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Five

Housing

“It is also vital to realize that the handicapped community is not a monolithic, faceless crowd. It is a cross-section of our population, with all levels of income, education, talent and genius represented in its ranks. All personality types are included and all possible ranges of interest. In planning for them, there should be as much latitude for diverse lifestyles as in planning for the community as a whole.”

“Many of the physical limitations of the disabled could be simply overcome by the elimination of thoughtlessly placed barriers by innovative design, and by basic adaptive apparatus for severe situations. The creation of suitable environments for disabled people should not be an extraordinary task of accomplishment, given our present level of technology and social consciousness.”

“Living at CORDI has allowed me to live in the community, to learn about my disability and how to cope with everyday life. I meet new friends as well as being able to entertain old ones... my outlook on life is much brighter.”

“Today, contrary to the claims of modest success by social and legislative forces, the majority of Canada’s disabled citizens continue to live in communities in which housing, unless specifically remodeled, does not allow for independent living, and in which buildings intended for public use, outdoor places and public transportation, pose serious restrictions due to lack of accessibility.”

66

AMEND NATIONAL HOUSING ACT TO ENCOURAGE INDEPENDENT LIVING

RECOMMENDATION:

That the Federal Government amend the National Housing Act to enable groups to develop more non-profit, cooperative and group homes for physically and mentally disabled persons -- including clusters of units in apartment buildings.

Squeeze: A decade of experience in the United States and Europe indicates that independent living for disabled persons, when possible, is more beneficial and less expensive than institutional care. Independent living could increase significantly in Canada if it were not for serious obstacles presented by the National Housing Act. Its regulations put disabled persons into a financial squeeze which makes it virtually impossible to obtain non-profit cooperative and group homes.

Discriminatory: Put simply, the existing legislation makes it impossible to build and maintain homes for disabled persons within the stipulated cost limits for non-profit housing. Disabled persons need to be in the centre of cities and towns in order to have access to facilities. But the cost of serviced land in city cores forces housing for disabled persons to the outlying areas, which defeats much of the rationale for independent living. The building cost ceiling for non-profit housing is often 15% lower than that needed for equivalent family accommodation; yet, the real building costs of such units exceeds that for normal residential housing. Certain accounting procedures tend to confuse the issue of "special needs" housing, because they lump together senior citizens' housing with housing for disabled persons. However, the needs of disabled persons are quite different from those of senior citizens. There is, therefore, very little "independent living" housing available. In Canada today, there are only 400 bed/units, with support services, presently occupied by disabled persons.

Consultation: The Committee recommends that the Federal Government amend the National Housing Act, in consultation with disabled persons and their organizations, to encourage greater possibilities for disabled persons in all parts of Canada.

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Put simply, the existing legislation makes it impossible to build and maintain homes for disabled persons within the stipulated cost limits for non-profit housing.

67

MAKE NEW FEDERALLY-FUNDED HOUSING ACCESSIBLE TO DISABLED PERSONS

RECOMMENDATION:

That a percentage of new dwelling units constructed with federal funds or guaranteed by the Federal Government, be accessible to disabled persons as defined by standards to be developed by Canada Mortgage and Housing Corporation, and that these specially adapted units be integrated with regular housing units.

Small Costs: Canadian architects and builders who have studied the problem agree that making a new house accessible for disabled persons costs very little more than normal construction-provided that accessibility is part of the initial design, not an afterthought. This architectural evidence reinforces a general rule about the costs of disability to Canadian society. The more thinking done upfront about the needs of disabled persons, the lower the costs are later on.

Future Availability: If a percentage of federally-funded new housing were accessible, this would ensure a growing supply in the future. The implementation of this policy should reflect the changing needs of the disabled population in different parts of Canada. The newly-constructed accessible units should include one and two-bedroom apartments, townhouses and detached dwellings. They should be built throughout a community and not clustered together in a single area.

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Canadian architects and builders who have studied the problem agree that making a new house accessible for disabled persons costs very little more than normal construction — provided that accessibility is part of the initial design, not an afterthought.

68

DEVELOP HOUSING STANDARDS WHICH REFLECT NEEDS OF DISABLED PERSONS

RECOMMENDATION:

That Canada Mortgage and Housing Corporation, in consultation with disabled persons and their organizations, continue to develop housing standards which take into account the various needs of disabled persons.

That the Federal Government request the National Research Council to include these new housing standards for disabled persons in the National Building Code.

Simplified: The whole effort of making houses accessible to disabled persons will be greatly simplified when standards of accessibility are made a basic ingredient of the National Building Code. The trend throughout the world over the past twenty years indicates that there will be a slow, but inevitable, victory for the concept of accessibility in virtually all new building construction. Accessibility is not a question of "if", but only of "when". A great deal of time, money and mental energy can be saved if all parties accept accessibility as a standard operating procedure.

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69

DIRECT CMHC TO PROVIDE FUNDING AND ASSISTANCE FOR HOUSING FOR DISABLED

RECOMMENDATION:

That, in the absence of provincial initiatives, Canada Mortgage and Housing Corporation (CMHC), through its regional offices, give higher priority to the provision of assistance and start-up funds to groups of disabled persons developing housing projects and to organizations providing housing for mentally handicapped persons.

No-Win: As things stand now, CMHC is of little use to disabled groups and organizations which are seeking funding and assistance in developing housing projects. CMHC generally responds to requests only from those groups which have a provincial commitment to fund the operating costs. The Provinces, for their part, usually respond only to those groups which have CMHC support. The disabled groups are thus left in a no-win situation. Even when they are able to make headway, the myriad of regulations and statutes often wear out their resolve to follow through with projects.

Priority: To get around this situation, the Federal Government should direct CMHC to start making things easier for groups which are developing housing projects for disabled persons. The Corporation's regional offices should give a higher priority to the provision of assistance and start-up funds.

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Disabled persons have extreme shortages of appropriate housing facilities. Long waiting lists exist in all parts of Canada for the few available units. The most ambitious new construction program on behalf of disabled persons would satisfy only a small part of the demand.

70

PROVIDE MORE FUNDS TO MAKE EXISTING HOUSING ACCESSIBLE

RECOMMENDATION:

That the Residential Rehabilitation Assistance Program be amended to provide on a needs basis, grants, low or no interest loans to landlords, contractors, non-profit groups and individuals, who wish to renovate existing buildings, regardless of age or location, in order that they be more usable by disabled persons.

Scarcity: Disabled persons have extreme shortages of appropriate housing facilities. Long waiting lists exist in all parts of Canada for the few available units. The most ambitious new construction program on behalf of disabled persons would satisfy only a small part of the demand. Existing housing and apartment buildings should now be altered to make them usable. The alternative is institutionalization for many disabled persons, at great cost to society.

Renovation: Landlords and contractors have shown themselves willing to work with disabled groups when the Federal Government makes available grants and low-interest loans to do the work. This is especially important in those situations where a recently disabled person wants to live in the same dwelling. Amending the Residential Rehabilitation Assistance Program will provide the incentive needed by the private sector and self-help groups.

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71

MODIFY COST-SHARING AGREEMENTS TO PROVIDE ADEQUATE RENT SUBSIDIES TO DISABLED PERSONS

RECOMMENDATION:

That the Federal Government negotiate with the Provinces to modify the cost-sharing agreements under the National Housing Act to give a higher priority to the provision of adequate rent subsidies to disabled persons.

Increase: Rent subsidies are now available to disabled persons, but the amounts are too low and the availability too restricted. Disabled persons can live independently only if they can pay the rent. Many persons are unemployed, or are in low-paying jobs. Some financial assistance is needed by many disabled persons to live in group homes, cooperative homes, or their own apartment. Persons on disability pensions can cover most other living expenses, but not the rent. A more generous subsidy would open the possibility for independent living to many disabled persons who are currently in institutions or living with their parents.

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Society benefits greatly from having disabled persons live at home, rather than in an institution. Society should therefore provide assistance so that these home care situations can continue.

72

ENCOURAGE GROUP HOMES FOR RESPITE CARE

RECOMMENDATION:

That the Federal Government, through Canada Mortgage and Housing Corporation (CMHC), encourage new group homes, where practical or reasonable, to provide respite care services.

That, in view of the present trend towards deinstitutionalization, provincial and municipal authorities and community organizations be encouraged to adapt existing facilities, where practical, to provide respite care.

That provincial and municipal authorities and community organizations be encouraged to construct, where existing facilities are unsuitable or unavailable, hostel-type units to provide respite care on a temporary basis.

Take a Break: The term “respite” means a rest, relaxation, or a break from heavy responsibilities. As it relates to disabled persons, it means that a parent or guardian who has full responsibility for a disabled person at home should be provided with a regular rest period, away from this responsibility.

Strains: Parents need a break from the strain that can result from constant attention to the disabled person's special needs. Society benefits greatly from having disabled persons live at home, rather than in an institution. Society should therefore provide assistance so that these home care situations can continue. Provincial and municipal authorities, and community organizations should provide facilities to care for a disabled person while his or her parents or attendants are taking a break.

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73

CUT RED TAPE FOR DISABLED GROUPS DEVELOPING HOUSING PROJECTS

RECOMMENDATION:

That the Federal Government encourage Canada Mortgage and Housing Corporation, the Provinces, and municipal authorities to streamline their mandatory regulations and administrative procedures to reduce the administrative burden for groups of disabled persons developing non-profit housing projects and for organizations providing non-profit housing for mentally handicapped persons.

Four Authorities: One group home in Ottawa, for example, must deal continually with the following four government organizations:

• Ontario Ministry of Community and Social Services (for attendant care)
• Ontario Ministry of Housing (shelter agreement)
• Ottawa Housing Authority (selection of residents to qualify for subsidies under federal-provincial rent supplement program)
• Canada Mortgage and Housing (Agreement Administration).

In addition, residents of this home may personally have contact with the City of Ottawa (residency requirements, or waiver of these) and with the Vocational Rehabilitation Services of the Ontario Ministry of Community and Social Services. There are further requirements to comply with provincial landlord and tenant legislation, and fire safety regulations.

Get Together: Federal, provincial and municipal government agencies should coordinate their policies and procedures to reduce the bureaucratic burden on non-profit housing groups. The policies and procedures themselves should be rationalized and simplified.

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74

ENCOURAGE MUNICIPALITIES TO IMPROVE ACCESSIBILITY AS PART OF INTERNATIONAL YEAR EFFORTS

RECOMMENDATION:

That the Federation of Canadian Municipalities be encouraged to demonstrate support for the International Year of Disabled Persons by drafting and circulating to its members, model by-laws and programs respecting:

• Group homes
• Curb cuts
• Parking
• Access to municipal buildings and facilities
• Recreational facilities
• Affirmative Action

Shortcomings: Many municipalities make it very difficult for disabled persons to lead independent life-styles. Some municipal by-laws prohibit the establishment of group homes. Others reflect a very negative attitude toward any presence of disabled organizations. These short-sighted policies and attitudes do not belong in the twentieth century.

Not Privilege: The Canadian Federation of Municipalities should exercise leadership by drafting and circulating to its members model by-laws and programs related to disabled persons. 1981 is the International Year of Disabled Persons. This is an appropriate time for all Canadian municipalities to make their communities more accessible to disabled persons.

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Many municipalities make it very difficult for disabled persons to lead independent lifestyles. Some municipal by-laws prohibit the establishment of group homes. Others reflect a very negative attitude toward any presence of disabled organizations. These short-sighted policies and attitudes do not belong in the twentieth century.