SHARE Housing Initiative

THE CORPORATION OF THE CITY OF NELSON
REQUEST FOR DECISON

DATE:
TOPIC:
PROPOSAL:
PROPOSED BY:
June 7, 2016
Staff Report on the SHARE Housing Initiative 520 Falls Street
To Waive the Planning and Servicing Fees for the Development of a
42-unit Rental Housing Project
Council request for Staff Report
______________________________________________________________________________
ANALYSIS SUMMARY:
Council requested a staff report on the SHARE Housing Initiative that was presented to Council
at the May 16, 2016 Committee of the Whole meeting at which the request was made for
$700,000 in financial and non-financial support from the City. The project is for residential
housing targeted at renters seeking lower end of market rental accommodation and/or seeking
provincial rental assistance available for private market rental accommodation (Attachment 1
Site Plan). Attachment 2 outlines the Applicants request for support from the City (Attachment
2 Request to City Council for Funding).
BACKGROUND:
At the June 16, 2015 meeting of the Nelson Housing Committee, it was agreed that the
Committee supported, in principle, the SHARE Housing Initiative sponsored by the Kootenay
Christian Fellowship and agreed to forward the recommendation to Council that the City of
Nelson provide tangible support for the project. On July 20, 2015 the SHARE Housing Initiative
was presented to the Committee of the Whole with a request for a letter of support for the
project. At the August 10, 2015 regular meeting of Council, Council agreed to provide a letter of
support for the project, stating that the City will look for ways and means to support this project
not only in principle but in practical terms to demonstrate to other funders our deep level of
commitment.
City staff including Planning, Nelson Fire & Rescue Service, and Public Works has had
numerous discussions and site visits with the applicant on the proposed SHARE housing
initiative since summer 2015 regarding site and building design, infrastructure servicing,
emergency access routes and potential off-site costs. The design that was presented to staff is
significantly different than the design presented to Council on May 16, 2016. The current design
has not been presented to, or reviewed by City staff.
Planning Fees
The design that was presented to Council on May 16, 2016 no longer includes commercial at
grade (a requirement of the C1 zone), and will require a land use redesignation and zoning
($4500). Upon approval of the land use, a development permit ($1700) and a building permit
(approx. $56,000) will be required. The applicant has also discussed the possibility of a
subdivision (approx. $12,500). Total potential costs for subdivision, redesignation, and
permitting fees could amount to approximately $75,000.
Sanitary/Water/Storm Servicing Fees
General costs for connection fees for sanitary/water are $3289 per unit, which would total
approximately $138,138. Construction of these services to the property line will require
upgrades to both water and sewer with the cost estimated at roughly $60,000 (this is a very
preliminary number given the limited information staff have to date on this project). It is also
possible that an additional $60,000 will be required to loop the water infrastructure to ensure the
appropriate fire flow is available for the anticipated sprinkler and standpipe systems and a new
fire hydrant that will be required on-site. This will need to be determined by an engineer based
on fire flow calculations as part of the plans submission. Total potential costs for servicing are
approximately $260,000.
Emergency Access
Identifying an emergency access route has been difficult given the location and size of the site.
Nelson Fire & Rescue Service has had numerous meetings with the applicant to determine the
most appropriate location for the access route. The only potential route, currently, would
include the dedication of a 20ft strip of City land between Baker Street and the lane allowing for
a loop between Falls Street and Baker Street. This access route would also require the
elimination of two parking stalls (closest to KCF) in front of the Savoy, so that the access (which
is the main access to the site) is increased from 4m to roughly 6m. This access route would
need to have No Parking signage and parking enforcement and be plowed and maintained.
Hydro Costs
Nelson Hydro cant accurately identify costs for the proposed development without accurate
load information that would typically come from the electrical engineering of a nearly complete
building design. However, there is a high likelihood that a primary extension and dedicated pad
mount transformer will be required, which would be approximately $30,000.
Other Costs
There has also been some discussion on the retaining wall, and the stress cracks that are
evident. Given that this is meant to be the main entry to the site, an engineering analysis will be
required to determine the safety and stability of the wall. As well, the development of this site
will likely aggravate the safety concerns at the Victoria/Falls Street intersection which could
result in future mitigation measures required by the City.
BENEFITS, DISADVANTAGES AND NEGATIVE IMPACTS:
The benefit of the proposed development is that it would provide 42 units of affordable market
rental housing, potentially for groups in core housing need, as identified in the Affordable
Housing Strategy Update (2014) (Attachment 3). The number of units aligns with the number
of units identified in the Affordable Housing Strategy, which states a combined total of 30-50
units for at risk youth and young adults (10-15 units) and low income seniors and seniors in rural
areas (20-35 units). Both of these groups are considered to have the greatest challenge finding
suitable, affordable housing in Nelson.
LEGISLATIVE IMPACTS, PRECEDENTS, POLICIES:
A land use redesignation and rezoning will be required if there is no commercial use at grade.
This will require a minimum of three months to undertake the planning analysis, public
notification, and public hearing requirements outlined in the Local Government Act. A
Development Variance Permit will also be required for any construction that varies any of the
provisions of the Citys regulatory bylaws, including variances to land use regulations, parking,
landscaping or servicing. Council must approve all land use redesignation and development
variance permits.
The Official Community Plan (OCP) has policies that support a number of strategies to achieve
affordable housing:
The City will continue to maintain a housing reserve fund and direct funds towards
affordable housing projects.
The City will review and consider revisions to bylaws and/or policies in order to waive or
reduce fees and charges for permits or connection fees for affordable housing
developments, including purpose built rental housing.
The City will expedite the approval process for development applications that contain
affordable housing units.
The City will assist in building the capacity of the non-profit sector.
The Affordable Housing Strategy identifies 20 strategies for achieving affordable housing, none
of which include waiving of planning fees or infrastructure construction/connection fees, but it
does identify one of the key steps to achieving affordable housing is for the City to partner with
non-profit housing providers and private developers to encourage the creation of affordable
housing units (Attachment 4).
Despite the statement in the OCP that contemplates the waiving or reduction of fees for permits
or connection fees, there is currently no policy for allocation of incentives for affordable housing
projects, and as such there is no basis from which Staff can recommend the granting of
incentives for this particular project. Further work is required on policy development that
provides for an equitable incentive regime for all affordable housing projects. Council will need
to determine whether they want to provide incentives, similar to the current request, to all
development projects that meet the criteria, or whether they want to do this on a site by site
basis based on the individual merits of each project. This development could set a precedent
for City financial/non-financial contributions to similar projects in the future.
COSTS AND BUDGET IMPACT - REVENUE GENERATION:
The cost to waive the planning, servicing and hydro fees for this proposed development could
amount to approximately $362,838 (this does not include the engineering analysis required for
the retaining wall or any resulting mitigation measures required to stabilize the wall).
Land use redesignation

Development variance permit
Building permit
Subdivision
Water/Sewer connection
Water/Sewer construction
Hydro construction fees
general
taxation/utility
fees
$4500
$1700
$56,000
$800
contribution to
water & sewer
revenues
$11,700
$138,138
$120,000
$30,000
$213,000
$149,838
The costs identified under general taxation require staff time and/or equipment to undertake
the work required to enable development on this particular site. The costs identified under
contribution to water and sewer revenues represents costs to maintain the overall integrity of
City infrastructure.
Based on current policy, Staff could recommend the following contributions to support this
project:
The use of a 20ft strip of City Land for an emergency access route (current land value of
$69,200) (see Attachment 5);
Elimination of two parking stalls in front of the Savoy Hotel to allow for a 6m access to
the site (value of $10,000 per stall);
Planning support for relaxation of parking stall requirements and minimum unit size (this
would still require a development variance permit application for Council approval).
IMPACT ON SUSTAINABILITY OBJECTIVES AND STAFF RESOURCES:

There are no perceived negative impacts on Sustainability Objectives within the Path to 2040
documents. The proposed development achieves a number of the goals and objectives
identified within the Official Community Plan, including additional housing in the downtown and
the provision of affordable, purpose built rental housing.
COMMUNICATION:
The design presented by the Applicant to City Council on May 16, 2016 has not been presented
to, or reviewed by City Staff.
OPTIONS AND ALTERNATIVES:
1. Approve the use of a 20ft strip of City property as part of an emergency access lane
for the proposed development; eliminate two City parking stalls to enable a sufficient
emergency access route to the development; support parking relaxations and
minimum unit size requirements; and undertake further policy work and investigate
the viability of incentives to support affordable housing;
2. Deny support for this project and further policy work;
3. Refer back to staff for further review & report.
ATTACHMENTS:
1. Site Plan
2. Request to City Council for Funding
3. Affordable Housing Strategy Update 2014
4. 20 Strategies for achieving affordable housing, Affordable Housing Strategy Update
2014
5. 20ft strip of City land
STAFF RECOMMENDATION:
That Council passes the following resolution:
1. Approve the use of a 20ft strip of City property as part of an emergency access lane for
the proposed development; eliminate two City parking stalls to enable a sufficient
emergency access route to the development; support parking relaxations and minimum
unit size requirements; and undertake further policy work and investigate the viability of
incentives to support affordable housing.
AUTHOR:
REVIEWED BY:
______________________________
MANAGER OF
DEVELOPMENT SERVICES
____________________________
CITY MANAGER
May 4th, 2016

BAKER STREET
19
21
32
33
EXISTING BUILDING
RE
FI
28
22
FALLS STREET
PROPOSED HOUSING
BUILDING
w. 18 INTERNAL
PARKING STALLS
34
NE
LA
29
31
38
VICTORIA STREET
39
44
51
43
50
Kootenay Christian Fellowship

SHARE HOUSING INITIATIVE (S.H.I)
May 16, 2016
63
Report 2
HOUSING STRATEGIES UPDATE

OCTOBER 2014
CITY OF NELSON
TABLE OF CONTENTS
EXECUTIVE SUMMARY
Nelson Housing Needs ..............................................................................1

Summary of Housing Strategies ..............................................................2
INTRODUCTION
Project Overview .......................................................................................3

What is an Affordable Housing Strategy? .............................................3
The Housing Continuum ...........................................................................4
HOUSING NEEDS ASSESSMENT
Affordability Analysis Recap ....................................................................5

Groups Experiencing Greatest Challenge in Nelsons Housing
Market .........................................................................................................7
How Many Units Do We Need? ..............................................................9
AFFORDABLE HOUSING STRATEGY
13
Housing Strategy Framework ................................................................13

Strategic Directions ................................................................................13
NEXT STEPS
21
Implementation .......................................................................................21
CLOSING COMMENTS
23
APPENDIX A: TERMS & DEFINITIONS
25
APPENDIX B: ACHIEVEMENTS SINCE 2010
29
APPENDIX C: BENCHMARK STRATEGIES
33
APPENDIX D: LEGISLATIVE CONTEXT
41
City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014
EXECUTIVE SUMMARY
NELSON HOUSING NEEDS

The City of Nelson and community-based organizaWons have made
considerable eorts and some success in encouraging the development of
aordable housing since its 2010 Aordable Housing Strategy, notably the
development of Anderson Gardens - a 33-unit complex for persons with
disabiliWes and low-income seniors.
Other achievements since 2010 include establishing a working group, fostering
partnerships, updaWng the Ocial Community Plan with housing related policy
including supporWng the development of a Standards of Maintenance Bylaw
and supporWng crime-free mulW-housing programs. The City of Nelson has also
introduced a suite-ready policy, an expedite approval process policy, and
policy to encourage the development of fee simple rowhousing.
Even with success, there are sWll vulnerable residents who have li]le or no
choice in the Nelson housing market. This Aordable Housing Strategy Update
responds to these groups in need, listed as follows:
1.
At-Risk Youth and Young Adults;
2.
Persons with Physical and Developmental DisabiliWes;
3.
Low-income Seniors and Seniors in Rural Areas of Nelson;
4.
Low-income Families;
5.
Persons with Mental Health and AddicWons Issues; and
6.
People who are Homeless or At-Risk of Homelessness.
The Strategy, which references 2014 circumstances, is intended to guide City

Council and sta, as well as Nelsons non-market housing providers and
community organizaWons, in the coming years. It can also serve as a guide for
private developers with understanding and responding to housing needs in
Nelson.
The strategies are consistent with the Citys jurisdicWon, as outlined in the
Local Government Act and the Community Charter. The authors have also
included case study examples of where some of these strategies have been
applied elsewhere, found in Appendix C.
SUMMARY OF HOUSING STRATEGIES

Within the context of housing challenges in Nelson, the accompanying table
outlines the proposed housing strategies for the City.
Table 1: Summary of Nelson Aordable Housing Strategies - 2014
TIMELINE
STRATEGY
Short-
term
Medium
-term
Long-
term
Adopt Inll Housing Policy
Review and Establish Inclusionary Policy + Inclusionary Zoning to be implemented through

Neighbourhood Planning and MulN-Unit Development Projects
Increase Density through MulNple Dwelling Unit Conversion RegulaNons
Update Nelsons Heritage Strategy with Provision of Oering Heritage RevitalizaNon Agreements
Adopt a Standards of Maintenance Bylaw
Adopt a Family-Friendly Housing Policy
Adopt a Youth-Friendly Housing Policy
Adopt a Seniors-Friendly Housing Policy
Prepare an Accessible Housing Bylaw
10
Support AlternaNve Housing Forms + ConstrucNon Techniques
11
Improve Access to Rent Supplements (RAP, SAFER)
12
Promote the Home AdaptaNon for Independence Program
13
Advocate for Increased Rent Supplements for Persons who have Mental Health Issues
14
Prepare a Discharge Planning Policy for at-risk residents leaving hospitals/detainment
15
InvesNgate opportunity to Develop an AddicNons Treatment Facility with Dedicated Detox Beds
16
Encourage Landlord Discussions
17
Leverage UnderuNlized Land + Buildings Towards Increasing the Supply of Aordable Housing
18
Develop Prototypes and Promote DemonstraNon IniNaNves
19
Communicate Housing-Related InformaNon
20
Review and Monitor Aordable Housing Strategy in Fall 2017/Spring 2018
INTRODUCTION
PROJECT OVERVIEW
The City of Nelson prepared their rst Aordable Housing Strategy in 2010.
The City engaged CitySpaces ConsulWng to prepare this work, which is
available on the Citys website (h]p://www.nelson.ca/assets/City%7EServices/
Pubs%7Eand%7EReports/Development%7EServices/2_HousingStrategy.pdf).
Nelson has evolved over the last 4 to 5 years since the endorsement of the
2010 Aordable Housing Strategy, with several changes to the housing stock,
housing proposals and programs, and economic climate. There has been
recent staWsWcs released, including StaWsWcs Canadas Census and NaWonal
Household Survey. In response to these changes, the City of Nelson iniWated
an update of their 2010 Aordable Housing Strategy, idenWfying aspects of
housing that have changed, improved, worsened, or stayed the same. The
purpose of this study is to idenWfy these changes, as well as idenWfy new and
emerging housing needs in Nelson.
WHAT IS AN AFFORDABLE HOUSING

STRATEGY?
An Aordable Housing Strategy idenWes the current and emerging housing
needs of a community by examining the housing gaps and issues. It also
idenWes strategic soluWons to respond to the unique needs of a community.
This report, the Aordable Housing Strategy, is the second of two deliverables
prepared for this project.
Report #1 - Housing Needs Report Update: This baseline report

examines relevant housing data including current housing mix,
housing tenure, rental prices, housing sales prices, household income,
housing vacancy rates, and aordability analysis. This report also
includes a summary of the insights, observaWons and comments
obtained from consultaWon with key informants, outlining their
housing concerns for the community.
Report #2 - Aordable Housing Strategy Report Update: The second

and nal report reects on the data research and community input,
summarizing the housing gaps and issues in the City. This report
outlines strategic acWons to move forward on implemenWng soluWons
to housing issues.
The strategic acWons idenWed in 2010 are re-evaluated against the new and
emerging housing needs in the community, and updated to reect the changes
to the housing situaWon over the past 4 to 5 years in Nelson
THE HOUSING CONTINUUM

The assessment of housing needs and issues is evaluated against the Housing
ConWnuum. The housing conWnuum is a visual concept that illustrates both
market and non-market housing. Non-market housing refers to housing below
market rents or prices, ranging from emergency shelters through various
forms of supporWve to rent-geared to income (RGI) rentals and housing co-
operaWves. Moving across the conWnuum to the right is market rental and
home ownership housing.
Figure 1: The Aordable Housing ConAnuum
TYPES
NON-MARKET
EMERGENCY
SHELTER
TRANSITIONAL
SUPPORTIVE
ASSISTED
LIVING
SOCIAL
HOUSING
INDEPENDENT
LIVING
MARKET
AFFORDABLE
RENTAL
RENTAL
ASSISTANCE
PROVIDED
IN PRIVATE
MARKET
MARKET
RENTAL
LOWER COST
HOME
OWNERSHIP
MODERATE &
HIGHER COST
HOME
OWNERSHIP
FORMS
Small Lots/Units
Homeless
Shelters
Safe
Houses
Subsidized
Rental Housing
with Funded
Support Group
Homes
Subsidized
Rental Housing,
Families/Seniors/
Disabled
Grant Aided
Family/
Workforce
Rental
Assistance
Program (RAP)
Rent
Supplements
Rental
Housing
at Market
Prices
Secondary
Suites/Dwellings
Coach/Laneway
Housing
Manufactured
Homes
Detached
Homes
Seasonal
Homes
Co-operative
Housing
HIGH
LEVEL OF GOVERNMENT
FINANCIAL ASSISTANCE
The mix of market and non-market housing varies depending on the

community, as every community has a unique socio-economic makeup and
community-specic needs. However, residents should have the opportunity to
move across the housing conWnuum and nd housing that is most appropriate
and best suited to their needs and circumstances, and to nd housing that
meets the standards of adequacy, suitability, and aordability.
LOW
HOUSING NEEDS ASSESSMENT
Affordable Housing -
means a household
spends no more than 30%
of their gross income
towards housing costs,
without compromising
their ability to pay for
other necessities. For
renters, this includes rent
plus utilities. For home
owners, this includes
mortgage, property taxes,
strata fees (if any),
utilities and any related
municipal services.
AFFORDABILITY ANALYSIS RECAP

DEFINING AFFORDABILITY
Aordability is the relaWonship between household median income, and the
esWmated income available for either purchasing a home, or renWng a place to
live. Using CMHCs standards, housing is considered unaordable if a
household spends 30% or more of its gross income on shelter costs.
For renters, shelter costs include rent, and any payment for electricity, water,
and other municipal services. For owners, shelter costs include mortgage
payments (principal and interest), property taxes, condominium/strata fees (if
any), and payments for electricity, water, and other municipal services.
Households falling short of meeWng all three standards of housing are
considered to be in core housing need. These standards are:
Adequate Housing: Dwellings reported as not requiring any major

repairs.
Suitable Housing: Dwellings that have enough bedrooms for the size
and make-up of resident households, according to NaWonal
Occupancy Standard (NOS) requirements.
Aordable: Dwellings that cost less than 30% of total before-tax

household income.
Households spending more than 50% of their gross income on shelter fall
below the standard of aordability, and are considered to be in deep core
need.
Housing is one factor in the overall cost of living for individuals and families.
Other factors can include the cost of groceries, transportaWon, and childcare.
AFFORDABILITY IN NELSON
Median household income of dierent age groups and household types have
been compared to rental and purchase prices in Nelson. Using these
measurements provides an understanding of the housing types that
households can aord to rent or purchase in Nelson.
Across all household types (couples, single parents, and single individuals),
youth and young adults earn the lowest median income and experience the
greatest challenge with aording the average rental prices in Nelson.
Table 2: Rental Aordability by Age and Household Type in Nelson
Available for Rent @ 30% of Gross Income
AGE
Couples
Single Parents
Singles
0 to 24
$789
$431
$316
25 to 34
$1,423
$565
$577
35 to 44
$1,752
$748
$613
45 to 54
$2,372
$956
$623
55 to 64
$2,084
$1,282
$688
65+
$1,198
$1,385
$644
All
$1,603
$894
$577
Source: CitySpaces ConsulFng CalculaFons referencing StaFsFcs Canada,

Taxler Reported Custom TabulaFon Family Tables, 2011
Single parents earning the median income have a lesser ability to buy a home
compared to couple households. Single parents under the age of 34 are
priced-out of the home ownership market, and likely most single parents
between the ages of 35 to 44 are priced out as well. Low-income couple
families are also challenged to purchase a home. Single individuals earning the
median income levels or less in Nelson are completely priced out of the home
ownership market.
Table 3: Home Ownership by Age and Household type in Nelson

Available for Rent @ 30% w/ 10% Downpayment
AGE
Couples
Single Parents
Singles
0 to 24
$63,007
-$19,602
$45,910
25 to 34
$208,997
$11,369
$14,075
35 to 44
$284,698
$53,393
$22,480
45 to 54
$427,521
$101,289
$24,783
55 to 64
$361,089
$176,472
$39,750
65+
$157,187
$200,132
$29,618
All
$250,416
$87,176
$14,133
Source: CitySpaces ConsulFng CalculaFons referencing StaFsFcs Canada,

Taxler Reported Custom TabulaFon Family Tables, 2011
GROUPS EXPERIENCING GREATEST

CHALLENGE IN NELSONS HOUSING
MARKET
The data research and community consultaWon lead to idenWfying 6 groups
with the greatest challenge nding aordable and suitable housing in Nelson:
at-risk youth and young adults, persons with disabiliWes, low-income seniors
and seniors living in rural areas, low-income families, persons with mental
health and addicWons issues, and people who are homeless or at-risk of
homelessness. Detailed analysis can be found in the Companion Report
(Housing Needs Update). A summary of groups in need are provided below.
They are not listed in order of priority.
#1 AT-RISK YOUTH + YOUNG ADULTS

Youth and young adults under the age of 24 have been idenWed as having the
lowest median incomes in Nelson, with limited choice in the Citys housing
market. Youth aged 16-24 who are at risk of becoming homeless have been
able to nd shelter at Cicada Place. However, gaps sWll exist in the system as
youth who are ready to leave Cicada Place are nding there are few aordable
housing opWons available.
#2 PERSONS WITH DISABILITIES

The wait list for aordable housing dedicated to persons with disabiliWes has
seen a major increase since the 2010 Housing Needs Assessment. Over half of
the new Anderson Gardens units (completed in 2013) are occupied by persons
with disabiliWes, with the reminder of residents being low-income seniors. The
wait list for that complex is over 50 applicants half of which are persons with
disabiliWes. BC Housing wait list registry has 28 applicants for housing for
persons with disabiliWes.
In addiWon, conversaWons with key informants in the community have further
idenWed a need to reproduce a complex such as Anderson Gardens as this
type of building independent, accessible, and in good condiWon is in
demand in Nelson for persons with disabiliWes.
#3 LOW-INCOME SENIORS + SENIORS IN RURAL AREAS OF

NELSON
The demand for aordable housing for seniors has signicantly increased over
the past 8 years and the number of seniors in Nelson is projected to grow over
the coming decade. Median incomes for seniors appear to be quite healthy in
Nelson compared to other household groups, and seniors are more likely to
accumulate wealth over Wme. That said, seniors earning a xed income (i.e.
pension) are challenged to aord the average market rental prices in Nelson.
The community has reported that seniors living in rural areas in Nelson are
looking to downsize into smaller, more urban properWes in the coming
decades. TransportaWon in rural areas is especially challenging for the senior
populaWon. Condominium developments have the potenWal to ll the market
gap for seniors who are downsizing, especially for those who own single-family
homes in rural areas. However, this will not apply to all seniors, and a segment
of the senior populaWon who cannot aord to purchase will need access to
rental suites that are safe, accessible and aordable. Some seniors in rental
suites will be able to apply for the SAFER rent subsidy, but will sWll need
suitable and appropriate housing to meet their needs.
#4 LOW-INCOME FAMILIES
According to BC Housing, the City of Nelson has experienced a decrease in the
demand for aordable housing for low-income families. However, community
observaWons indicate that the number of families and children living in poverty
in the City is evident, and aordability calculaWons support these observaWons.
In Nelson, there are limited family-friendly rental opWons that are secure and
in good condiWon, and 3-bedroom rental units are rare. In 2010, the Housing
Needs Assessment idenWed a need to assist low to moderate income families
in their a]ainment of homeownership. Since then, a privately operated Rent-
To-Own program has been introduced in Nelson, and at the Wme of this study
had 97 qualied applicants ready for a property. The largest barrier to
achieving housing for these families in the Rent-To-Own program is the low
availability of with enough bedrooms to accommodate families. QualitaWve
research has indicated that duplexes, fourplexes, and town homes would best
ll this gap.
#5 PERSONS WITH MENTAL HEALTH + ADDICTIONS ISSUES

Community observaWons report that the prevalence of persons with mental
health and addicWons issues is increasing in Nelson. StaWsWcs provided by
Stepping Stones for Success supports this in that the proporWon of individuals
who use the service and have mental health and addicWons issues has
increased from 36% to 52% from 2006 to 2013. This rise in numbers could
either be a]ributed to an increase in actual numbers, or a greater
understanding and recogniWon of mental health and addicWons issues within
the community. Police records also indicate that a high proporWon of calls
(20% to 30% year-to-date) relate to mental health and addicWons issues.
Insucient housing exists for individuals who both reside in Nelson on a
permanent basis and for those who travel to Nelson for addicWons treatment
at the local hospital. The community idenWed a shortage of supporWve
housing for persons with mental health and addicWons, and a need for detox
beds.
#6 PEOPLE WHO ARE HOMELESS OR AT-RISK OF

HOMELESSNESS
Stepping Stones for Success recorded an increase in the average length of stay,
from 9.5 days in 2010 to 16 days in 2013. Local food banks (the SalvaWon Army
and Our Daily Bread) have also seen an increase in food bank visits over the
past decade, with 1-in-5 individuals accessing this service being children. These
indicators, along with the informaWon provided in the recent Homeless Report
Card, and the prevalence of visible homelessness in Nelson, indicates that
there is likely a need for more supplements and housing supports for the
homeless.
HOW MANY UNITS DO WE NEED?

Income levels by age groups and household types, as well as housing wait list
data, have been reviewed to inform an esWmated need of aordable housing
units or programs in Nelson. These are conservaWve esWmates, and are
inherently limited. A detailed nancial feasibility study and business plan
should be conducted for site-specic aordable housing projects, or mixed-
income housing projects, in order to be condent in the project viability
nancial, locaWon, partnerships, number of units, rent ranges etc. These
esWmates are intended to provide a crude snapshot of demand, but are
notably a moving target as changes in the community alters the demand and
needs, especially changes in the economy.
Table 4: EsAmated Aordable Housing Units Needed in Nelson
Units
10 - 12 Second Stage Youth
House
At-Risk Youth +
Young Adults
10 - 15 units of Aordable
bachelor or 1 bedroom units
15 - 25 units
Persons with
DisabiliNes
15 -20 units aordable seniors

housing
20 - 35 units of senior-friendly
rental housing in the private
market
Low-Income
Seniors +
Seniors in Rural
Areas
10 - 15 aordable family
housing
Low-Income
Families
25 - 50 family-friendly rental
housing in the private market
Persons with
Mental Health
+ AddicNons
Issues
5 - 8 units for persons with

mental health issues
People who are 8 -12 supplements

Homeless or
At-Risk of
Homelessness
10
Reasoning
Cicada Housing Wait List + Unaordable Private Market
Rents compared to Median Income of At-Risk Youth/Young
Adults
Strategy
Second Stage Youth

House (see Strategy
#16)
According to taxler income data, 290 young adults (under
the age of 24) earn a median income of $25,000 or less,

within BC Housing HILs*. There is an unknown number of
young adults living with their parents, or have roommates. A
conservaNve range of 5% to 10% has been applied.
Youth-friendly housing
(see Strategy #7)
Anderson Gardens wait list + BC Housing Registry wait list for

persons with disabiliNes
Accessible Housing
Bylaw (see Strategies
#9, #15, #16)
BC Housing Registry wait list and Anderson Gardens wait list
Seniors-friendly
housing (see Strategy
#8 and #16)
ConservaNve range of 5% - 10% of low-income seniors who

rent. These units can be delivered through the private
market, with eligible occupants applying the SAFER rent
subsidy towards o-selng rental cost.
Seniors-friendly
housing (see Strategy
#8 and #9)
BC Housing Registry wait list
Aordable Housing
(see Strategies #2)
ConservaNve range of 5% to 10% of low-income families who

rent. These units can be private market rents, with eligible
occupants applying the RAP rent subsidy towards o-selng
rental costs.
Family-friendly rental
policy (see Strategies
#16)
There are no wait lists nor income-related data to
demonstrate a demand for aordable housing for persons

with mental health and addicNons issues. That said,
community observaNons idenNed a need, and shelter
staNsNc reporNng has observed increase in persons with
mental health and addicNons issues. A conservaNve esNmate
has been applied, and should be incrementally increased
following unit absorpNon, wait list, and demand.
AddicNons Treatment
Facility w/ dedicated
detox beds (see
Strategy #13 and #14)
The average length of stay at Stepping Stones Emergency
Shelter has increased, and the recent homeless camp at

Railtown indicates a need for immediate shelter for
homeless. Need for increased homeless rent supplements to
be applied in the private market rental stock.
Advocacy (see
Strategies #13)
ImperaWve in this process is monitoring demand. As units are built, the City
should monitor absorpWon of these units, observing how long the units are
available unWl nally occupied. If a quick absorpWon rate is observed, and a
wait list follows, then the number of units required per group in need can be
revisited. If demand persists, then conWnue to encourage more units. If
absorpWon rates are slow, then be cauWous on encouraging development of
those types of units and revisit the proposed housing forms and who the
intended target audience is.
11
12
AFFORDABLE HOUSING STRATEGY
HOUSING STRATEGY FRAMEWORK

The Nelson Aordable Housing Strategy is a guide for sta and Council to
respond to and address housing challenges in the community, parWcularly
increasing the supply of market and non-market housing for households with
the least choice in the housing market.
If the City of Nelson is to implement land use planning measures and
incenWves to facilitate housing aordability, it will need to work in
collaboraWon with local non-prots, the province, and the development
community to successfully implement policies, regulaWons, and programs.
These partnerships are noted where applicable.
The proposed strategic direcWons outlined are within the parameters of the
Local Government Act and other relevant provincial legislaWon. This is
followed by a Wmeline for implemenWng the strategies.
STRATEGIC DIRECTIONS
1.
Adopt Inll Housing Policy: From a policy perspecWve, the recently

updated 2013 Ocial Community Plan has several policies that support
and encourage increasing the housing supply in exisWng neighbourhoods
through secondary suites and inll housing. These policies include
encouraging the subdivision of large lots to compact lots, and encouraging
detached secondary dwellings such as laneway homes, granny ats, and
carriage houses. Legalizing suites and requiring new single-detached
homes to be suite ready has been prioriWzed and established through
City policy in recent years.
Further, the City is currently reviewing the implicaWons of laneway homes
and other forms of inll housing, and has issued building permits for
laneway homes on a site by site basis. The City is currently reviewing a
drap inll housing policy, which would be instrumental in increasing the
supply of alternaWve housing forms, small lots, and rental suites. This
strategy supports the adopWon of this policy.
13
2.
Review and Establish Inclusionary Policy + Inclusionary Zoning to be

implemented through Neighbourhood Planning and Mulc-Unit
Development Projects: The OCP organized residenWal policies by
neighbourhood. CollecWvely, a diverse mix of housing is supported and
encouraged in Nelson at the policy level. Policy on housing form and mix is
excellent; however, the requirement to include aordable housing units
can be improved.
Inclusionary policy is a regulatory tool that requires new residenWal
development to include a percentage of aordable housing units as a
condiWon of a rezoning applicaWon. SomeWmes it can be combined with
other incenWves, such as density bonusing (currently under review by the
City). If density cannot be achieved onsite, than payment in-lieu can be
oered, open transferred into an aordable housing fund (already
established in Nelson by policy). A rezoning applicaWon triggers the policy
applicaWon.
The percentage of required aordable housing units varies by community,
typically ranging between 5% to 35%, with 15% being the most commonly
applied. Inclusionary policy also targets the audience, specifying the
household income levels eligible for the dedicated aordable housing
units.
There is an opportunity for the City of Nelson to adopt an inclusionary
policy to be applied to future neighbourhood plans, and future mulW-unit
development projects. For a community of this size, and as a test of the
policy, no more than 10% would be a realisWc expectaWon. As such, it is
recommended that the city invesWgate the opportunity to establish an
inclusionary policy requiring 10% of residenWal development to be
dedicated to aordable housing. Should this policy be supported, it can be
applied to future neighbourhood plans of Fairview, Waterfront, and
Railtown, and to any new mulW-unit inll projects.
The type of aordable housing for future projects can be negoWated on a
project by project basis. Typically, these are private market development
projects that have an a]ached Housing Agreement and registered on Wtle.
Housing agreements have the ability to deal with ma]ers of occupancy
that are beyond the reach of a Zoning Bylaw. It can specify:
Form of tenure of the units;
Availability to specic persons;
AdministraWon of units and means by which they will be made

available to their intended occupants; and
Unit prices (rent or ownership).
A housing agreement can be applied to a porWon of a new residenWal

project, dedicated to meet the needs of residents in Nelson who have the
least choice in the housing market. For example: a proposed 30 mulW-unit
project with a 10% inclusionary housing policy can yield 3 units for
aordable housing. Upon negoWaWon with the developer and consultaWon
with the community, the 3 units can be secured with a housing
agreement. For this hypotheWcal example, the 3 units could be dedicated
to low-income families, with 3+ bedrooms. The administraWon of these
units can be channelled through a local housing provider to match the
units with a family in need. The family can apply the RAP rent supplement
to oset the rental costs.
14
Drafting new City policies

require research, drafting,
and consultation.
Inclusionary housing
policies are most
successful when the
development community
collaborates on the policy,
offering insights on
feasibility. Developers are
more likely to collaborate
the inclusionary policy
once its been adopted if
they had input into its
original creation.
Inclusionary zoning policy is specied in SecWon 903 of the Local

Government Act, and established as a condiWon of rezoning applicaWons.
3.
Increase Density through Mulcple Dwelling Unit Conversion Regulacons:

There are several neighbourhood policies in the OCP which speak to
mulWple dwelling unit conversions, whereby large single-detached homes
can be converted into duplexes or mulWple dwellings while retaining
character and original construcWon features of the home. From a
regulatory perspecWve, there is an opportunity to introduce mulWple
dwelling unit conversion regulaWons in the Zoning Bylaw. Provisions can
include minimum required habitable oor area for each addiWonal unit
created. The City of Nelson could review these opWons during a Zoning
Bylaw update or as a Bylaw amendment. Example municipaliWes that have
mulWple dwelling unit conversion regulaWons include Victoria, Vancouver,
and Ladysmith.
4.
Update Nelsons Heritage Strategy with the Provision of Oering

Heritage Revitalizacon Agreements: The City could update the 1994
Heritage Strategy with oering Heritage RevitalizaWon Agreements, that
could result in retaining historic homes while increasing density in
established neighbourhoods.
A Heritage RevitalizaWon Agreement (HRA), is a formal, voluntary wri]en
agreement negoWated between a property owner and the municipality. It
essenWally agrees that the home owner restores or conserves a heritage
building as a condiWon of receiving an approval that the property would
otherwise not be eligible for. These discreWonary approvals can include
varying uses and densiWes.
The HRA can vary or supplement a broad range of bylaws, including uses
and densiWes, in order to provide incenWves for the property owner to
preserve property of heritage value. It can vary density in exchange for
conserving or restoring heritage, without requiring a rezoning.
CommuniWes in BC that have introduced an HRA have been able to gently
increase density in established, mature neighbourhoods, while retaining
historic buildings and neighbourhood character. The City of New
Westminster has successfully implemented mulWple dwelling unit
conversions in their historic residenWal neighbourhoods through HRAs,
which have included the addiWon of secondary suites that otherwise
would not have been permi]ed.
The subject properWes can be either designated as protected heritage or
as property that the local government simply considers worth conserving.
Simply, an HRA can be used to deal with a property that has never before
received any formal recogniWon of heritage character or value. Open, the
HRA will result in those properWes not currently listed to be nally
registered as part of the HRA.
The agreement must be registered on Wtle, outlined under the Local
Government Act (LGA), SecWon 966, Part 27.
5.
Adopt a Standards of Maintenance Bylaw: The City of Nelson should

adopt, administer, and enforce a Standards of Maintenance Bylaw, which
outlines minimum maintenance standards for rental buildings and
structures. This acWon was recommended in 2010, and has been
incorporated as policy into the OCP, but has yet to be implemented. It
could improve the quality and condiWon of the rental housing supply
substanWally, including providing minimum standards for water, heat,
15
light, and venWlaWon. A number of municipaliWes have adopted Standards

of Maintenance Bylaws, including the District and City of North
Vancouver, New Westminster, Surrey, Delta, Richmond, and Terrace.
6.
Adopt a Family-Friendly Housing Policy: The City should explore adopWng

a family-friendly housing policy to support and encourage the
development of rental units with 3 bedrooms or more. This can be
incorporated as an OCP policy, and considered at a rezoning applicaWon
stage for mulW-unit development projects. This could address the shortall
of family-friendly rental units in Nelson, and also parWally address the
need for aordable family rental housing in the community by ensuring
the supply is available for low-income families to apply their rent
supplement. A word of cauWon: like all housing forms, encouraging the
development of a specic housing form/number of bedrooms should be
done modestly as to prevent over-building. It is recommended that the
City closely monitors unit absorpWon rates and revisit the policy if demand
changes.
7.
Adopt a Youth-Friendly Housing Policy: The City could adopt a youth-

friendly housing policy to support and encourage the development of
aordable rental housing for youth and young adults. This policy could
support the youth transiWon house concept that has received preliminary
discussions by community-based organizaWons (see Strategy #15). The
Youth-Friendly Housing Policy can be incorporated into the OCP.
The Youth-Friendly Housing Policy would be considered progressive, as
there are not other examples of this policy readily available. A potenWal
example on how to implement this policy is through preparing a Housing
Agreement with a new residenWal/mulW-unit project. The Housing
Agreement can specify the types of tenants and rent prices. For example,
with a 5% youth-friendly housing policy, a new 30-unit complex would be
required to dedicate 1 or 2 units for youth. The Housing Agreement would
specify these dedicated units for persons under the age of 24, within an
aordable rent range of $275 to $330 per month for a bachelor unit.
The Youth-Friendly Housing Policy can reach further on housing design
suited for youth, including proximity to youth-friendly ameniWes and
infrastructure. The specics of such policy could be explored by the City in
consultaWon and input from the community, including community-based
organizaWons and youth themselves.
8.
Adopt a Seniors-Friendly Housing Policy: The City should adopt a seniors-

friendly housing policy to support and encourage the development of
private market rental units that are suitable to seniors. This policy can,
over Wme, increase the supply of senior-friendly rental housing, whereby
seniors of all income levels could live auent seniors can pay market
rents, and low-income seniors can apply their SAFER rent subsidy to the
unit.
9.
Prepare an Accessible Housing Bylaw: Following the endorsement of the

Aordable Housing Strategy in 2010, the City of Nelson successfully
implemented a suite ready program for all new single-detached homes in
order to support and encourage rental housing. An Accessible Housing
Bylaw could achieve a similar objecWve: requiring new housing to be
adaptable for accessibility. This includes barrier-free/adaptable showers;
wider doors, stairs and hallways; reinforced walls and stairwells; among
16
other features. The City of Vancouver recently adopted a similar bylaw

that applies to all new mulW-unit development projects.
10. Support Alternacve Housing Forms + Construccon Techniques: The City
of Nelson already supports and encourages a mix of housing forms
through policy, and has been implemenWng the development of
alternaWve housing forms such as laneway homes. There is an opportunity
for the City to diversify the housing stock through alternaWve housing
forms and construcWon techniques, rst supported by policy in the OCP;
and second through permi]ed uses in the Zoning Bylaw. Preliminary
consideraWons include:
Shipping Containers: Shipping containers have been sourced as

alternaWve construcWon material to build housing, and is increasingly
being used to develop aordable housing projects. Policy could be
established to support this construcWon technique, followed by an
amendment to the Zoning Bylaw to add shipping containers as a
deniWon, as well as specic provisions outlined in the general
regulaWons secWon. A case study on the use of shipping containers for
housing is provided in Appendix C.
Live-Work Studios: ConsultaWon with community stakeholders

idenWed an opportunity to support live-work studios in Nelson,
parWcularly for live-work arWst studios that can further advance the
arts-scene in Nelson while providing aordable studio-living space for
arWsts. Preliminary locaWons for live-work studios were suggested for
the upcoming Railtown District, which could oer a smooth transiWon
from industrial uses to livable-commercial uses, housing studios with
proper venWlaWon and architectural inspiraWon. The Zoning Bylaw has
live-work studios as an established deniWon, and further specied in
the general regulaWons secWon. It is found as a permi]ed use under
the following zones: MU2, MU3, MU4. MU5, and CD3. Live-work units
could also be considered as part of comprehensive neighbourhood
plans, which could involve a Comprehensive Development Zone (CD-
Zone) to encourage this use.
Pocket Neighbourhoods: Pocket neighbourhoods are clustered

housing comprising of small single-detached homes, typically no
larger than 1,000 square feet. The Zoning Bylaw could support this
housing form by increasing the dwelling units per parcel, reducing
parking, and including a deniWon of pocket neighbourhoods and/or
cluster housing. This residenWal use could further support ideas
brought forward from the community, such as clustering housing on
underuWlized land. An example community with a pocket
neighbourhood can be found in Appendix C.
11. Improve Access to Rent Supplements (RAP, SAFER): The provincial

government has two programs where eligible low and moderate income
households receive a rent supplement SAFER (Shelter Assistance for
Elderly Renters), and RAP (Rental Assistance Program). Eligible households
may not be aware of this program, and could benet from an increase in
awareness and assistance with preparing their applicaWons. Awareness
can be championed by community-based organizaWons, outreach
workers, and the City, with support from BC Housing.
12. Promote the Home Adaptacon for Independence Program: The Home
AdaptaWon for Independence program (HAFI) provides nancial assistance
for low-income seniors and people with disabiliWes to support home
17
modicaWons to promote safe, independent living. There is an

opportunity to increase awareness to eligible households (both owners
and renters), as well as to landlords who can apply for more than one unit
and for common areas. In partnership with BC Housing, this program can
be promoted by community-based organizaWons, outreach workers, and
the City. Providing assistance to eligible households with preparing an
applicaWon could be oered by community-based organizaWons.
There are other programs for seniors that can be promoted by the City
and community-based organizaWons, mostly designed to assist seniors to
remain in their homes or rent aordably in the private market. These
include the Seniors Home Owner Grant, Property Tax Deferral Program,
BC Seniors' Home RenovaWon Tax Credit and, as menWoned earlier, the
Shelter Assistance for Elderly Renters program (SAFER).
13. Advocate for Increased Rent Supplements for Persons who have Mental
Health Issues: There are several examples throughout Canada where
oering rent supplements to persons with mental health issues, and
housing them through sca]ered sites/units, is an eecWve means to
maintain security of housing. This Housing First approach requires
nancial support from senior levels of government. MunicipaliWes and
community-based organizaWons have li]le opWons other than to advocate
for these supplements in order to implement the Housing First model.
14. Prepare a Discharge Planning Policy for At-risk Residents Leaving
Hospitals/Detainment: One of the challenges noted in the needs
assessment was the occurrences of individuals being discharged from
hospitals and police detachments into homelessness or inadequate
shelters. There are several issues related to unplanned discharge,
including worsening of mental health and addicWons issues if discharged
into homelessness rather than housing.
There is an opportunity to prevent homelessness and repeated cycles of
paWent intake and detainment if adequate discharge planning is
implemented. Specically, it is recommended that a coordinated eort be
iniWated between the local health authority, the Nelson Police
Department, social service agencies, and the City of Nelson (where
appropriate), on discharge planning paWents/detainees prior to their
release. The coordinaWon can idenWfy a temporary or permanent housing
unit for the resident upon discharge, transportaWon assistance if needed,
and access to support services.
The rst step to implemenWng aecWve discharge planning is to formulate
a discharge planning policy. This policy should describe the goals and
objecWves of discharge planning, outline methods to assess the immediate
needs of the client, steps in which to assist the client in nding aordable
housing, and outline a streamlined process to assist the client (i.e. match
with government benets and supplements should the client be eligible).
Successful discharge plans starts with the intake of a paWent or detainee,
in order to establish resources and services in advance of releasing the
client. Matching the client with a social worker is essenWal for navigaWng
through processes, systems, agencies, and assisWng with the transiWon.
The social worker can also assist with referrals, where required.
15. Invescgate the Opportunity to Develop an Addiccons Treatment Facility
with Dedicated Detox Beds: AddicWons issues in Nelson were raised by
community stakeholders. There is an opportunity to idenWfy a potenWal
18
site for an addicWons treatment facility with dedicated detox beds,

possibly near the hospital. A nancial feasibility study and business case
should be prepared to determine the regional need for an addicWons
treatment facility and detox beds, locaWon suitability of Nelson compared
to other communiWes in the region, and the overall viability of such
project. Partnerships would need to be facilitated with Interior Health and
other community-based organizaWons.
16. Encourage Landlord Discussions: One of the barriers to housing low-
income individuals, families, persons with disabiliWes, and persons who
are experiencing mental health and addicWon issues is breaking-down
misconcepWons and building support from the community, including
landlords of private market rental housing. Some communiWes oer grant
funding to facilitate landlord roundtable discussions, or workshops, to
educate landlords on dierent types of tenants, and how housing them
benets the community. These discussions also nd ways for landlords to
nd community support for responding to tenant issues and to prevent
evicWon-caused homelessness. Engaging with the West Kootenay Landlord
Society is a good group to partner with to iniWate this program.
17. Leverage Underuclized Land + Buildings Towards Increasing the Supply
of Aordable Housing: ConsultaWon with the community lead to the
idenWcaWon of several sites in Nelson that could be developed as
aordable housing. These opportuniWes include new-building on vacant
sites, redevelopment, upgrades or conversions.
The City, through its adopWon of policies, can encourage the development
of aordable housing should suitable development applicaWons be
presented. In advance of these applicaWons, the City should make these
policies widely available to the public, private sector developers, and non-
prot housing providers, in order to foster a wide-spread community
understanding of the Citys housing objecWves. It also allows the
community to ask quesWons and have dialogue prior to any formal
applicaWons. It may be worthwhile to facilitate targeted workshops with
the City, private developers, and non-prot socieWes on how they can
work together to build aordable housing in the community.
18. Develop Prototypes and Promote Demonstracon Inicacves: Originally
recommended in 2010, this strategy can showcase examples of good
aordable housing design and development. Examples and best pracWces
in housing forms are evident throughout BC. The City can draw on these
examples and develop housing prototypes that are best suited to Nelsons
streets and neighbourhoods. These prototypes could present examples of
innovaWve housing forms: front-back duplexes; zero-lot line housing;
coach houses on properWes with or without lanes. InformaWon guides can
be developed that present these examples and illustrate the possibiliWes
ability to create housing opWons, preserve character of a neighbourhood,
improve the streetscape and implement high quality architecture and
design.
To further demonstrate these types of innovaWon, a call for proposals
could be made for builders, developers and home owners interested in
working on innovaWve housing pilot projects. The City could then work
with selected developers and local architects to introduce demonstraWon
projects in certain neighbourhoods and expedite approvals. These
demonstraWon projects could be promoted through public displays, in the
local newspapers and on the Citys website. These pilot iniWaWves may
19
result in amendments to the Zoning Bylaw to further streamline the

approval process for such projects. Engaging local developers and
architects can also build local capacity for the community to respond to
local housing needs, and to foster innovaWve made in Nelson housing
soluWons.
19. Communicate Housing-related Informacon: Originally recommended in
2010, there are opportuniWes to share housing related programs and
iniWaWves to the public especially the rental assistance program for
seniors and low-income families.
Through its exisWng channels of communicaWon, the City can assist other
levels of government distribute informaWon about housing and tax
programs, helping to raise awareness and increase residents access to
potenWal grants, loans and other benets.
Specically, use the City of Nelsons website to provide housing
informaWon and to promote housing programs and iniWaWves. Also
disseminate informaWon about basic standards of maintenance to
landlords and tenants, and provide informaWon about the rights and
responsibiliWes of both tenants and landlords. These informaWon pieces
can be communicated through brochures and informaWon sheets.
20. Review and Monitor Aordable Housing Strategy in Fall 2017/Spring
2018: A progress report on the Aordable Housing Strategy will help to re-
evaluate prioriWes, and idenWfy new and emerging housing issues. As
standard housing indicator data relies heavily on StaWsWcs Canada Census,
it is recommended that the next Nelson Aordable Housing Strategy be
prepared following the next Census data release in late 2017 or early 2018
(census 2016 nal data release is typically 1 year following data
collecWon).
20
NEXT STEPS
IMPLEMENTATION
The following secWon outlines the proposed strategies that respond to housing
issues in Nelson. To facilitate implementaWon, a short, medium or long-term
Wmeframe is suggested. Specically:
Short-Term: Considered immediate strategies that can be addressed

within rst 1 to 2 years of adopWng the Aordable Housing Strategy.
Medium-Term: Strategies can be addressed between 2 to 3 years of

adopWng the Aordable Housing Strategy.
Long-Term: 3+ years, with components being planned within 1 to 3

years of adopWng the Aordable Housing Strategy.
21
Table 5: Strategy ImplementaAon Timeline

TIMELINE
STRATEGY
Short-
term
Mediu
m-term
Long-
term
Adopt Inll Housing Policy
Review and Establish Inclusionary Policy + Inclusionary Zoning to be implemented through

Neighbourhood Planning and MulN-Unit Development Projects
Increase Density through MulNple Dwelling Unit Conversion RegulaNons
Update Nelsons Heritage Strategy with Provision of Oering Heritage RevitalizaNon

Agreements
Adopt a Standards of Maintenance Bylaw
Adopt a Family-Friendly Housing Policy
Adopt a Youth-Friendly Housing Policy
Adopt a Seniors-Friendly Housing Policy
Prepare an Accessible Housing Bylaw
10
Support AlternaNve Housing Forms + ConstrucNon Techniques
11
Improve Access to Rent Supplements (RAP, SAFER)
12
Promote the Home AdaptaNon for Independence Program
13
Advocate for Increased Rent Supplements for Persons who have Mental Health Issues
14
Prepare a Discharge Planning Policy for at-risk residents leaving hospitals/detainment
15
InvesNgate opportunity to Develop an AddicNons Treatment Facility with Dedicated Detox Beds
16
Encourage Landlord Discussions
17
Leverage UnderuNlized Land + Buildings Towards Increasing the Supply of Aordable Housing
18
Develop Prototypes and Promote DemonstraNon IniNaNves
19
Communicate Housing-Related InformaNon
20
Review and Monitor Aordable Housing Strategy in Fall 2017/Spring 2018
22
CLOSING COMMENTS
The City of Nelson and community-based organizaWons have made signicant

progress in encouraging diverse housing choice and aordable housing in the
community, ranging from piloWng laneway housing to the development of
Anderson Gardens a 33-unit housing complex for low-income seniors and
persons with disabiliWes. The updated OCP also includes new language to
encourage the development of aordable housing, and other important
iniWaWves such as supporWng the establishment of a Standards of Maintenance
Bylaw.
To conWnue down this road, the City of Nelson will need to dedicate Wme and
resources to the housing strategies, including advocaWng to senior levels of
government for addiWonal allocaWon of rent supplements, partnering with
non-prot housing providers and private developers in the creaWon of
aordable housing units, as well as monitoring and reporWng on the Citys
progress towards the goals and objecWves of this Strategy.
23
24
APPENDIX A: TERMS & DEFINITIONS
ADEQUATE HOUSING: means dwellings reported by residents as not requiring

any major repairs.
AFFORDABLE HOUSING: means a safe, secure, accessible living environment
that allows people to live within their income level, and maintain quality of
life. Aordable housing may take a number of forms that exist along a
conWnuum from emergency shelters, to transiWonal housing, to mass-market
rental (also known as subsidized or social housing), to formal and informal
rental, and home ownership. According to Canada Mortgage and Housing
CorporaWon, for housing to be aordable, a household should not spend more
than 30% of gross income on shelter costs.
CORE HOUSING NEED: means a household living in a housing that falls below
at least one of the adequacy, aordability or suitability standards and it would
have to spend 30 percent or more of its total before-tax income to pay the
median rent of alternaWve local housing that is acceptable.
DENSITY BONUSING: is a municipal tool, permi]ed under the Local
Government Act (LGA), that permits bonus density in zoning in exchange for
the provision of ameniWes or aordable housing. This means that in specied
zones, a developer can build to a higher density if a community amenity
contribuWon or aordable housing units are provided as part of the project to
the municipality.
DETACHED HOME: As per CMHC, a free-standing home for one family, not
a]ached to a house on either side.
DUPLEX: As per CMHC, a duplex is a building containing two single-family
homes, located one above the other.
GROSS DEBT SERVICE RATIO: means the raWo that measures the percentage
of gross annual income required to cover annual payments associated with
housing and all other debt obligaWons, such as payments on car loans, credit
cards, personal loans, etc. (CMHC, Debt Service Formula, 2014).
25
HILs (High-Income Limits): Housing Income Limits represent the income

required to pay the average market rent for an appropriately sized unit in the
private market. Average rents are derived from CMHCs annual rental market
survey, done in the fall and released in the spring. The size of the unit required
by a household is governed by federal/provincial occupancy standards. In
Nelson, the 2014 HILs was:
Bachelor Unit: $25,000
1 Bedroom Unit: $26,000
4+ Bedroom Unit: $49,500
*seniors rental housing cuto has a higher high-income limit than non-senior
households. In Nelson, their cut-o is $57,000 gross income.
HOMELESSNESS: is the situaWon of an individual or family without stable,
permanent, appropriate housing, or the immediate prospect, means and
ability of acquiring it.
HOUSING CONTINUUM: is a visual concept used to describe and categorize
dierent types of housing, from non-market to market housing. Housing
conWnuums are developed to assist with planning and program development
and are usually tailored to the community or region in quesWon. On the non-
market end of the conWnuum are emergency services and transiWonal housing,
which open require the most public funding, moving towards supporWve and
social housing opWons in the middle of the conWnuum and then towards
independent housing opWons on the right, where housing is typically provided
by the private market.
HOUSING FIRST: places priority on a rapid and direct move from homelessness
to housing, instead of requiring people to graduate through a series of steps
before ge|ng into permanent housing. There are four core principles to
Housing First:
Consumer choice and self-determinaWon;
Immediate access to permanent housing with the support necessary

to sustain it;
Housing is not condiWonal on sobriety or program parWcipaWon; and
social inclusion, self-suciency and improved quality of life and

health.
HOUSING OCCUPANCY STANDARDS: means housing must have enough

bedrooms for the size and make up of a household. This means a home needs
to have enough bedrooms for each cohabiWng adult couple, each adult 18
years or older, each child under 18 years old (two children of the same gender
can share a room; two children under ve years old of opposite genders can
share a room).
26
MARKET RENTAL HOUSING: means the private rental market that provides
the majority of rental housing aordable to households with low to moderate
incomes. This can include purpose-built rental housing as well as housing
supplied through the secondary rental market such as basement suites, rented
condominium units, or other investor-owned houses/units.
NON-MARKET HOUSING: means aordable housing that is owned or
subsidized by government, a non-prot society, or a housing cooperaWve;
whereby rent or mortgage payments are not solely market driven.
RENTAL ASSISTANCE PROGRAM (RAP): is operated by BC Housing, providing
eligible low-income working families with cash assistance to help with their
monthly rent payments. To qualify, families myst have a gross household
income of $35,000 or less, have at least one dependent child, and have been
employed at some point over the last year.
ROW HOUSE: As per CMHC, also called a townhouse, a row house is one unit
of several similar single-family homes, side-by-side, joined by common walls.
SCATTERED SITE: is a Housing First approach to help low-income individuals
access a self-contained rental unit (i.e. private apartment or secondary suite)
and receive a rent subsidy to o-set the costs. Rather than oering housing in
dedicated buildings to a targeted populaWon, this approach results in placing
low-income individuals throughout the community. For situaWons where the
tenant has mental health issues, oering a rent subsidy plus support can be
applied. An example is the At Home/Chez Soi program in Vancouver, where
200 sca]ered site units were oered for persons living with severe mental
illness.
SEMI-DETACHED HOME: As per CMHC, this is a home for one family, a]ached
to another building on one side.
SHELTER AID FOR ELDERLY RESIDENTS (SAFER): is operated by BC Housing,
and helps make rents aordable for BC seniors with low to moderate incomes
by providing monthly cash payments to subsidize rents for eligible BC residents
who are age 60 or over, and who pay rent for their homes. Seniors who own
their homes are not eligible.
SUITABLE HOUSING: means housing that has enough bedrooms for the size
and make-up of resident households, according to NaWonal Occupancy
Standard (NOS) requirements.
27
28
APPENDIX B: ACHIEVEMENTS
SINCE 2010
ACHIEVEMENTS SINCE 2010

The City of Nelson has made several achievements since endorsing the
Aordable Housing Strategy in 2010. These include establishing a Housing
Commi]ee and Housing Reserve Fund, and incorporaWng new housing policies
in the updated Ocial Community Plan (OCP) in 2013. The following table is a
list of the recommended housing acWons from the 2010 Strategy, and the
status of implementaWon.
29
Table 6: 2010 Housing AcAon Items Status of ImplementaAon

Housing Objeccves + Accons
Implementacon Status
1. Provide a clear policy and vision for aordable housing

Adopt Strategy in principle
Complete
Dram Policy Statement
Complete
2. Increase the supply of supporcve housing

Establish a working group
Complete
Foster partnerships
Complete
3. Ensure safety standards in rental housing

Develop a Standards of Maintenance
Bylaw
Policy
Support the development of Crime

Free MulN-Housing Program
Policy
Review health and life safety

standards
Now part of Standards of Maintenance

Bylaw
4. Encourage the development of new rental housing

Review secondary suites bylaw
Complete
Introduce suite ready policy
Complete
Dram policy for inll housing - coach

houses, etc.
Regulacon under review / approval on site

by site basis
Integrate incenNves for purpose-

built rental
Not found - facilitate accessory rental units

in duplexes and townhomes are against
building code now, but can be oered
through Mulcple-Dwelling Unit Conversions
5. Support the development of a mix of housing opcons

Explore inll/intensicaNon in low +
medium density areas
Complete
Establish a density bonus policy
Under review
6. Promote innovacve approaches and design

Develop prototypes of housing forms
Not found
Promote pilot iniNaNves as

demonstraNon
Not found
7. Use nancial tools and incencves

Create a housing reserve fund
Complete
Lease City owned land
Not complete - Limited available City-

owned lands
30
Housing Objeccves + Accons
Implementacon Status
8. Support external groups

Dedicate sta Nme
n/a
Expedite approval process
Policy
Waive fees, charges or provide grant

in-lieu
9. Promote exiscng programs and resources

Dedicate web page to links and
informaNon resources
Not complete
Make informaNon available on best

pracNces
Secondary Suites only / in progress
10. Review and monitor strategy regularly

Produce a progress report on a
regular basis
31
32
APPENDIX C: BENCHMARK
STRATEGIES
CREATING A MORE ACCESSIBLE COMMUNITY FOR

PERSONS WITH DISABILITIES
City of Vancouver
Building Bylaw No.10908
In September of 2013, the City of Vancouver approved the Building Bylaw
(VBBL) No. 10908, to take aect in January 2015. Formally referenced as the
BriWsh Columbia Building Code, the amended bylaw is to be referred to as the
Building Bylaw wherever it appears.
Figure 3.8.5 of the Building Bylaw provides legislaWon regarding newly
amended Adaptable Housing Requirements. These requirements focus on
entrance doors to dwelling units; interior doors, corridors, and stairs in
dwelling units; and kitchens in dwelling units among many other dwelling unit
a]ributes. The concept of adaptable housing is propelled by the increasing
number of individuals over 65 years in age. This demographic faces greater
mobility challenges and isolaWon in current built form.
RegulaWons seek to increase the ability of senior to age-in-place or overcome
short-term mobility challenges at home. Adaptable housing strives to suit the
needs of a large spectrum of residents, modifying the built form through
minimal, cost-eecWve renovaWon. More detail-orientated regulaWons include
wrist-friendly door hardware; number and placement of peepholes; and
hallway and doorway widths.
Adaptable housing construcWon is cost eecWve, as iniWal construcWon costs
open account for specialized features such as reinforcements and grab bars,
whereas insWllaWon through renovaWon can increase insWllaWon costs ten fold.
The availability of suitable housing enables senior residents to age in place
rather than seeking supporWve housing: providing cost eciencies while
negaWng stress related to displacement.
33
HOUSING FIRST: SITE SCATTERED RENT

SUPPLEMENT PROGRAM FOR CHRONICALLY
HOMELESS, AND PERSONS WITH MENTAL HEALTH
+ ADDICTIONS ISSUES
At Home/Chez Soi
Canada-wide
The At Home/Chez Soi Project was set forth in 2008 as a ve year research
demonstraWon project, looking to idenWfy eecWve approaches to housing the
chronically homeless in Canada. Supported by the Federal Government
through a $110 million investment, the project took place in ve locaWons
across the country: Vancouver, Winnipeg, Toronto, Montreal, and Moncton.
IdenWfying the strengths and weaknesses of exisWng approaches, the project
created comparison through the Housing First (HF) model. This is a recovery-
orientated model by which clients are provided housing and support services
prior to a]aining sobriety or mental stability. This model funcWon on the basis
that through the provision of support services and housing stability, recovery
from chronic illness increases.
Shipping container housing before

(source: ANra)
In Vancouver, ninety project parWcipants were accommodated at HF units

sca]ered throughout the City. This included a variety of neighbourhoods from
which various buildings could allocate up to 20% of total building units to the
project. Site sca]ered units had many posiWve outcomes, including a decrease
in emergency department services and fewer numbers of registered legal
sentences.
The cost of unaddressed homelessness was a primary area of interest
throughout the At Home/Chez Soi Project. It is esWmated that current levels of
homelessness cost the country seven billion dollars per year. Working from
this gure, the project sought to reduce federal spending through the HF
model. HF, site sca]ered intervenWon in Vancouver resulted in a total cost of
$28,282 per high need person and $15,952 per moderate need person, per
year. This resulted in a $24,190 reducWon in cost of supporWng high needs
parWcipant, while it resulted in an increase of $2,667 for moderate need
parWcipants. Many variables led to the oset of costs, including incarceraWon
and hospitalizaWon.
Shipping container housing amer

(source: ANra)
ALTERNATIVE HOUSING FORMS + CONSTRUCTION

TECHNIQUES: SHIPPING CONTAINERS
Acra Womens Resource Society
Oneesan Housing for Low-Income Women
The AWra Womens Resource Society opened their newest housing
development, Oneesan, in August 2013. The development consists of 12
single-units, providing accommodaWon to women at risk of homelessness, six
of which must be over the age of 50. The development was made possible
34
Shipping container interior

(source: ANra)
through the partnership of AWra Womens Resource Society, BC Hydro, CMHC,

as well as community partners.
Roberts Creek Co-Housing, Aerial

(source: Roberts Creek Co-Housing
Website)
Roberts Creek Co-Housing, 2

Bedroom homes (source: Roberts
Creek Co-Housing Website)
New wave design and construcWon techniques propelled the project: recycled
shipping containers providing the basis for the development. Zoning for the
site, located at 120 Jackson Ave, Vancouver, falls within the Downtown
Eastside/Oppenheimer zone (DEOD). IdenWed as a medium density, mixed-
use zone, the three storey self-contained development suites the community.
The project sought to provide livable units that were both sustainable and cost
eecWve. The nancial implicaWons of an alternaWve construcWon technique
were at the forefront of the project, proponents maintaining a thorough cost
analysis throughout both planning and construcWon phases. The following
factors were idenWed as having notable inuence on cost: site prole, project
scale, suite size, and construcWon/durability. The Oneesan development
provided cost savings of $22 per sq. p. at the Wme of opening. Cost that were
site specic or one-Wme research and development costs were deducted in
obtaining this gure. Inclusive of total expenditures the project cost
$1,093,061.
Having received the Real Estate of BCs 2014 Land Award, the project has been
deemed a success by both tenants and the real estate industry. The project
has proven to be aestheWcally pleasing while providing much needed
aordable housing.
ALTERNATIVE HOUSING FORMS + CONSTRUCTION

TECHNIQUES: POCKET NEIGHBOURHOODS
Roberts Creek
Co-Housing
Roberts Creek Co-Housing, Duplex

(source: Roberts Creek Co-Housing
Website)
Co-housing, also referred to as clustered housing, is a design movement that is

gaining momentum. The concept builds on the ideas of community and
sustainability. Acquired through the design of clustered small lot residences
built surrounding a communal space, co-housing promotes interacWon as well
as preservaWon of green space. While co-housing developments can vary in
ownership and rental models, commonly homes are owned privately and
faciliWes are shared among residents. Private developments can place
restricWons on age and/or children, however, most new developments seek
intergeneraWonal and inclusionary communiWes.
Roberts Creek Co-housing is found in the Sunshine Coastal region of BC. The
development consists of 31 homes, a mix of single-detached and duplex
construcWon. The development sits on a 15 acre lot, of which only eight have
been used to create the housing complex, leaving the remaining landscape for
recreaWon and leisure. The development is legally structured as a bare-land
strata, with each resident owning their home and having a common share in
shared faciliWes and land. Shared faciliWes at Roberts Creek include a dining
room, a childrens play room, a workshop, and a mulWpurpose room among
35
others. Cost of home ownership within co-housing developments is

approximately at market rate and is rarely subsidized. However, quality of
construcWon is open greater than industry standard and residents are
provided the opportunity to decide appropriate costs as a group and acrue
buying power.
Individual lots sizes at Roberts creek are smaller than the local standard,
averaging 3,800 squares feet. Flexible zoning is required in the development of
co-housing communiWes, as lot size and setbacks open dier from
standardized zoning. The District of Summerland has recently created a new
zone accommodaWng pocket neighbourhoods: the ResidenWal Pocket
Neighbourhood Zone (RPN). The RPN zone provides a minimum development
site area of 1,300 metres squared, with a maximum of 4.047 metres squared.
In line with current best pracWces, co-housing supports and increase in density
while maintaining green space.
Hollyburn Mews, Site Design

(source: Geller Developments)
Hollyburn Mews
West Vancouver
Hollyburn Mews is a new development in West Vancouver that is inspired by
the pocket neighbourhood concept, but altered in order to t within the local
land use designaWons and zoning of the municipality.
The development is a collecWon of duplexes and laneway homes. The duplexes
are side-by-side fronWng the street, and the laneway homes are located to the
rear of the lot. Parking for the duplexes are located in the rear of the lot as
well, and parking for the laneway homes are a]ached to the laneway home
themselves. Each home has a dedicated outdoor amenity space. In this
example, the lots are straWed, and each home owner pays a maintenance fee
of $128 per month.
The duplexes and the laneway homes have idenWcal oor plans, except the
lane way homes are a small version of the duplexes. Each home has the main
living area on the ground oor (living room, kitchen, dining), with double
master bedrooms upstairs, and a recreaWon room and ex space in the
basement.
The units at Hollyburn Mews sold at values less than neighbouring homes due
to being on smaller lots, oering a more aordable home ownership opWon to
the community.
King Edward + Inverness Street

Vancouver
This no name inll development in east Vancouver has a similar design to
Hollyburn Mews. This project turned two standard single-detached lots and
redeveloped it into 6 units: two front-back duplexes at the front of the lot, and
two laneway homes at the rear of the lot.
These homes oered a variety of bedroom sizes to accommodate dierent
family conguraWons. The laneway homes are each 2-bedrooms. The back
duplex units each have 4-bedrooms, while the front duplex units each have
36
Hollyburn Mews, Duplex

(source: Geller Developments)
3-bedrooms. In addiWon, the 4-bedroom duplexes each had illegal secondary

basement suites.
Parking for the laneway homes were a]ached to the lane way homes
themselves. Dedicated parking to the back duplexes were located at the rear
of the lot as well. The front duplexes had on--street parking.
The lot is straWed, and each unit, including the laneway home, can be
purchased and owned. The price points for these homes carried from the 2-
bedrooms to the four--bedrooms, oering opWons to aspiring homeowners.
Similar to Hollyburn Mews, these newly constructed units were listed well
below neighbouring houses due to the compact small lots and a]ached forms,
oering a more aordable home ownership opWon in a well established
neighbourhood close to ameniWes and transit.
King Edward + Inverness Aerial Pre-
Development
STANDARDS OF MAINTENANCE
City of North Vancouver
Rental Premises Standards of Maintenance and Prevencon of
Nuisances Bylaw No. 7931
King Edward + Inverness Back Duplex

(source: MLS)
Bylaw No. 7931 of the City of North Vancouver outlines the obligaWons of a
rental unit owner, within the district. The overarching maintenance of
property includes foundaWons, exterior doors and windows, and roong
among other regulaWons with regard to structural integrity. Also listed are
more variable, yet fundamental, provisions including plumbing, lighWng,
venWlaWon, and pest control.
Part 4 of the bylaw outlines maintenance standards for lodging houses by
which all units that are used as sleeping, housekeeping, and dwelling units
must comply. RegulaWons within Part 4 describe the responsibiliWes of the
lodging house owner and operator with regard to lodging provisions: this
includes the number of sinks, washrooms, and square footage of sleeping
units.
The bylaw reviews the registraWon of tenants through screening, in an a]empt
to prevent or abate nuisances. Further described in part 5 of the bylaw,
protocol on repeated nuisances, warnings and fees are established.
King Edward + Inverness Front

Duplex with laneway home behind
(source: MLS)
The City Building Inspector may order any persons to comply with the
regulaWons stated within. All provisions listed within the bylaw must be
adhered to, in avoidance of nancial penalty and/or incarceraWon. The
adaptaWon of a standard of maintenance bylaw helps ensure that exisWng
rental stock is maintained and preserved.
37
MULTIPLE DWELLING UNIT CONVERSIONS

City of Victoria
Housing Conversion Regulacons
The City of Victoria has adopted housing conversion regulaWons as of July
2014. A house conversion as dened by the City, infers a change in use:
converWng from a single detached home or duplex to a duplex, mulWple
dwelling, boarding house, or other. The regulaWons set forth by the City in
schedule G of the zoning bylaw, establish the zones where house conversion
are applicable, along with restricWons and technical specicaWons. Theses
include the minimum oor area permi]ed for self--contained dwelling units
and individual dwelling units, among others.
Restored Je Residence from single-

detached to mulNple straNed units
(source: Ankenman Marchand
Architects)
MulWple dwelling conversions operate outside of standard zoning regulaWons,

permi|ng increased density. Examples of conversion can be found commonly
in older buildings, built larger than modern development. In Vancouver, the
Jes Residence has been recognized for increasing residenWal density through
its renovaWon and redevelopment. The 1907 dwelling now accommodates 17
rental units, that are adverWsed bellow market rental. The developer was also
permi]ed to construct an addiWonal six rowhouses on the lot, an excepWon to
the RT-5 zone, further increasing the availability of rentals. Through unit
conversion, neighbourhood character can be maintained while creaWng
invisible density.
Jes Residence
City of Vancouver
The Jes Residence is a historic single-detached Victorian home located in
Vancouver. For years, this landmark building was neglected and maintenance
was deferred, unWl a developer bought the property and planned to demolish
the house and replace it with higher density mulW-unit housing.
Residents of the neighbourhood shared strong senWment for the building, and
requested the City to nd a way to retain the historic house. From the
developers perspecWve, it was more costly to restore the home than to
demolish it and redevelop the site.
The City implemented several tools to solve this housing issue. They rst
oered density bonusing to allow for townhouse development adjacent to the
site (also owned by the developers), as a way to oset the cost of restoring the
home. They also allowed for the exisWng heritage home to be converted into
straWed units through their mulW-unit conversion regulaWons. The house was
eventually restored and converted into 7 units - all were 2 bedrooms except
the top oor which was a 1 bedroom unit. They were straWed into
condominiums for purchase. Adjacent to the site were 21/2 storey town homes
ranging from 3 to 4 bedroom units.
38
New townhouse development

adjacent to Jes Residence achieved
through density bonusing
(source: Ankenman Marchand
Architects)
HERITAGE REVITALIZATION AGREEMENTS

Burr Street
New Westminster
Burr Street HRA Development, Aerial
Relocated heritage house on

subdivided parcel (source: MLS)
The City of New Westminster has uWlized the Heritage RevitalizaWon

Agreement (HRA) as a means to restore and conserve heritage property while
also encouraging the by product of inll development, including increasing the
number of secondary suites and subdividing properWes for inll/compact lots.
An example of using an HRA is the recent project on Burr Street. The subject
property was an old heritage home on a large lot. The property owner wanted
to subdivide the lot and sell the other lot for prot. Subdivision was not
permi]ed under the current Zoning and Subdivision and Servicing Bylaw.
However, the property owner entered into an HRA with the City to restore the
current house, as well as to inll the property with a home that had a rental
suite. The property owner relocated an older heritage home from another part
of the city to the subdivided parcel, placing it on a new foundaWon that had a
high enough ceiling height and window allowance to permit a legal suite.
The result of this project was 2 restored heritage homes, one of which was
sold well below neighbouring homes because it was on a compact lot. It also
created 1 new rental unit with the legal secondary suite. The City bene]ed by
adding 1 aordable home ownership home, 1 new rental suite, 2 restored
heritage homes, and inll development that eciently uses exisWng servicing
and infrastructure. The property owner bene]ed from the prot generated
by selling the subdivided parcel.
New foundaNon and legal secondary

suite in relocated inll heritage
house (source: MLS)
39
40
APPENDIX D: LEGISLATIVE
CONTEXT
FEDERAL + PROVINCIAL POLICIES + PROGRAMS

The policies and programs of the federal and provincial governments aect
aordability in many ways. UnWl 1992, the federal government was the major
funder of new social and co-operaWve housing. When federal funding for new
subsidized housing was eliminated as a decit-reducWon measure, provincial
and municipal governments began to take a much more hands-on approach to
housing needs.
In BC, the provincial government has been both proacWve and facilitaWve in
the broad sphere of housing. In relaWon to aordable housing, the government
is involved in several ways:
Using tax measures to inuence housing aordability, including the

Home Owner Grant, Property Tax Deferment Program, Families with
Children Tax Deferment Program and the First Time Home Buyers
Property Transfer Tax ExempWon Program;
Channeling funding for housing and rent assistance to seniors and

working families through BC Housing;
Undertaking policy research related to housing; and
Amending legislaWon to provide local government with more tools

that can be used in relaWon to aordable, rental, and special needs
housing.
BC PROPERTY TAX MEASURES

In BC, the Ministry of Small Business and Revenue administers several
programs designed to assist homeowners.
The Home Owner Grant helps reduce the amount of residenWal

property tax BriWsh Columbians pay. Home owners with an assessed
value of up to $1,100,000 may claim 100% of this grant. The Home
41
Owner Grant is reduced on higher-value properWes by $5 for each

$1,000 of assessed value over $1,100,000. The basic grant is
eliminated on homes assessed at $1,164,000. Residents may qualify
for a higher grant if they are a senior, a veteran, a person with a
disability, or someone living with a person with a disability.
The Property Tax Deferment Program is a loan program that allows a

home owner to defer annual property taxes if they meet the eligibility
criteria the principal criterion being age (55+).
The Families with Children Tax Deferment Program is a loan program

that allows a home owner to defer annual property taxes if they are
supporWng a child under specic circumstances: (i) a child is under the
age of 18 and living with the home owner, or does not live with the
home owner but child support is being paid; (ii) a child or stepchild of
any age is a]ending an educaWonal insWtuWon; (iii) a child or stepchild
of any age has a disability; or, (iv) a chid or stepchild of any age has a
sever mental or physical impairment that requires assistance/
supervision.
The First Time Home Buyers Property Transfer Tax ExempWon

Program, introduced in 1994, is designed to help BriWsh Columbians
buy their rst homes through an exempWon or parWal exempWon from
the Property Transfer Tax if the fair market value of the home is less
than a threshold amount. As of 2014, the threshold was set at
$475,000, with a proporWonal exempWon up to $500,000.
BC HOUSING PROGRAMS
BC Housing is a provincial agency that plays a vital role in helping meet the
housing needs of BCs most vulnerable residents. The agency works with non-
prot organizaWons and local governments throughout BC to increase housing
opWons via capital and operaWng programs for low-income households.
However, owing to federal and provincial budget restricWons, the actual
number of new-build rent-geared-to-income housing units has been relaWvely
small over the past 15 years, parWcularly outside major urban centres.
BC Housing also manages two rent assistance programs: Shelter Aid for Elderly
Renters (SAFER) and the Rental Assistance Program (RAP). While the SAFER
program has been in place for decades, the RAP program was introduced in
2006 to help working families nd suitable rental housing.
In addiWon to the SAFER program, BC Housing oers other housing programs
to help seniors age-in-place, or to secure aordable and suitable housing:
42
Home AdaptaWons for Independence. This program oers nancial

assistance to seniors for home modicaWons that improve
accessibility, and promote safe and independent living. This program
is oered for low-income people (of any age, This program is oered
for low-income people (of any age, including seniors) with a
permanent disability or diminished ability, and who are living in a
home they own. Renters are also eligible, but would need the
landlord to apply on their behalf.
Seniors Rental Housing (SRH). This program provides long-term

aordable housing for seniors, using rent-geared-to-income (RGI)
calculaWon in order to oer rents at 30% of gross income. The
dierence between SAFER and the dedicated Seniors Rental Housing
is that SAFER is a]ached to the individual, who can apply the subsidy
to any unit in the private market, while SRH is a]ached to a specic
unit. Open, seniors will apply to both the SAFER and SRH programs at
the same Wme in order to receive SAFER benets while waiWng for a
permanent SRH unit to become available. In addiWon, seniors over the
age of 55 are eligible for the SRG program, while SAFERs eligibility
begins at age 60.
The Seniors Rental Housing Program uses the SRH Housing

Income Limits as a guide for eligibility. For Southern BC, the limit
is $57,000 (gross income).
Programs similar to SRH are the Assisted Living Program and Seniors
SupporWve Housing Program. These programs cater to seniors who
require on-site support.
PROVINCIAL HOUSING LEGISLATION

From a legislaWve context, BC has both regulatory and empowering statutes
related to housing. In summary:
The Local Government Act sets out specic requirements (e.g. Ocial
Community Plan), and opportuniWes (e.g. amenity zoning) in Part 26.
The Community Charter provides municipaliWes with exibility to use

their regulatory powers in ways that responds to local issues and
prioriWes. If housing is a signicant local issue, municipal councils can
be proacWve.
The Building Code 2012 contains specic provisions for new and
exisWng secondary suites.
The Manufactured Home Park Tenancy Act sets out provisions related
to the rights and obligaWons of tenants and landlords.
The Strata Property Act comes into play in relaWon to converWng

rental housing in strata buildings.
LOCAL GOVERNMENT ACT

The Local Government Act (LGA) requires an Ocial Community Plan (OCP) to
include housing policies of the local government that address aordable,
rental, and special needs housing. The LGA provides exibility to allow higher
density (amenity zoning) in return for the provision of aordable and special
needs housing. This enables a local government to enter into a registered
housing agreement with a landowner that designates the occupancy of the
housing units in terms of tenure, classes of person, administraWon of the
housing units, rents and lease, sale or share price, and allows for variaWon of
development cost charges (DCCs) according to dierent sizes, or number of
lots.
43
The LGA also gives a local government the authority to waive or reduce a DCC
for non-prot rental housing, including supporWve living housing, for-prot
aordable rental housing, and a small lot subdivision designed to reduce
greenhouse gasses (SecWon 933).
The LGA also sWpulates that the BC Building Code applies to all municipaliWes.
Part 9.36 of the Code applies to secondary suites, and was incorporated
following a comprehensive policy review, resulWng in reduced requirements
for things such as ceiling heights, and re safety provisions. Some
municipaliWes have opted to establish their own framework of equivalent
requirements for exisWng suites, where it is open dicult to achieve the
requirements of the Code, and is in the interest of facilitaWng their legalizaWon.
COMMUNITY CHARTER
The Charter gives municipaliWes the authority to legislate in relaWon to a
number of broadly stated spheres of jurisdicWon. SecWon 224 sets out clear
authority for a municipality to provide a property tax exempWon for a specied
term where land or improvements are owned or held by a charitable,
philanthropic, or other not-for-prot corporaWon.
STRATA PROPERTY ACT

The legislaWon comes into play regarding rental housing. In order for an owner
to convert an exisWng rental building into strata lots, approval of the approving
authority must be received. The Act specically allows an approving authority
to consider, among other things, the priority of rental accommodaWon over
privately-owned housing in the area. If the approving authority approves the
conversion, it may impose condiWons.
BEYOND THE LEGISLATION

Partnerships: Philanthropic Sector, Non-Prot Housing SocieWes + Private
Market Developers Outside of the specic provisions of the Community
Charter and the Local Government Act, local governments in BC have gradually
become more acWve in housing. Together with health and social service
providers, local governments have the earliest warning and clearest
understanding of a communitys housing needs. They are also a logical enWty
to facilitate mulW-stakeholder discussions. Larger BC municipaliWes have taken
the step of assigning sta to work specically on housing-related ma]ers. In
most BC municipaliWes, however, limited resources preclude doing this and,
instead, they must make progress incrementally, balancing compeWng
community interests, and Council prioriWes.
Partnerships have proven to be the best way to increase the supply of
aordable housing. With limited government funding and borrowing, there
has been an interest in exploring other funding sources, including the
philanthropic sector and local government. In BC< community organizaWons
such as the Vancouver FoundaWon, the BC Real Estate FoundaWon, and other
foundaWons have been a source of grants for some housing providers.
44
Other forms of local government contribuWons to partnerships include

reduced fees and charges, and fast-tracking approvals. Rarely do local
governments provide any cash contribuWon, or become involved in mortgage
nancing.
Local governments someWmes become partners with a non-prot housing
provider, and BC Housing to build (or acquire) more housing to meet the
needs of people who live or work in the community. IncorporaWng a non-prot
housing society can be achieved under the Society Act of BriWsh Columbia, in
which the purpose is to be of a philanthropic, social or related nature. It is
essenWal to understand that the greatest component of non-market rental
housing is the operaWng subsidy (monthly subsidy to make up the shortall
between rents and actual operaWng costs, including mortgage payments). BC
Housing is the primary source of operaWng subsidies and the agency must
target its resources to specic groups, usually those in greatest need with the
least housing choice. In recent years, BC Housings supply-side programs have
been Wghtly focused on people who are homeless or at-risk of homelessness.
In the last several years, there has been a renewed interest in creaWng
partnerships to assist people with minimal equity to become home owners.
There are relaWvely few examples of this in BC. For a pilot project in Salmon
Arm, BC Housing is selling 11 two-bedroom strata apartments to qualied
buyers. The Canadian Mental Health AssociaWon is also administering a home
ownership program.
Private market developers are also potenWal partners, parWcularly in projects
that involve home ownership. Some developers specialize in providing housing
designed for families and individuals with modest incomes, and low or no
down payment.
Lending insWtuWons can also be viewed as potenWal partners. Through
innovaWve mortgage products (e.g. laddered mortgages, springboard
mortgages, second mortgages), individuals and families with good credit
records, but limited cash ow, can ease their way into home ownership. Local
credit unions and bank branch oces are also a potenWal source of advice;
some oer home ownership literacy programs.
Further, local governments could provide either land or sta resources, or a
combinaWon of both, to facilitate the development of aordable housing. A
few local governments have a long history of land banking for aordable
housing (e.g., Saskatoon, Vancouver), but most local governments have few
and sca]ered land holdings, and these are not always well located for housing
purposes. However, if land is a possible contribuWon to a partnership, it is
signicant whether in the form of a long-term lease at below-market rates,
or a discounted sale.
45
Suite 585, 1111 West Has/ngs Street, Vancouver BC V6E 2J3 | 604.687.2281
5th Floor, 844 Courtney Street, Victoria BC V8W 1C4 | 250.383.0304
Suite 300, 160 Quarry Park Boulevard SE, Calgary AB T2C 3G3 | 403.336.2468
www.cityspaces.ca
Subject Property
Location Map
Lot4, Block 91, Plan NEP9500
1:500
DB
Planning-C

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THE CORPORATION OF THE CITY OF NELSON

REQUEST FOR DECISON

Land use redesignation

IMPACT ON SUSTAINABILITY OBJECTIVES AND STAFF RESOURCES:

May 4th, 2016

Kootenay Christian Fellowship

HOUSING STRATEGIES UPDATE

Nelson Housing Needs ..............................................................................1

Project Overview .......................................................................................3

HOUSING NEEDS ASSESSMENT

Affordability Analysis Recap ....................................................................5

AFFORDABLE HOUSING STRATEGY

Housing Strategy Framework ................................................................13

APPENDIX A: TERMS & DEFINITIONS

APPENDIX B: ACHIEVEMENTS SINCE 2010

APPENDIX C: BENCHMARK STRATEGIES

APPENDIX D: LEGISLATIVE CONTEXT

City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014

NELSON HOUSING NEEDS

At-Risk Youth and Young Adults;

Persons with Physical and Developmental DisabiliWes;

Low-income Seniors and Seniors in Rural Areas of Nelson;

Persons with Mental Health and AddicWons Issues; and

People who are Homeless or At-Risk of Homelessness.

The Strategy, which references 2014 circumstances, is intended to guide City

City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014

SUMMARY OF HOUSING STRATEGIES

Adopt Inll Housing Policy

Review and Establish Inclusionary Policy + Inclusionary Zoning to be implemented through

Increase Density through MulNple Dwelling Unit Conversion RegulaNons

Adopt a Standards of Maintenance Bylaw

Adopt a Family-Friendly Housing Policy

Adopt a Youth-Friendly Housing Policy

Adopt a Seniors-Friendly Housing Policy

Prepare an Accessible Housing Bylaw

Support AlternaNve Housing Forms + ConstrucNon Techniques

Improve Access to Rent Supplements (RAP, SAFER)

Promote the Home AdaptaNon for Independence Program

Prepare a Discharge Planning Policy for at-risk residents leaving hospitals/detainment

Encourage Landlord Discussions

Develop Prototypes and Promote DemonstraNon IniNaNves

Communicate Housing-Related InformaNon

Review and Monitor Aordable Housing Strategy in Fall 2017/Spring 2018

City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014

WHAT IS AN AFFORDABLE HOUSING

Report #1 - Housing Needs Report Update: This baseline report

City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014

Report #2 - Aordable Housing Strategy Report Update: The second

THE HOUSING CONTINUUM

The mix of market and non-market housing varies depending on the

City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014

HOUSING NEEDS ASSESSMENT

AFFORDABILITY ANALYSIS RECAP

Adequate Housing: Dwellings reported as not requiring any major

Aordable: Dwellings that cost less than 30% of total before-tax

City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014

Source: CitySpaces ConsulFng CalculaFons referencing StaFsFcs Canada,

City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014

Table 3: Home Ownership by Age and Household type in Nelson

Source: CitySpaces ConsulFng CalculaFons referencing StaFsFcs Canada,

GROUPS EXPERIENCING GREATEST

#1 AT-RISK YOUTH + YOUNG ADULTS

City of Nelson - FINAL Aordable Housing Strategy 2014 | October 2014

#2 PERSONS WITH DISABILITIES