing in
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these centres. For example, it was reported that there is a waiting list of approximately
130 for Golden Legion Manor in Gander.

Some seniors do not want to leave their homes and home communities even to access
more affordable housing.

Some who are used to paying individual monthly bills (e.g. heat, light and cable) might
not understand the potential cost savings if all of these are included in one rental amount,
and so are reluctant to leave their homes.

Seniors in need of long-term care, who have lived in their own homes all their lives, may
be very reluctant to go into a long-term facility especially if they have to share a room.
Lack of supports for seniors also was considered a critical issue for this population.
Informants who spoke about seniors felt there are seniors in the region who are
neglected/neglecting themselves, have mental health and addictions issues and are invisible and
stigmatized, and/or are having difficulty meeting their daily needs due to financial constraints.
Some seniors no longer have family support due to family living/working away and this may
result in them being “forced” out of their homes to access the daily support they need in a
personal care home or institution.
5.7
Persons with disabilities
A small number of informants referenced the challenges which persons with disabilities face in
relation to finding accessible housing, which was described as limited or non-existent in the
region. One informant felt that those with intellectual disabilities who do not have the capacity to
make complex decisions on their own, and who have insufficient support and care, are at even
greater risk of housing instability and homelessness. This is particularly true if there is
inadequate planning for the major transitions in their lives such as in the event of the death of
aging parents with no contingency plan for housing and support
5.8
Lack of supports/awareness of supports
The majority of informants felt that overall there was a lack of wrap-around services and
supports available to those in the Gander region at risk of/experiencing homelessness, coupled
with waitlists and wait times for what is available. A few highlighted that community
organizations are increasingly being asked to take on more responsibilities and issues with fewer
resources and that they cannot be the only solution available to individuals and families in crisis.
A number of informants also felt that some individuals are lacking skills of daily living needed to
for example, navigate programs, systems and services, as well as participate therein, and to
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achieve overall stability in their lives, including running and maintaining a home. As described
by one informant,
“Often people have to go to a number of places to have their needs met and it is hard
enough for professionals to navigate government systems, much less for people in
need to navigate them.”
A few informants also highlighted that people need to feel safe and comfortable accessing
services and some are too intimidated by government structures to try and access their services.
This is compounded by a lack of community organizations to support them in this access.
5.9
AES/Income Support
It was felt that when AES staff had much more one-on-one and face-to-face interactions with
their clients, this facilitated relationship building and thus more in-depth awareness and
understanding of their clients’ situations. This was seen to have resulted in a more effective and
holistic service to clients. In contrast, it was highlighted by some that now there are many and
varied separate units for services including, for example, intake/assessment, case maintenance,
transportation, and employment, with clients having to access one or more as required. In
addition, some felt that government policies and practices are too inflexible and their processes
are framed by too much “red tape”, both of which could put people at risk.
To highlight the latter issue several examples were provided by informants:
•If an individual who is homeless and not in receipt of Income Support, seeks assistance from
AES, the application, assessment and approval process can take days. Informants explained that
should this situation arise, the individual would be referred to a local community organization –
usually The SA Gander, which would use their resources to house the person for one or two
nights until the AES process could be completed.
•A young person had found a job, but due to lack of funds, had nowhere to sleep in the days
preceding the start of their employment, except in their car. A request for assistance to AES was
delayed due to the fact that an investigation was needed to determine whether or not this person
was in a relationship, which was known to have been the case previously, and thus already
availing of accommodation. As well, because the person was living in a car and had no fixed
address, this presented another challenge to receiving Income Support.
Many informants were in agreement that AES needs to have more flexibility in its service
provision to ensure that individuals’ needs, in particular as they relate to housing and income, are
addressed in a timely manner to prevent them from falling into deeper crisis.
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Perspectives of those who are at risk of/have experienced homelessness
Income Support was cited as an issue by most of those who had experienced/were at risk of
homelessness. The single mother stated that Income Support is insufficient to match the rising
cost of living, particularly given her child support is clawed back and that she is unable to break
even every month. She reported accessing some local community supports such as the Boys and
Girls Club but said that the resources available still do not allow her to adequately support her
children to have the same quality of life as those who have a steady and adequate income. She
stated, “Kids need to be kids sometimes, but the need is there for clothes, etc. I can’t remember
the last time my kids had a new toy.”
One of the informants said they do not want to abuse the Income Support system but noted they
were very disappointed in it. When they needed help for a short time, the support was not
forthcoming, even though they were making efforts to move forward in their life.
One of the informants described how difficult it was to try and talk to someone at AES and
reported having “to talk to a string of people” to get something done and feeling like a “broken
record”. This informant reported that help is eventually forthcoming from AES, but that the
process is very frustrating. They stated that what is needed within AES to ensure clients have a
positive experience is a one-stop shopping approach.
5.10 Social housing
Some informants referenced that applications for NL Housing only remain on file for a year.
While the application stated that applicants have to reapply, these informants expressed a
concern that many applicants would not have the capacity or wherewithal to reapply. It is felt
this process is resulting in clients “falling off the list”.
Other informants felt that many people, in particular single people, do not apply for NL Housing
because there are few vacancies appropriate to their needs. Some informants said that despite the
lack of availability of NL Housing, they encourage their clients to apply to demonstrate the
ongoing need and demand for a range of housing suitable to an array of needs.
Perspectives of those who are at risk of/have experienced homelessness
Two of the informants reported long waiting lists for NL Housing and having to live with family
and/or in inadequate housing (e.g. substandard rental) while waiting to be accepted for a unit.
One of the informants stated they had moved more than a dozen times from one rental unit to
another due to the lack of suitable housing at affordable prices and that many of the rental units
were substandard.
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5.11 Rental properties/substandard properties
Many informants felt there is discrimination ongoing in the Gander region against a range of
individuals and families seeking housing. It was felt some landlords are reluctant to rent to those
with mental health and addictions issues, parents with children (in particular young or single
parents), young men, those on Income Support, clients coming from Cara House and/or people
who own pets. As well, those who are “known” in the region due to, for example, past criminal
histories or difficulties in other rental housing, are severely challenged to find apartments.
Overall, the sense is that it is a “landlord’s market’ in Gander and so they have more choice in
who they do and do not have as tenants. One informant stated that today’s landlords are looking
for more “stable” tenants: “The market is in favor of “perfect” tenants and weeds out those that
aren’t “favorable”.”
As well, because of the low vacancy rate, landlords can raise rents without any consideration of
the financial situation of those living in their premises or potential tenants. Further, it was stated
that Income Support rates are not keeping up with rental rates. As described by one informant,
People are caught up in the “money grab”….somewhere along the line someone must
have a social conscience….landlords raise the rents without thinking of the
consequences on potential future tenants, e.g. that extra $20 for rent can mean $20
less for food.
Many informants also felt that low vacancy rate in Gander pushes individuals and families
towards substandard and inadequate accommodations, as it is “better than homelessness” – at
least they have a roof over their heads. Some also thought that the lack of complaints about these
properties is similarly due to an acceptance that substandard is better than nothing. One
informant recounted a story of a family who was living in their kitchen – even having a bed in
there, as the rest of the house was not livable. Another informant stated, “I wouldn’t put my dog
in some of them [rentals].”
5.12 Employment
Survey respondents spoke to the barriers to employment which face young people on Income
Support. For some whose families have relied on Income Support for generations, there has
been a lack of role models, work ethic and motivation to work, as they have been trapped in
poverty with little ability or incentive to move on. In relation to the latter it was identified that
the wage which they might be able to secure is not sufficient to allow them financial security and
sustainability. In contrast, while Income Support is not generally a “living wage”, it does provide
a level of consistency and does have certain benefits attached (e.g., the drug card). Comments
from respondents included:
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Youth on Income Support are not prepared for life and work.
[Youth] feel that it is not enough money to take them off the system and many of these
places offer part time employment only and no benefits.
To be successful in employment, youth need a safe and stable home, personal supports
and life skills. If youth are requiring the assistance of Income Support because some
area of their life is in flux, they will not be able to simply replace the financial support
given by AES with earned income and expect the other areas of life that were
challenges to improve.
Other respondents felt that some barriers to employment emanated from youth’s mental health
issues and/or employers not hiring them because of their issues/background which become well
known in small communities. As commented by one respondent,
Employers want bright, enthusiastic and hardworking individuals, and the perception
of many employers is too many of our unemployed youth do not offer these qualities.
Some of the survey respondents felt there is a need to provide more programs to improve the
young people’s educational attainment, employment skills/marketability and personal
development, as it was felt that many have low/limited self-esteem and confidence.
Informants who were offering Linkages and Skills Link said they could double the number of
participants in these programs if they were provided the requisite resources to expand the
programs. However, it was noted that while Linkages is intended for employment-ready youth
who have some small barriers to employment, many of those who are going through the program
have significant challenges and need more foundational skills building – e.g. life skills.
A small number of informants felt that overall there was a need for more programming to
support people in acquiring training and skills needed for employment including basic skills such
as writing a resume, job search and participating in an interview.
Of note and as stated in section 3.5, the percentage of the labour force in the GNWV-RS Region
who collected Employment Insurance at some point in the year 2011 was 44.6%. The average
benefit was $9300.
Perspectives of those who are at risk of/have experienced homelessness
One of the older informants noted that her health had negatively impacted her capacity for
employment and thus her attachment to the Labour Market and financial stability. The single
mother said that she would “love to work” to rise above the poverty level and break even every
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month – “even to have one dollar extra.” However she lamented the lack of appropriate
incentives to go to work and noted that she did not want to have to be working exceedingly long
hours to break even, as this would negatively impact the time she wanted to spend raising her
children.
One of the young men spoke to how insufficient a minimum wage job would be in terms of
meeting his daily needs, and in particular paying for his medication, noting he could not afford to
lose his drug card. From his perspective, there is little incentive to go to work. This informant
stated that he does not meet the criteria for some employment programs because he is not
Employment Insurance eligible.
5.13 Transportation
There is no public transportation in the region, and many living in poverty cannot afford their
own car or to use local taxis. While there may be some community groups who have instituted
local transportation services (e.g. community bus in Twillingate-New World Island), these are an
exception not the rule. This lack of transportation results in increasing numbers of people
wanting to live in centralized areas to be close to services they need. This influx creates further
housing pressures.
Informants reported that individuals who live outside of Gander and who are on Income Support
do have access to the needed funding for transportation to travel to/from needed services.
However if an individual in receipt of Income Support is living in Gander, this funding is not
provided. From their perspective, those living in Gander also need a level of funding for
transportation.
Perspectives of those who are at risk of/have experienced homelessness
One of the informants spoke to the transportation difficulties they experience stating that they do
not have a vehicle and so cannot get around to access services in Gander or other places. They
further specifically referenced limitations in relation to what AES would cover for transportation
saying that they won’t pay for taxis, e.g. if he has to see a doctor.
6.0 AFFORDABLE HOUSING
In Canada, housing is considered affordable if shelter costs account for less than 30 per cent of
before-tax household income. The term “affordable housing” is often used interchangeably with
“social housing”: however, social housing is just one category of affordable housing and usually
refers to rental housing subsidized by the government.
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Affordable housing is a much broader term and includes housing provided by the private, public
and not-for-profit sectors, as well as all forms of housing tenure (i.e. rental, ownership and cooperative ownership). It also includes temporary as well as permanent housing. In other words,
the term “affordable housing” can refer to any part of the housing continuum from temporary
emergency shelters through transitional housing, supportive housing, subsidized housing, market
rental housing or market homeownership.12
For renters, shelter costs include rent and any payments for electricity, fuel, water and other
municipal services. For owners, shelter costs include mortgage payments (principal and interest),
property taxes, and any condominium fees, along with payments for electricity, fuel, water and
other municipal services.13
6.1
Core housing need
The term acceptable housing refers to housing that is adequate in condition, suitable in size, and
affordable.

Adequate housing does not require any major repairs, according to residents.

Suitable housing has enough bedrooms for the size and make-up of resident
households, according to National Occupancy Standard (NOS) requirements. Enough
bedrooms based on NOS requirements means one bedroom for each cohabiting adult
couple; unattached household member 18 years of age and over; same-sex pair of
children under age 18; and additional boy or girl in the family, unless there are two
opposite sex children under 5 years of age, in which case they are expected to share a
bedroom. A household of one individual can occupy a bachelor unit (i.e. a unit with no
bedroom).

Affordable housing (as described above) costs less than 30 per cent of before-tax
household income.
A household is in core housing need if its housing does not meet one or more of the adequacy,
suitability or affordability standards and it would have to spend 30 per cent or more of its beforetax income to pay the median rent (including utility costs) of alternative local market housing
that meets all three standards.14
12
CMHC. Canadian Housing Observer 2009 with a feature on Affordable Housing. Pg. 15.Available from www.cmhcschl.gc.ca/odpub/pdf/66663.pdf.
13 Canadian Housing Observer. 2009. Pg. 81.
14 Canadian Housing Observer. 2009. Pg. 81.
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Most households fall into core housing need because of their inability to meet the housing
affordability standard. Households in the lowest-income quintile15 are most likely to experience
core housing need. 16
6.1.1 National context17
The incidence of core housing need for urban households in Canada increased from 12.3% in
2007 to 13.5% (1.4 million urban households) in 2009, consistent with economic conditions
during this period. In 2009, the incidence of urban core housing need was highest for:

households in the lowest-income quintile (at 54.1%), and particularly for renter
households in this income quintile (at 60.5%);

lone-parent households (at 32.9%) and one-person senior female households (at 27.2%);

renter households (at 28.2%)
All households in core housing need have failed at least one of three housing standards cited
previously. In 2009, 91.2% of urban households in core housing need were in need because they
were unable to meet the housing affordability standard, either solely or in combination with the
other two standards.
The national vacancy rate declined to 2.5% in 2011 from 2.9% in 2010. Meanwhile, the rental
housing market saw rents rise 2.2% between October 2010 and October 2011, on average across
all Census Metropolitan Areas (CMAs). The average rent for a two-bedroom apartment in
Canada in this period was $883.
The average resale price of a home in Canada increased 7.1% in 2011 to $363,116.
6.1.2 Provincial context
The urban core housing need reported for NL in 2009 was 14.2%.Core housing need in NL over
the 2002-2009 period is provided in Table 6.1. 18
TABLE 6.1 CORE HOUSING NEED IN NL FROM 2002-2009
Percentage of households in core housing need - NL
Year
2002
2003
2004
2005
2006
2007
2008
%
16.4
15.6
15.7
17.6
18.1
14.7
16.7
2009
14.2
15
A quintile is a fifth part of a [statistical] distribution. (http://dictionary.reverso.net/english-definition/quintile).
Canadian Housing Observer 2011. Pg. 3. Available from www.cmhc-schl.gc.ca/odpub/pdf/67508.pdf?fr=1354630743812 .
17 Information on the national context was taken from CMHC’s Canadian Housing Observer (10 th Edition) 2012, which is
available from www.cmhc-schl.gc.ca/odpub/pdf/67708.pdf?fr=1356710965971 .
18 Canadian Housing Observer 2012. Pg 5.12.
16
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The average Multiple Listing Service (MLS®) residential resale price19 reported for NL from
2008-2012 is found in Table 6.2. Over the course of this time frame, the average residential
resale price increased by approximately 28%. After several years of substantial price growth, the
average MLS® house resale prices are expected to stabilize into 2013 with an average expected
price of $270,000 in 2013.20
TABLE 6.2 AVERAGE MLS RESIDENTIAL RESALE PRICE IN NL FROM 2008 - 2012
Average Residential Resale Price – NL
Year
2008
2009
2010
2011
2012
Resale price
$178,477
$206,374
$235,341
$251,581
$265,000
% change
-
15.6%
14%
6.9%
5.3%
According to the CMHC Fall Rental Market Survey conducted in October 2012, the overall
provincial vacancy rate increased to 2.2 per cent in October from 1.3 per cent a year ago. Further
this report also stated that overall the average two-bedroom rent in the province was $725 across
five urban centres surveyed (including Gander).21
6.1.3 Gander region
The following information was only garnered for the Town of Gander.
Gander posted a vacancy rate of 0.5% in the fall of 2012 compared to 1.2% last year,
representing the largest decline across the province. This area continued to be positively
impacted by its central location as a regional service hub, its large hospital and international
airport, as well as buoyant residential and commercial development. With no significant increase
in the supply of rental units, population and employment growth stimulated demand for rental
units resulting in a corresponding decline in the vacancy rate.22
Rental prices increased in Gander by 4.8%. Rent increases were the result of higher rental
demand from increased economic activity throughout the province, as well as general growth in
population, income and employment in the Gander area.23
Housing Market Outlook – CMHC, Fourth Quarter 2012. Pg 22. Available from www.cmhcschl.gc.ca/odpub/esub/61500/61500_2012_Q04.pdf?fr=1354632338984.
20
Housing Market Outlook.Pg.15.
21 Rental Market Report Newfoundland and Labrador Highlights. CMHC. Fall 2012. Pg 1. Available from http://www.cmhcschl.gc.ca/odpub/esub/64499/64499_2012_B02.pdf?fr=1358223133937.
22 Rental Market Report – NL. Fall 2102. Pg. 2.
23 Rental Market Report – NL. Fall 2102. Pg. 2.
19
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Core housing need has not been reported for Gander since 2001 at which time it was cited as
9.5%, as is shown in Table 6.3.
TABLE 6.3 CORE HOUSING NEED IN GANDER 200124
Location
Gander
Households not in
core housing need
Households in core
housing need
Owners
Renters
Owners
Renters
2,775
1,030
110
290
% of total
households
not in core
housing need
% of total
households in
core housing
need
90.5%
9.5%
7.0 PERSPECTIVES ON AFFORDABLE HOUSING IN THE
GANDER REGION
7.1
Definition of “affordable” housing
Informants had a similar perspective on a definition of “affordable” housing, stating it is that
which fits one’s budget and/or fixed incomes, and which leaves sufficient funds for food and
other necessities, as well as for meeting the rising costs of heat and light. It also was noted that
what is affordable to one is not necessarily affordable to another, and that affordable housing to
vulnerable populations is what they can afford to pay for. Further, housing which is affordable
can quickly become unaffordable when landlords raise or even double their rents. As commented
by one informant,
Even the cheapest apartments use most of the money that low-income
individuals/families have, forcing them to rely on other community services to make
ends meet.
7.2
What does “affordable” housing mean in the Gander region?
Participants felt that in the Gander area, “affordable housing” ranges from $600-$700/month
(with the latter being most predominant) for a one-bedroom apartment in a private dwelling, and
this might include heat and light; with a two bedroom being $900-$1000/month. Most noted that
rental rates have increased dramatically, in particular as the vacancy rate has dropped and it has
become a “landlords' market”. It was noted by some however, that rental rates are lower in the
more rural areas of the region and also likely more in line with existing Income Support rates for
shelter - e.g. approximately $425-$525/month.
24
CMHC. Housing in Canada Online (HICO). Available from www.cmhc.ca/en/corp/about/cahoob/cahoob_002.cfm.
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7.3
The need for affordable housing in the Gander region
There was general agreement from all informants that lack of affordable housing is a significant
issue in the Gander region for individuals and families on low income due to the low vacancy
rates and high cost of rental housing in this region. Even though it is recognised that Gander has
more housing than other smaller more rural communities, informants felt that there is still little
available or affordable. Some suggested this could lead to even more “slum” accommodations.
A few informants also highlighted that people wishing to stay in their own smaller and more
rural communities are often constrained to do so because their housing options are even more
limited. When they do have to move to a larger centre such as Gander, due to for example,
employment or family reasons, they face a tight housing market, high rents and high land costs
for development. It was noted that this results in some having to commute from their rural
community to Gander for employment, rather than making Gander their home.
There were some populations from Gander whose specific affordable housing needs were more
readily informed through access to available data. These are profiled below.
7.3.1 Male youth
Data obtained from Choices (see Table 7.1) shows that from the January 2011-September 2012,
13 young males, ranging in age from 17-24, from the Gander region were admitted to Choices.
This is an increase from past years which saw a smaller number of young males referred to
Choices. In total, they had 26 admissions, with at least one individual having four admissions
during that period.
TABLE 7.1 ADMISSIONS TO CHOICES FROM THE GANDER REGION 2011-2012
Regional Breakdown:
Lewisporte
8 admissions
(4 different individuals)
Gander
11 admissions
(6 different individuals)
Horwood
4 admissions
(1 individual)
Campbellton
1 admission
(1 individual)
Hare Bay
2 admissions
(1 individual)
7.3.2 Female youth
Naomi Centre in St. John’s, which houses and supports young women ages 16-30, received some
requests for admissions from young women in the Gander region over the 2010-2012 period, as
can be seen in Table 7.2.
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TABLE 7.2 REQUESTS FOR ADMISSION TO NAOMI CENTRE
Year
Request for admission from young women in the Gander region
April 1, 2010Three admissions – young women who needed shelter.
March 31, 2011
Two other requests for shelter could not be accommodated due to the women
either not fitting their age mandate or because the Centre was full.
April 1, 2011 –
One admission – a young woman who needed shelter.
March 31, 2012
Three other requests for shelter could not be accommodated due to the women
either not fitting their age mandate or because the Centre was full
April 1, 2012 –
Two admissions – young women who needed shelter.
October 31, 2012
Four requests from young women were not accommodated due to the Centre
being full.
7.3.3 Women
Information received from the Status of Women Central/Women’s Centre indicates that from
April 1, 2011 to March 31, 2012 they had 44 women (approximately 14% of all those contacting
the Centre during that time) inquire about housing. The main issues cited included high rental
costs and difficulty finding an affordable place to live. During the April 1 to October 31st 2012
period, they had 19 women (which also represented about 14% of all those contacting the centre
during this period) inquire about housing. It is anticipated that the number of women presenting
with housing issues would likely be on par with the previous year’s total.
Marguerite’s Place in St. John’s has had two referrals of women from the Gander region seeking
supportive housing. However both were reported to have been very unwell and so Marguerite’s
place was not considered suitable for either individual.
Cara House is seeing increasing numbers of women presenting as homeless - with a root cause
often being violence in their relationships/home/backgrounds. Cara House has had to extend the
shelter stay of increasing numbers of clients due to the fact there is nowhere for them to
transition.
As can be seen from Table 7.3, of the number supported by Cara House from 2009-2012, more
than 80 women each year have identified homelessness or housing concerns. Additionally,
during this time period, between nine and 12 women have encountered difficulty finding housing
after their shelter stay. Further, at least nine women in the 2011-2012 year could not be
accommodated at the shelter when they presented as homeless because they did not fit the
shelter’s mandate.
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Further, Cara House reported that their six units of second stage housing are always at capacity.
Of those who were accommodated in Cara House over the 2011-2012 period, 18 accessed their
second stage housing due to housing and homelessness concerns. A small number of this
population continued to experience difficulty finding housing as they neared the end of the time
they could stay in the second stage housing.
TABLE 7.3 INDIVIDUALS SUPPORTED BY CARA HOUSE
Number Admitted
Number on wait list
Number supported (crisis calls, ex-resident contacts etc.)
Number homeless or with housing concerns
Number experiencing difficulty finding housing at end of stay
Unable to accommodate – gender
Unable to accommodate - homeless
Unable to accommodate – other (did not fit mandate)
Number supported
Number homeless or with housing concerns
Number experiencing difficulty finding housing at end of stay
Unable to accommodate - gender
Unable to accommodate - homeless
Unable to accommodate – other (did not fit mandate)
2011201020092012
2011
2010
Emergency Shelter
92
124
87
0
5
0
4358
5411
4328
92
124
87
9
12
9
2
8
3
9
7
3
18
17
14
Second Stage Housing
18
21
17
18
21
17
3
3
0
2
0
0
0
0
0
3
2
0
The Cara House informant noted that if they had more funding for staff to support their second
stage units, they would be interested to own and operate more of this type of housing to meet the
growing need. If they were to acquire additional units, they also expressed an interest in
expanding their second stage programming to support other populations such as, for example,
young single parents and others who might require low barrier supportive living.
Data obtained from other THANL shelters on the island of Newfoundland for the 2010-2012
period25 indicates there is some movement of women and their children who are experiencing
violence from the Gander region to shelters in other regions, as presented in Table 7.4. Of note,
the numbers only reflect the women and children who actually were admitted and do not, for
example, cover any crisis calls which might have been received from women in the Gander
region.
25
Note that some shelters provided data for the 2008 – 2010 period calendar year; some for the fiscal year.
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TABLE 7.4 THANL REFERRAL DATA 2010-OCTOBER 2012
Shelter
Location
Number of referrals from the Gander Region
Grace Sparkes
Marystown
No referrals reported from the Gander region
House
Iris Kirby House
St. John’s
Three women were referred from the Gander region
Transition House
Corner Brook
Two women were referred from the Gander region
NL Housing will place women who have experienced violence on their priority list for housing.
As of the first week of January 2012 there were 8 people coded under Victim of Family Violence
on the waitlist for the Gander area. While these applications are prioritized, it was reported that
there is a steady demand of requests from the population in question.
7.4
Affordable housing options in the Gander region
7.4.1
NL Housing
Most informants identified NL Housing as the main affordable housing option in the Gander
region. A few informants also referenced some seniors’ apartment buildings in the region and
housing provided by the Evangel Pentecostal Church, as well as the second stage units offered
through Cara House. Other “affordable” private housing rentals in the area were described as
generally substandard and owned by “slumlords.”
Data provided by NL Housing and presented in Table 7.5, shows that there are currently 248
affordable housing units in Gander, with the preponderance being non-profit and rent
supplement. Other communities in the region for which this data was provided have many fewer
units available. A complete list of the number and type of units in communities in the Gander
region (as defined by NL Housing) is found in Appendix “G”. Please note that NL Housing
defines the Gander region differently from the region serviced by the Gander CAB.
TABLE 7.5 TOTAL NUMBER OF NL HOUSING UNITS BY SELECTED COMMUNITY IN THE GANDER
REGION
COMMUNITY
Gander
Glovertown
Gambo
Fogo
Eastport
NLH
Total
Units
126
6
8
1
2
RSa
88
-
AHI
Community Co- Total Community
Approved
Basedb
op
Centresc
units
15
19
248
10
10
26
8
16
16
17
15
-
Neighbourhood
Centresc
2
-
1
-
Key:
a. RS: Rent supplement – NL Housing pays a landlord an amount on behalf of a tenant based on calculations on their income.
b. Community based – These are affordable housing units owned and operated by community organizations.
c. These organizations have access to an NL Housing unit to run their community/neighbourhood programs.
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Assoc. c
42
As of January 2013, there are two NL Housing units and two Rent Supplement program units
vacant in the region. As well, six NL Housing units are not available because they require major
renovations.
7.4.2 NL Housing Waitlists
As of early January 2013 there are 56 current applications for NL Housing in the Gander region.
The majority of these applications (27) are for units in Gander. The remaining communities in
the Gander region have one to two applications on their waiting lists.
Despite the availability of NL Housing units in the region, it was felt that due to the finite supply
of this housing, as well as little mobility out of existing and occupied units, people do not always
have timely access to what they need. Further, some also noted this housing stock is older, with
many large units in keeping with past practice of having larger families, and so is not appropriate
for the growing number of singles and smaller families in need of affordable housing in the
region.
7.4.3 AHI units in the Gander region (as defined by the Gander CAB)
To date (since 2004) 26 under AHI, there have been three projects completed for seniors in the
Gander region, which have added a total of 37 units including six accessible units (see Table
7.6). Approval is pending for another seniors project in Glovertown which will add a further six
units (two of which are to be accessible).
TABLE 7.6 AHI PROJECTS IN THE GANDER REGION
No. of
Units
12
15
10
6
43
No. of
Accessible
Units
2
2
2
2
8
Target
Population
Seniors
Seniors
Seniors
Seniors & Accessible
Community
Eastport
Gander
Glovertown
Glovertown
Region
Gander
Gander
Gander
Gander
Final
Approval
Date
September 27, 2005
June 21, 2010
June 29, 2010
Approval pending*
Completed
November 1, 2006
September 8, 2010
June 22, 2011
Informants had identified the focus on developing seniors’ apartments stating that while it is to
some extent meeting the needs of aging baby boomers and an aging demographic, it is not
meeting the broader need. As one participant described it, this population is seen to be a “safe”
tenant group; developers have a “business plan” not a social plan.
26
Please note that this status was accurate at the time of writing of this report.
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The rents charged in these AHI units, based on whether they are non-profit or private sector
housing, are shown in Table 7.7 as follows:
TABLE 7.7 AHI RENTS FOR PRIVATE AND NON-PROFIT SECTOR HOUSING
Current Rents for Private Sector Affordable Housing for Gander Region
Bachelor
1 Bedroom
2 Bedroom
3 Bedroom
$450.00
$500.00
$575.00
$600.00
Current Rents for Non Profit Sector Supportive Housing for Gander Region
Bachelor
1 Bedroom
2 Bedroom
3 Bedroom
$380.00
$425.00
$490.00
$510.00
7.5
What is needed for the Gander region?
Most informants highlighted the need for a range of additional affordable housing options
dispersed throughout the Gander region, including some within existing apartment buildings.
Other specific initiatives to be explored included the possibility of the Evangel Pentecostal
Church expanding its housing stock; CARA House expanding its second-stage housing, as
described above; and CYN perhaps expanding their mandate to become the proponent for
supportive housing for young people.
A small number of informants suggested there should be legislation mandating that a percentage
of units in housing developments be affordable. One of these informants also suggested there
should be more inspections of rental properties to ensure they are up to standard. However, they
cautioned that care would have to be exercised in such a service enhancement because if some
rental properties were closed following inspection, tenants may have nowhere to go.
Perspectives of those who are at risk of/have experienced homelessness
In general, all of the individuals who were at risk of/had experienced homelessness identified a
need for access to affordable housing in the region for those on low or limited/fixed income.
As previously referenced, two of the informants who are currently living in NL Housing reported
long wait times for a unit during which they had to live with family and/or in inadequate housing
(e.g. substandard rental). One of these informants stated they had moved numerous times seeking
housing that was not only affordable but appropriate and in good condition.
Of the four remaining informants, one is living with family and the remaining are in private
rental accommodations. The informant who is employed identified that the vacancy rate is low
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and the rent high in the community where he works, and so he commutes to work so he can
access more affordable accommodations in another community. He said he would like to have
affordable housing in the community where he works so as to be closer to his place of
employment.
As stated by one of the informants who also felt there should be an increase in the Income
Support rates – to support people’s efforts to find housing.
There are people crying out for help every day and they are not getting any help.
There is a need for a few more resources in Gander.
8.0 COLLABORATIVE EFFORTS TO ADDRESS HOUSING
AND HOMELESSNESS IN THE GANDER REGION
There appeared to be general agreement between and among informants that when the
community decides there is an issue, there is collaboration. Some spoke to how essential
collaboration is to offset the growing fatigue experienced by community groups as they are asked
to do more with less. Informants cited volunteer burn out, with groups having little energy to
address the myriad of pressing policy, funding and leadership issues. They said that people need
validation, acknowledgement, and support. As described by one informant,
People are tired and are always asked to do more and more and more. Those who
have been doing this for a while don`t have the energy anymore, and no one else is
stepping up to the plate.
It was identified that there needs to be even greater collaboration between and among all levels
of government and the CAB to increase understanding of what each is seeing in terms of
priorities for homelessness and housing instability, what each is doing in terms of programs and
services to address these priorities, and where any gaps might be in supporting individuals and
families experiencing these concerns. Such transparency and consistency of discussion will lead
to collaborative efforts which maximize the resources of all stakeholders. As described by one
informant:
“There have been positive things happening and there is a need to figure out how to
build on them.”
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As described by another informant, in the absence of such collaboration,
“Policies don`t always complement one another; the interconnectedness of lives and
circumstances are not taken into consideration when developing policies, programs
and services. Sometimes we see solutions but don`t get to the root of the problem and
so, use band-aid approaches in an attempt to address it.”
A critical element for strengthened collaboration is political will. This perspective was
highlighted by one of the municipal informants who stated that the Town with its limited funds
cannot have much of an impact in relation to affordable housing, unless there is cooperation with
the other levels of government.
Those who could comment on the extent of duplication of services generally said there appears
to be a need for all the current services, even when more than one organization/agency is
offering a similar type of service. These services provide a range of options and opportunities for
those needing same. However some suggested that when there are organizations offering the
same or similar services (e.g. food banks) it would be important that there be collaboration to
ensure the most effective return on investment for all of the providers as well as the client group
accessing these services.
Broadening partnerships
In terms of broadening partnerships, overall it was felt that the opportunities are endless for
creation of effective partnerships between and among the Gander CAB, community and
government providers, as well as the private sector, to address housing instability and
homelessness in the region. It was felt that the potential for positive impacts is great. It was
reported, for example, that the RCMP and military are constantly looking for opportunities to
show they are part of the community and suggested they be provided with more opportunity to
support addressing housing instability and homelessness in the region.
As commented by informants,
“Even small contributions, when made by many, can create positive change.”
“There can always be better partnerships – we are way stronger if we are working
together.”
It was thought that new partnerships could result in additional affordable housing initiatives,
increased donations to community groups working with/for those who are at risk of/experiencing
homelessness, and, more generally, increased awareness of the issues these populations face. As
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referenced by a few informants – the Gander CAB has to remain strong and focused, with stable
membership, to be the foundation of and for such successful partnerships.
At the CAB level, then, there is a need to review membership to ensure critical community and
government representatives have been considered and invited. Broadening the membership on
the CAB should lead to increased information on the status of housing instability and
homelessness in the region, better identification of emerging issues, and opportunities to
collaborate to address these issues.
Further, there needs to be more emphasis on the importance of the CAB’s work and the potential
benefits of more involvement from community and government partners in its efforts. It should
be acknowledged that addressing issues requires significant effort, but the key message when
engaging partners is that through collaboration the outcome will be better services for those at
risk and less housing instability and homelessness. As stated by one informant,
“People are afraid to get engaged as they think it is more work for them. People are
afraid of the investment up front because resources are scarce and people are
overworked… A lot of work goes [into it] but it results in a way better service – it’s
worth all the work to get there.”
9.0 MUNICIPAL ENGAGEMENT
GGI’s experience working with CABs in the province has identified that municipal engagement
is a critical element in raising the profile of housing instability/homelessness in a region, as well
as in addressing related issues.
Most informants for the Gander region felt there was little municipal involvement throughout the
region, although a few stated there were some individual municipal politicians who were active
and vocal. Some felt that municipalities are not well informed on the issues and not as involved
in the Gander CAB’s activities as they should be. Informants also said that if municipalities
allow homelessness to flourish, communities will have many problems.
One of the municipal informants identified the municipality’s role in addressing housing
instability and homelessness issues as largely through advocacy - talking about the issues and
connecting groups as required. The other informant more specifically referenced that the
municipality must focus on addressing the housing issues of those on low income through, for
example, ensuring tenders for housing include a focus on this population’s needs. Both
municipal informants felt that educating municipalities about housing instability and
homelessness is a role for the Gander CAB.
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Most informants were unsure about whether or not there were any particular areas within
municipalities’ regulatory regimes which are impediments to addressing homelessness or
housing. It was stated that municipalities should assess their policies and regulations to
determine where barriers and impediments exist and make necessary amendments.
10.0
PROFILE OF HOMELESSNESS
Informants highlighted a number of key messages they felt should be conveyed to raise
awareness of homelessness in the region, including:

Homelessness does not have to be absolute – it does not necessarily mean that people are
living on the street.

This region has a housing and homelessness issue which impacts individuals and families
across the life span. This issue is more prevalent than people realize.

There is a need to put a real and local face on housing instability and homelessness. The
key message is that homelessness is on our doorstep and not just in bigger centres like St.
John’s or Halifax. There is a need to profile and tell the stories of local experiences and
realities of homelessness – the struggles people face in attaining and/or maintaining safe
affordable housing and how that impacts their everyday lives and that of their families.
Without a stable and solid foundation (housing), individuals are challenged to pursue
their goals - to finish their education, find and maintain a job, and support their family.

There is a need to dispel myths about affordable housing, e.g. a $200,000 house is not
“affordable”.

Access to safe, affordable and supportive housing is needed but limited. There are many
substandard accommodations in the region and this contributes to ill health and instability
on behalf of those renting, and contributes to broader community health issues. We have
to stop shipping our homeless people to St. John’s.

Access to safe, affordable housing is fundamental to the well-being of individuals,
families and communities. As a community we have a responsibility to ensure this
access. Without this fundamental access, communities are not healthy. The message must
focus on community development/building.

Gander has a CAB focused on housing and homelessness. There are solutions to the
issues.
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At the planning day, participants identified the following as the most important next step for the
Gander CAB in relation to moving forward with its efforts to address housing instability and
homelessness. These responses highlight the need for enhanced communication and awareness
raising efforts:

Ensure the CAB has a focus on public awareness and disseminating key messages on
homelessness and housing instability. In particular, there is a need to inform municipal
and provincial politicians about these issues.

Increase communication with people outside of Gander. Ensure they are consulted and
their concerns/ideas are evident in the work of the CAB.

Complete and distribute the CAB’s community plan. Ensure there is relevant data
included in the plan.
As previously stated (see section 1.0) a component of this research project was the development
of a communications strategy which is provided in a separate document.
11.0
STRATEGIC DIRECTIONS
It is clear there are many and varied factors contributing to housing instability and homelessness
in the Gander region. These include individuals living with mental health and
addictions/complex needs (in particular young men <30) who have limited/no capacity to find
and maintain housing and employment; individuals living in poverty; high rental costs with low
vacancy rates; a lack of family and community supports; and a lack of affordable housing.
The research done to inform the Gander CAB’s Community Action Plan identified that of the
three priorities emanating from the initial planning day, the one on which there is general
agreement is individuals with complex needs, in particular male youth <30. While some issues
were raised in relation to single parents and seniors, there was less information available or
forthcoming on these populations. It is suggested that, as the CAB moves forward in its efforts, it
should endeavour to identify opportunities for engaging these populations and their relevant
service providers in discussions designed to better understand their pressing issues and priorities.
A second emerging priority for the Gander region is the need to address the
emergency/transitional housing needs of a range of populations who for many reasons find
themselves homeless at any given time.
A third priority is addressing the need for a range of affordable housing options throughout the
Gander region, for a number of vulnerable populations.
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Other areas of note which deserve attention as the Gander CAB moves forward include: an
enhanced focus on data collection and raising the profile of homelessness in the region.
Based on the foregoing, the following strategic directions are presented for the Gander CAB’s
consideration.
11.1 Supporting individuals with complex needs in particular young
males <30.
During the research phase of this project, many key informants, including those experiencing
homelessness, expressed concerns about gaps in needed supports, services and housing for
individuals with complex needs, in particular young males <30. The evidence identifies a need to
better understand the continuum of supports, services and housing available to individuals with
complex needs in the Gander region and gaps therein, so as to identify partnership opportunities
for more effectively supporting this population.
As previously stated (see section 4.0) a regional forum will be held on completion of this draft
Community Action Plan to present the plan, seek additional perspectives on housing instability
and homelessness in the region, and further identify related assets and gaps. It is suggested that
the Gander CAB use this venue to begin discussions with its partners/stakeholders on what is
needed to more effectively and collaboratively support individuals with complex needs – in
particular male youth <30. Discussions could include further iteration of the issues they face; a
more complete identification of the assets in the region to support this population as well as gaps,
and opportunities for enhanced community and government collaboration to more effectively
support this population to access and maintain safe, affordable housing options and more
generally attain a level of stability in their lives.
It is anticipated that this forum will include the Gander CAB and those consulted for the research
as well as a range of other community-based and government stakeholders/partners whose
mandate currently or could include addressing housing instability and homelessness. To that end
invitees should include, for example, representatives of Central Health (e.g. mental health and
addictions); Child Youth and Family Services; Cara House; AES; CYN; Department of
Justice/Corrections; faith groups; Family Resource Centres; Community Centres; and the Gander
New-Wes-Valley Regional Partnership Planner. It is further recommended that
organizations/groups currently involved in supporting individuals with complex needs be
consulted in relation to supporting these target populations to participate in this forum in a
meaningful way.
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11.2 Emergency/Transitional housing
The research identifies the need for emergency/transitional housing options in the Gander region
for a range of populations, in particular individuals with complex needs. While all recognize the
importance of responding to individuals’ and families’ need for appropriate and affordable
housing, sometimes there is a need to provide temporary emergency/transitional housing while
longer-term options are enabled. Further, the research identifies the need to ensure a continuum
of responsive wrap-around supports and services are available to address the unique needs of
these populations and facilitate their move, in a timely manner, to appropriate, permanent and, as
required, supportive housing.
Given that Gander is a focal point in the region, there should be emergency/transitional housing
options in this municipality and as possible, strategically and geographically dispersed
throughout the region to ensure ease of access and availability for those living in more rural
areas.
It is suggested that the Gander CAB, in collaboration with its partners/stakeholders, undertake a
process similar to that used by CHHN in its initial efforts to address the need for
emergency/transitional housing in its region. CHHN has negotiated with a local landlord to
provide an apartment for use as an “Emergency Shelter Unit.” Coordinated through the
Network’s HSW, the charge for the unit is $100/night with $70 going to the landlord and $30 to
CHHN for basic supplies. If the client is eligible under the Income Support program then AES
will pay the $100.00 per diem. The Network is set up as the vendor. This initiative has and
continues to be supported by numerous partnerships.
Information provided by CHHN identifies that the HSW for this region oversees the operation of
the “Emergency Shelter Unit.” All clients complete an intake and discharge form prior to
admission to the Unit. Individuals are assessed to confirm their capacity to stay in the Unit
independently and their eligibility for funding to cover the cost associated with their stay.
Individuals requiring supports also can avail of this service, if the supports required are provided
by the appropriate program/agency.
While staying in the Emergency Shelter Unit, individuals work with the HSW to secure suitable,
permanent housing. The length of stay in the Unit is generally between five to seven days. Data
provided at the time of writing this report identifies that the Unit was occupied for 80 nights
between February and October 2012. This included at least one individual from Gander who
accessed the unit on being released from hospital in Gander, as they had no other options
available for shelter in their own community.
It will be imperative that the Gander CAB hold discussions with CHHN to identify the processes
they used to develop this emergency service and lessons learned in the process. In addition, it is
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suggested the Gander CAB and its partners/stakeholders approach NLHC to see if they have one
or more units in the Gander region which could be used for this purpose. If a unit were to be
available in a more rural community of the region, the Gander CAB would have to identify a
community provider who could oversee the unit (e.g., upkeep of basic supplies, holding the key
to the unit), although the overall coordination could still be done by the Gander region’s HSW.
As the Gander CAB facilitates this initiative, it will need to identify/develop/strengthen strategic
partnerships with community-based and government service providers with a proven expertise in
supporting individuals and families who find themselves in crisis situations necessitating access
to emergency housing. This will enable informed decision making on the design and
implementation of a responsive emergency/transitional model for housing and wrap around
supports and services founded on effective practices.
Partners and appropriate supports also will be critical for facilitating these populations’ timely
transition to more stable and appropriate accommodations and, as required, providing on going
wrap-around supports and services. The ultimate goal must be moving individuals and families
to a place of stability and on the path to self-sufficiency.
11.3 Affordable housing
As identified in section 6.2, 14.2% of Newfoundland and Labrador households are in core
housing need. Data available from other regions in the province (as of 2006), shown in Table
11.1, highlights that the affordable housing crisis facing some individuals and families in the
Gander region is not unique to this region. This is an overarching and pervasive issue for urban
and rural communities across the province.
TABLE 11.1 REGIONAL CORE HOUSING NEED IN NL 200627
Owners
Renters
Owners
Renters
% of total
households not
in core housing
need
138,655
25,805
13,690
13,615
85.8%
14.2%
Gander28
2,775
1,030
110
290
90.5%
9.5%
Grand Falls –
Windsor
3,560
990
270
345
88.1%
11.9%
Location
Newfoundland and
Labrador
Corner Brook
27
28
Households not in core
housing need
7,210
1,760
Households in core
housing need
435
910
87.0%
% of total
households in
core housing
need
13.0%
CMHC. Housing in Canada Online (HICO).
As noted previously, the 2006 data was not available from CHMC. This reflects core housing need in 2001.
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Addressing the many affordable housing concerns identified for a number of populations in the
Gander region who face financial, health/disability and/or other related challenges has to be
comprehensive in scope and nature. There is no one strategic direction or solution which will
meet the diverse needs and circumstances of those in core housing need. However, the Gander
CAB has many opportunities to facilitate partnerships and encourage policies, programs and
initiatives which could result in an increased affordable housing stock in the region.
In CMHC’s Canadian Housing Observer 2009 –with a feature on affordable housing many such
opportunities are delineated. The Gander CAB should review this document to identify
opportunities for working with its partners/stakeholders to influence the private and non-profit
sectors, as well as governments at all levels, in their efforts to create affordable housing in this
region. Examples include:

Private sector – identifying opportunities for renovating and converting existing
buildings, for infill development, and using creative designs to achieve cost efficiencies.

Municipal governments – determining if there is available land which could be donated
for affordable housing; taking concrete steps to create a “welcoming” environment for
affordable housing development through for example, adopting affordable housing
policies, changing zoning and allowing variances, allowing density bonusing29,
accelerating approval processes and reducing or waiving municipal fees.

Federal/provincial governments – the Gander CAB, together with its
partners/stakeholders, should engage in discussions with NL Housing to identify
strategies for encouraging developers to develop affordable housing projects in the region
for a range of populations under AHI, in addition to seniors who have been a focus of
projects to date. Further, it will be important to discuss this need for a broader affordable
housing focus with local municipalities, to facilitate their support for this direction and to
encourage their participation in discussions with NL Housing.
The following CMHC website - www.cmhc-schl.gc.ca/en/inpr/afhoce/afhoce_005.cfm - provides
information on initiatives in which community partners are working together to implement
affordable housing solutions across Canada. Links bring the viewer to the following pages:




Private sector expertise creates affordable housing
Municipal approaches to increasing the supply of affordable housing
Faith groups joining forces to create affordable housing
Affordable housing: more than a roof over your head
29
Density bonusing is a tool used by municipalities to allow developers to build at a higher level of density (i.e. greater floor area
or number of units per hectare) in exchange for the provision of affordable housing units in the development.
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This same website has links to “Affordable Housing in Action” which provides overviews of
over 200 successful affordable housing initiatives in a project profile database. As described on
this link, “Discover affordable housing solutions that have worked in communities across
Canada. Find out how groups such as non-profit housing and community groups, the private
sector and municipalities have used these solutions to create affordable housing.”
There are several search criteria which allow the viewer to identify projects based on, for
example, province/territory; client/resident type; developer type (e.g. private sector, non-profit,
Aboriginal groups); tenure type (e.g. rental;, home ownership, shelter); and the Federal funding
program accessed (e.g. AHI, Homelessness Partnering Strategy -HPS).
As well, the Gander CAB, in collaboration with its partners/stakeholders, should focus on raising
awareness in their region about the array of government programs designed to contribute to
housing stability. This includes, for example, the following federal/provincial government
programs: AHI, Residential Rehabilitation Assistance Program (RRAP), Provincial Home Repair
Program, Home Modification Program and Shelter Enhancement Program; CMHC’s Seed
Funding; and the provincial government’s Supportive Living Program and Provincial
Homelessness Fund (PHF).
The Gander CAB also should support NLHHN’s September 2010 policy recommendations to the
provincial government. These recommendations are designed to encourage the development of a
comprehensive housing and homelessness framework that envisions government, community
and private sector partners working together to implement a series of policies designed to end
homelessness and ensure housing stability for all.30 Of note, one of the policy recommendations
is focused on increasing access to stable, quality affordable housing. All aspects of this
recommendation would support the efforts of the Gander CAB to increase the affordable housing
stock in the Gander region.
This recommendation includes:

30
Strengthen the Residential Tenancies Act (RTA 2000) by incorporating mechanisms for
annual rent increases, above-guideline requests, rent freezes & remedies for properties
with outstanding deficiencies, and mediation of disputes. Ensure that the Act covers the
rental market more comprehensively, and that the Residential Tenancies Division has
sufficient capacity to carry out its expanded responsibilities. Of note, the Network
coordinated and facilitated a discussion on the RTA in response to hearings held on the
Act in the fall of 2012. They subsequently made a written submission to the RTA which
included policy recommendations on the areas detailed above.
Bruce Pearce. Draft NLHHN Policy – NL Housing & Homelessness Framework. Pg.2.
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
Renew and expand the Residential Energy Efficiency Program (REEP) to include the
private and non-profit rental housing market currently excluded from participation.

Increase and index Income Support shelter allowances - and expand and index rent
supplements - to help bridge the actual private rental housing affordability gap for lowincome individuals and families.

Double the Provincial Homelessness Fund to $2 million, beginning in 2011. Amend PHF
guidelines to permit the use of funds for building purchases.31
11.4 Data collection
There is a need for the various stakeholders (community and government) working in/supporting
the housing and homelessness sector to have consistent and reliable mechanisms for collecting
and reporting on quality data, which is deemed critical for informed decision-making. To that
end the Gander CAB should support the NLHHN’s policy recommendations to government
designed to “retool the homeless response system.” Specific to the data collection process this
includes:

Develop a user-friendly knowledge framework for assuring quality evidence for quality
decision-making across the full spectrum of housing and homelessness issues, in
collaboration with the NLHHN and allied community organizations, NLSA , HPS,
CMHC, AES, Health and Community Services, Regional Health Authorities, Justice and
other stakeholders.

Utilize HIFIS (Homeless Individuals & Families Information System) as a tool for
developing knowledge and informing action in the homelessness sector, and explore
Developmental Evaluation as the baseline tool for assessing social innovation initiatives
in the supportive housing sector.

The knowledge framework must also address key information gaps (the lack of rental
market information in small/rural communities, and for residences with less than three
units). Develop the Housing Affordability Indicator promised in the Poverty Reduction
Strategy Progress Report (2010).32
Should an HSW be allocated to the Gander region as anticipated, this resource also will inform
the extent and scope of homelessness in the Gander region, through the position’s focus on data
collection and reporting.
31
32
Draft NLHHN Policy. Pg. 10.
Draft NLHHN Policy. Pg. 15.
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In addition, it is respectfully suggested that at their regular meetings, Gander CAB members
have an ongoing focus on sharing data which they/their organizations collect in relation to
housing instability and homelessness. This will allow for development of a more accurate picture
of the depth of the housing instability and homelessness issues in the region and further inform
the Gander CAB’s efforts to address these issues.
11.5 Raise awareness of housing and homelessness
As previously discussed, there is a need to raise the profile of homelessness in the region – in
particular what homelessness is, what it “looks like” and how it can be addressed. Of note, the
Gander CAB has undertaken activities, such as the annual pancake breakfast, designed to inform
on homelessness. The communications strategy being developed as part of this project will build
on the CAB’s efforts to date.
12.0
CONCLUSION
The Gander CAB is comprised of a group of caring individuals who understand the realities of
housing instability and homelessness and the devastating impacts on the individuals and families
affected, as well as on the communities where they live. They bring a wealth of background and
knowledge, expertise and opportunities fundamental to addressing the issues facing the priority
populations and areas outlined herein.
When the informants in this region who were at-risk of/had experienced homelessness were
asked about hopes for their future, their dreams were the same as those we all hold. They wanted
to be happy, settled, be financially stable and successful in their endeavours. Through animation
of the strategic directions outlined in section 11.0, the Gander CAB together with its
partners/stakeholders will support citizens in the Gander region who are at risk of/experiencing
homelessness, to address the barriers and challenges which impede their ability and capacity to
move forward on a path towards housing stability. Through these efforts, the CAB will positively
impact the region’s individuals, families and communities and support the realization of
individual and collective hopes for the future.
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APPENDIX “A” – Gander CAB Pre-Planning Session
Agenda
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Gander and Area Community Advisory Board
Planning Day
8:45-3:30
Tuesday, October 16, 2012
Salvation Army – Family and Community Services
Airport Boulevard
Gander
Agenda
8:45-9:00
Coffee
9:00-9:30
Welcome and Introductions


9:30-9:45
Introduction of the Facilitator
Overview of agenda and intent of day
Overview of the Approach to the Project
This session will provide participants with a brief overview of the methodology/approach to
developing the Gander and Area CAB Action Plan and the planning template for emerging
CABs.
9:45-10:30
Extent of Homelessness and Housing Instability in the Region
This session will seek participants’ perspectives on the extent of homelessness and housing
instability identified to date in the region based on, for example, what they have seen/addressed
in their work, their volunteer efforts and/or research. It will include a discussion on the
availability and accessibility of affordable housing in the region.
10:30-10:45
Nutrition Break
10:45-12:00
Asset Mapping
This session will inform the range of resources, programs and services available in the region to
support individuals/families who are at risk of/experiencing housing instability and/or
homelessness. This would include a discussion on the service providers/services in the region
which could/should be engaged to support those are at risk of/experiencing homelessness. It also
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will include a discussion of the gaps in resources, programs and services to respond to housing
instability and homelessness issues in the region.
12:00-12:45
Lunch
12:45-1:15
Municipal Engagement
This discussion will focus on the degree to which the region’s municipal governments are
engaged in addressing housing and homelessness issues and approaches for strengthening this
engagement.
1:15-1:45
Raising the Regional Profile of Homelessness
This session will focus on effective mechanisms and media for raising the profile of
homelessness in the region – in particular, what homelessness is, what it “looks like” and how it
can be addressed.
2:00-3:15
Informing Next Steps in the Research Process
This session will seek participants’ perspective on


any challenges and related solutions to conducting the project/developing the action plan
key informants who could provide the most informed opinion on the extent and scope of
housing instability and homelessness in the region
 potential mini case study participants who have experienced/are at risk of homelessness
 data sources/documents which inform the prevalence of housing instability/homelessness
in the area as well as related assets and gaps
3:15-3:30
Next Steps/Wrap Up

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APPENDIX “B” – Key Informant Guides
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Gander and Area CAB – Developing a Community Plan
Key informant Guide – October 29, 12
Background
1. What is your role/responsibility in your division/agency/organization?
a. More specifically, what is your involvement in housing/homelessness?
b. Are you involved with the Gander and Area CAB?
i.
ii.
If so, how? (Prompt: current/past member; supporter- and if so, how?)
If not, are you aware of the CAB and what it does? (Prompt for what they know
about the CAB.)
Nature and extent of homelessness/priority areas
2. What is your perspective on the nature and extent of housing instability and homelessness
in the Gander region – i.e. who is at risk of and/or experiencing homelessness? (Probe for
priority populations.)
a. What factors contribute to these populations experiencing housing instability and/or
homelessness?
b. If not referenced, ask if they consider the following to be priority populations:
 Individuals with complex needs, in particular male youth <30.
 Single parents
 Seniors
For each of the three listed please ask:
i.
If so, why? (Probe for factors contributing to their situations.)
ii.
If not, why not?
Affordable housing in the region
3. What does “affordable” housing mean in this region? (Prompt for housing prices/rental
rates.)
a. What is the extent and level of need for affordable housing in the region? (Prompt for
who is most in need - remind them of the priority populations they identified in Q2and why? Existence of substandard accommodations/”slum” boarding homes.)
4. Is there discrimination against any specific populations in relation to securing
affordable/appropriate rental accommodations (e.g. those living on Income Support;
single parents; people with pets)? If so, who and why do you think this is happening?
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Assets to address housing instability and homelessness
5. Does your organization/agency support and/or provide services and resources to those
who are at risk of/experiencing homelessness?
a. If yes, what is provided and to which populations? (Prompt for support to the priority
populations identified; and which parts of the region they support/service.) What is
your specific role?
b. Are future enhancements to these efforts likely? If so, what? (Prompt for higher
service levels; expansion to other populations/parts of the region?)
6. Are there other resources, programs and services available in the region to support
individuals/families who are at risk of/experiencing housing instability and/or
homelessness?
a. If so, what? (Prompt for who provides these.)
7. Does your organization/agency provide affordable housing and/or support individuals
and families to access this housing?
a. If yes, what is provided and to which populations? (Prompt for support to the priority
populations identified; access for persons with disabilities; and which parts of the
region they support/service.) What is your specific role?
b. Are future enhancements to these efforts likely? If so, what? (Prompt for higher
service levels; expansion to other populations/parts of the region?)
8. What (other) affordable housing options are available in the region to those in need of
same (e.g. rentals, subsidized/non-profit units)?
a. Where is this housing (which communities)?
b. Who provides it and would you consider it to be affordable for the priority
populations? Do you know if it is accessible for persons with disabilities?
Gaps
9. In general, what are the gaps in resources, programs and services to respond to housing
instability and homelessness issues in the Gander region? (Prompt for specific gaps for
the priority populations identified.)
10. What is needed to fill these gaps? Who should take the lead in this regard?
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11. What is needed to address gaps in affordable housing in the region? (Prompt for
legislation for boarding homes; a range of housing types; partnerships.)
a. Who should take the lead in this regard?
Service providers not yet engaged
12. Are there service providers (govt/community) in this region who you think should be
more engaged in addressing housing instability and housing?
a. If so, who? What do you think they should they be doing and why? (Prompt for any
current efforts from these providers in relation to housing instability and
homelessness.)
Partnerships/collaboration
13. Do you think there is any duplication of effort from the various providers in the region in
addressing housing instability and homelessness?
a. If so, what? How can this be addressed?
14. Can you identify any existing or potential partnerships which could address the housing
and homelessness issues, and related needs of the priority populations, in the Gander
region? If yes, please explain (Prompt for what each partner could contribute to
solutions.)
15. Are there challenges to forming partnerships to address the priority issues and
populations? If so what and how, might these be addressed?
Awareness of the issues
16. In general do you think that housing instability and homelessness are recognized as areas
for concern in this region (e.g. by the general public; community/government providers)?
Please explain your answer.
17. What do you think the key messages should be in relation to housing instability and
homelessness issues in this region?
18. What do you think are the most effective mechanisms/venues for raising this awareness?
19. In addition to the CAB, which has a focus on awareness-raising, who else should be
involved in this awareness raising activity? Why?
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20. Do you have any other comments?
Note to interviewer: on completion of the interview, please ask if the informant has any
relevant data/statistics to further inform the nature and extent of the housing instability and
homelessness issues in the region.
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Town Council – Gander
Key informant guide
1. Are you aware of the Gander and Area Community Advisory Board? If yes, what do you
see as their main role/activity?
2. What does the Town identify as the priority housing and homelessness issues in Gander
(and area)? What evidence do you have of these priorities?
3. Do you consider housing and homelessness to be a significant or emerging issue for your
town? Why or why not?
4. What is the Town’s role in addressing housing and homelessness issues? (Prompt for
planning; development; and the social side – e.g. lobbying to government)
5. In your opinion, who is responsible for addressing housing and homelessness issues in
your Town? Please explain your answer
6. What does the Gander and Area CAB need to do to more effectively engage
municipalities in the region in discussing housing and homelessness issues? (Prompt –
hold a forum; present at regional meetings?)
7. Do you have any additional comments?
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APPENDIX “C” – Individual “mini” case study guide
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Gander and Area CAB – Developing a community plan
Key informant guide for persons who are homeless/who have experienced homelessness
Note: Informants will be provided an honorarium for participating in this interview.
1.
Tell us a little about yourself





Age/place of birth
Family status
Educational background
Employment history
Source of income
(If youth (at risk/complex needs) are identified as a priority, question #2 will be asked.)
2.
What is there for youth ages 16 - 29 to do in this region? (Prompt for
social/recreational/employment programs/services/activities in and out of school)
2.1 Did you participate in these programs/activities? If yes, in what? If not, why not?
3.
What housing challenges have you faced? (Where have you lived? Where do you live
now? Problems associated with where you are living?)
4.
Have you had other challenges in your life? If so, do you feel comfortable talking about
these? (E.g. violence, addictions, mental health issues)
5.
What if anything has helped you with your challenges and concerns? (Probe in particular
for help in relation to housing) Why were these helpful?
5.1 What has not been helpful and why not?
6.
What else would have helped you? (Probe for supports and services to meet a range of
needs – e.g. financial, family related, employment opportunities, personal development)
7.
In terms of housing what would really make your life better? (Prompt for type/location of
housing AND other needed supports to ensure stability of housing – e.g. help with
managing finances)
8.
What would you hope your life would be like a year or two from now?
9.
Do you have anything else you would like to say?
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APPENDIX “D” – Web Links for CMHC Publications and
Sites
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Canadian Housing Observer - with a feature on Affordable Housing, 2009
 Available from www.cmhc-schl.gc.ca/odpub/pdf/66663.pdf.
Canadian Housing Observer - with a feature on Housing Finance, 2011
 Available from www.cmhc-schl.gc.ca/odpub/pdf/67508.pdf?fr=1357777288582.
Canadian Housing Observer, 2012
 Available from www.cmhc-schl.gc.ca/odpub/pdf/67708.pdf?fr=1357761371687
Housing Market Outlook –Canada Edition, Fourth Quarter 2012.
 Available from www.cmhcschl.gc.ca/odpub/esub/61500/61500_2012_Q04.pdf?fr=1357763086702
Rental Market Report Newfoundland and Labrador Highlights, Fall 2012
 Available from www.cmhcschl.gc.ca/odpub/esub/64499/64499_2012_B02.pdf?fr=1357777711218
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APPENDIX “E” – Housing Support Worker: Job
Description
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Schedule A: for Housing Support Workers
A. Objectives
i. Assist individuals with complex service needs to find and remain in safe, affordable, and
stable housing;
ii. Support individuals with complex service needs achieve greater self-determination by
supporting the conditions, which promote housing stability.
B. Expected Activities:
i.







According to individualized need as identified through the Service Prioritization Decision
Assistance Tool, provide individuals who are homeless, or at risk of homelessness:
Drop-in and outreach contact
Facilitate and assist with obtaining emergency assistance;
Supported housing search;
Client advocacy
Assistance to obtain necessary goods and services for the establishment of sustainable
housing
Referral and coordination of health, social, educational and employment supports
Guidance and support for the reconnection and re-integration of individuals with complex
needs, with family, friends or community
a. Life skill guidance to promote self-sufficiency in activities of daily living;
i. Education and supports to landlords for eviction prevention;
ii. Data collection
C. Expected Outputs:
i.
ii.
iii.
iv.
v.
vi.
vii.
A housing vacancy list is created and updated regularly;
Where possible, emergency assistance is arranged;
Where possible, sustainable housing for individuals is secured;
Goods, supports and services are arranged or provided;
Life skill guidance sessions are provided
Supports and services are provided to landlords;
Data exports and reports.
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D. Short Term Outcomes:
i.
ii.
iii.
iv.
v.
Individuals receive increased and/or coordinated supports and services;
Individuals acquire life skills necessary to maintain housing stability;
Individuals have increased self-determination through participation in educational and
employment-related training and development opportunities;
Landlords are supported;
Landlords continue to house and accept referrals for new individuals with multiple and
complex needs.
E. Long Term Outcomes:
i.
ii.
Increased permanent housing stability for program participants;
Less homelessness for program participants.
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APPENDIX “F” - Affordable Housing Initiative
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Affordable Housing Initiative
Under the Affordable Housing Initiative (AHI), the federal government, through Canada
Mortgage and Housing Corporation, provides contributions to increase the supply of off- reserve
affordable housing, in partnership with provinces and territories.
In July 2011, federal, provincial and territorial ministers responsible for housing announced a
combined $1.4 billion investment under a new Affordable Housing Framework 2011 – 2014.
Federal funding under the Framework relates to the final three years of the federal government’s
five year commitment in 2008 of $1.9 billion for housing and homelessness.
As a result of the Framework, existing delivery arrangements for the AHI will continue in Prince
Edward Island, and Yukon Territory.
New agreements for investment in affordable housing have been announced in all of the
remaining jurisdictions.
Affordable Housing Initiative — Background
In November 2001, a multilateral housing framework was agreed to by federal, provincial and
territorial housing Ministers which established the broad parameters for bilateral Affordable
Housing Program Agreements. Agreements were signed with each province and territory.
Under the bilateral agreements, the provinces and territories cost-match the federal investment.
This funding may come from the province or territory and from other parties (e.g. municipalities,
private sector, donations etc.). These contributions can be a grant, a stream of ongoing subsidies
or the value of in-kind contributions (e.g. land). The share of the federal funding available in
each province or territory, as well as the overall terms and conditions that must be met is set out
in the bilateral agreements. Within these terms and conditions, each provincial or territorial
housing agency has designed its own housing program and is responsible for program delivery,
including the selection of housing projects that receive AHI funding.
The first of the AHI's two phases was announced in 2001 and provides $680 million in funding
for the creation of new rental housing, major renovation and conversion. Project proponents are
found within the non-profit sector, private or public sector (e.g. municipal non-profit housing
corporations). Homeownership is eligible in remote areas and in urban redevelopment areas,
subject to a maximum funding amount. The units produced under the AHI must rent at prices at
or below median market rents. Under phase one, the average amount of federal funding may not
exceed $25,000 per housing unit.
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The second phase of the AHI, announced in 2003, includes a federal commitment of
$320 million to provide additional funding for housing targeted to low-income households in
communities where there is a significant need for affordable housing. To be considered "low
income" a household must be qualified to be on a social housing waiting list. Provinces and
territories are encouraged to consider Aboriginal people, persons with disabilities and recent
immigrants as priorities. Under the second phase, the maximum federal funding is 50 per cent of
capital costs to a maximum of $75,000 per housing unit to reduce rents to levels affordable to
low -income households.
In 2004/05, new program flexibilities under the AHI were introduced in the areas of home
ownership programs, targeting of AHI-funded programs, cost-sharing arrangements and
provision of rent supplements.
In September 2008, the Government of Canada announced $1.9 billion, over five years, for
housing and homelessness programs for low-income Canadians. As part of this investment, the
AHI was extended for two years, until March 31, 201133
33
CMHC. Affordable Housing Initiative. Available from ww.cmhc-schl.gc.ca/en/inpr/afhoce/fias/fias_015.cfm.
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APPENDIX “G” – Affordable Housing Units in the Gander
Region
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AFFORDABLE HOUSING - NEED & DEMAND DATA
Arnold's Cove
9
20
29
Badger's Quay
3
12
15
Bloomfield
1
Bonavista
11
Bunyan's Cove
4
4
Canning's Cove
1
1
Carmanville
2
2
Catalina
6
6
Centreville-Wareham
Charlottetown,
Bonavista Bay
1
1
1
1
Clarenville
42
Come-By-Chance
5
5
Dover
1
1
Eastport
2
Fogo
1
16
17
Gambo
8
8
16
Gander
126
Tenant
Associations
Neighbourhood
Centres
1
10
13
21
16
12
88
1
2
1
14
15
19
248
3
3
Glenwood
8
8
Glovertown
6
Horwood
1
10
1
71
Gander Bay South
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Centres
TOTAL
Co-op
Community
Based
Affordable
Housing
Approved Units
Rent
Supplement
NL Housing
Total
Community
Profile by Region - GANDER
10
26
1
77
AFFORDABLE HOUSING - NEED & DEMAND DATA
King's Cove
1
1
Main Point
1
1
Melrose
1
1
Musgravetown
1
1
Newman's Cove
2
2
Newtown
1
1
NorthWest Brook
2
2
Port Blandford
1
1
Port Rexton
1
8
9
Port Union
1
12
13
Pound Cove
4
4
Rodger's Cove
3
3
Sandringham
1
1
St. Brendan's
1
1
Sunnyside
1
1
Trinity, Bonavista Bay
2
2
Victoria Cove
1
1
Wesleyville
1
1
TOTAL
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101
47
102
19
537
0
3
Tenant
Associations
Neighbourhood
Centres
Community
Centres
TOTAL
Co-op
Community
Based
Affordable
Housing
Approved Units
Rent
Supplement
NL Housing
Total
Community
Profile by Region - GANDER
2
78