Development and implementation of Alberta's 10-year plan to end homelessness
Alberta Housing and Urban Affairs
Canada

The Problem

In 2007, the Government of Alberta recognized that the province was facing a growing challenge of homelessness. The reasons for the increase in homelessness were complex, rooted in fiscal, social, and policy decisions over many years.

An estimated 8,400 people were homeless in Alberta; by 2008, this number had increased to 11,000. Homeless and shelter counts provided a snapshot of Alberta’s homeless population:
• 14% of the homeless were living on the street
• 40% had mental health issues
• 50% had some history of substance abuse
• 25% were employed
• 10% were young adults
• 11% were families with school-age children.
Many more Albertans were considered to be at risk of homelessness, spending over 30% of their income on housing.

Homelessness in Alberta was rising, despite the efforts of many hard-working agencies and individuals, and the health, safety, and dignity of homeless Albertans were being compromised every night. This was not acceptable: our fellow citizens, their families, and their children, should not be living on the streets or in emergency shelters. Instead, they should be given the opportunity to re-establish stability in their lives and to maintain permanent housing. Every Albertan deserves the opportunity to succeed.

Furthermore, by continuing to simply manage homelessness rather than taking action to end it, the Government of Alberta would incur projected costs of $6 billion over 10 years. Managing homelessness is extremely costly to taxpayers. Not only does government incur direct costs relating to homelessness, such as funding for emergency shelters and homeless-serving agencies, but we also incur indirect costs – that is, spending in other government systems such as the health, corrections, and justice systems. Costs to manage homelessness are also higher because it is less cost-effective to deliver programs and services to people without permanent homes. Research indicates that it costs $100,000 per year to provide emergency services to a chronically homeless individual; the same individual can be permanently housed with support services for approximately $35,000 per year

Ending homelessness is the right thing to do. Otherwise, the number of homeless people will continue to increase, and the costs of homelessness will skyrocket. However, to successfully reduce and ultimately end homelessness, Alberta needed to take a fundamentally different approach to this issue.

In January 2008, the Government of Alberta established the Alberta Secretariat for Action on Homelessness. The Secretariat was mandated to develop a provincial plan that outlined a comprehensive, coordinated, and sustainable approach to ending homelessness, including timelines, financial requirements, and measurable goals.


In March 2009, A Plan for Alberta: Ending Homelessness in 10 Years was released. Under the plan, the province adopted a Housing First approach to resolve homelessness, marking a fundamental shift in the way government had addressed this issue in the past. The goal of Housing First is to move homeless clients quickly into permanent housing, then provide them with supports tailored to their needs. With the introduction of this new concept, Alberta hopes to give every Albertan a place to call home.

Solution and Key Benefits

 What is the initiative about? (the solution)
A Plan for Alberta calls for province-wide initiatives to coordinate, fund, and deliver Housing First programming, and identified the five priority areas for action. A summary of the accomplishments achieved to date for each area follows:

A. Better information – Collecting, researching, and sharing essential information focused on outcomes.
• A web-based reporting system was implemented in May 2010 to allow homeless-serving agencies to report aggregate data.
• A research consortium was established and is currently reviewing research conducted on homelessness in Alberta to date. The consortium will also provide research on outstanding and emerging homelessness issues.

B. Aggressive assistance – Making sure Albertans have the resources they need to obtain stable homes.
• $32 million in 2009/2010 and $42 million in 2010/2011 were provided to deliver Housing First programming and support services that helped homeless people locate and maintain permanent housing.
• In 2009/2010, over 1,700 formerly homeless people were housed, exceeding the first-year target of 1,000. In the first half of 2010/2011, over 900 people have been housed.

C. Coordinated systems – Ensuring governments, agencies, and communities work together in an integrated, efficient way.
• The Discharge Planning for Homeless Albertans Cross-Government Committee was established to prevent people from being discharged from healthcare and justice systems into homelessness.
• The Secretariat and the Ministry of Housing and Urban Affairs (HUA) have assisted all seven major cities in Alberta to develop multi-year plans to end homelessness that align with the provincial plan.

D. More housing options – Increasing the quantity and variety of housing options so that every Albertan has a home.
• In 2009/2010, $100 million was allocated through a Request for Proposals (RFP) process to support the development of housing specifically for homeless individuals. The first-year target of 700 units was exceeded, with 940 units supported as of March 31, 2010.
• Another $100 million RFP process is underway for 2010/2011 and includes proposals to add 700 units for the homeless.

E. Effective policies – Implementing government policies that reduce barriers to re-housing and actively promote the goal of ending homelessness.
• HUA and Service Alberta have implemented two processes that help homeless people obtain government-issued photo identification. As of October 2010, homeless people can access identification with the assistance of a licensed shelter.

One year after beginning to implement the plan, shelter use has decreased in all seven of Alberta’s major cities. In Edmonton and Fort McMurray, homeless counts showed a decrease in the number of homeless from 2008 to 2010, with a 21% decrease in Edmonton, and a 42% decrease in Fort McMurray.

Surveys of homeless Albertans housed through Housing First programs indicate a decrease in the use of expensive emergency services 12 months after program admission, with a 44% reduction in police service events; a 77% reduction in the number of days spent in remand; a 64% decrease in emergency medical services transport; a 63% reduction in emergency room visits; and a 69% decrease in hospitalizations.

A copy of A Plan for Alberta can be viewed online at www.housing.alberta.ca/603.cfm.

Actors and Stakeholders

 Who proposed the solution, who implemented it and who were the stakeholders?
The Honourable Ed Stelmach, Premier of Alberta, initiated action on homelessness by announcing that the province would develop a 10-year strategic plan to end homelessness. Through the Minister of HUA, the Secretariat was established as an agency of the provincial government to both develop and monitor the implementation of the plan. The Secretariat was instructed to develop and coordinate new initiatives to address homelessness, such as prevention strategies, research programs, and a homeless information management system. Members of the Secretariat were chosen based on their knowledge of housing and homeless issues, and represented a broad spectrum of stakeholders, including municipal and provincial governments, homeless-serving agencies, the health and justice systems, and community-based organizations (CBOs).

The Secretariat consulted with municipalities, communities, homeless-serving agencies, and homeless people to develop a strategic plan to end homelessness in Alberta by 2019. The Secretariat also conducted extensive research on successful initiatives to resolve homelessness in other North American cities.

The Secretariat monitors the implementation of the plan, reports regularly on progress, and provides advice to the Minister of HUA. This includes advice regarding strategic directions that will advance the objective of ending homelessness in Alberta, and potential revisions to the plan that may be required. The Secretariat continues to work closely with the stakeholders in Alberta's seven major cities who play a role in implementing the plan, including service providers, CBOs, and municipal governments. The feedback gathered through ongoing consultations is used to develop advice on legislation, policies, funding, and coordination of programs and services for those at risk of, or experiencing, homelessness.

HUA is the Ministry responsible for implementing the plan, with the delivery of specific initiatives led by communities. Each of Alberta’s seven major cities has a multi‑year plan to end homelessness that is consistent with the policy direction in the provincial plan; is endorsed by the municipal government; and addresses the unique aspects of homelessness within the community. In each city, a designated CBO leads the implementation of the local multi‑year plan. CBOs partner with local service agencies and determine how operational funding received from HUA is allocated within the community. Funding is allocated to each CBO based on factors such as population and shelter use.

A new division, Homeless Support and Land Development (HSLD) was established within HUA to lead the plan’s implementation, coordinate community initiatives, and engage other Ministries in cross-Ministry support. In addition to providing support to both the Secretariat and CBOs and administering grant funding agreements, HSLD is also responsible for implementing the province-wide actions identified in the plan, such as a provincial homeless information management system and the homeless identification initiative.

HUA also allocates capital funding to support the development of housing for the homeless through an RFP process. The RFP is open to municipalities, non-profit organizations, and private developers. $100 million in 2009/2010 and $100 million in 2010/2011 were allocated through this RFP process.

(a) Strategies

 Describe how and when the initiative was implemented by answering these questions
 a.      What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
In developing the provincial plan to end homelessness, the Secretariat established the following principles and objectives:

1. Everyone has access to safe, affordable, and permanent housing.
2. Addressing the root causes of homelessness is essential to ending homelessness.
3. Preventing and ending homelessness is a shared responsibility of all orders of government, the community, the corporate sector, service providers, and citizens.
4. Programs and services are evidence-informed and demonstrate measurable outcomes.
5. Essential services and supports are maintained during the transition to permanent housing.
6. Goals and initiatives are client-centered and community-driven.
7. Funding is long-term, predictable, and aligned with community plans to end homelessness.

To achieve these objectives, the Secretariat identified five priority areas for action in the 10-year plan to end homelessness (see response to Question 2). Each priority area is associated with specific strategies for success:

A. Better information
1. Develop standards for data collection about homelessness.
2. Establish a provincial electronic information management system.
3. Establish a research arm to inform policy development and share best practices.
4. Measure outcomes and track progress on a regular, ongoing basis.

B. Aggressive assistance
5. Continue employing emergency assistance programs to prevent homelessness.
6. Reformulate assistance programs to ensure they provide Albertans with housing stability.

C. Coordinated systems
7. Make it easier for clients to connect with provincial programs and services.
8. Review and revise funding and administrative arrangements with homeless-serving agencies.
9. Develop approaches to prevent provincial systems from discharging clients into homelessness.
10. Support community plans to end homelessness.

D. More housing options
11. Increase the availability of permanent housing with supports.
12. Work with other levels of government to create additional housing options.

E. Effective policies
13. Develop outcome measures for emergency shelters in Alberta.
14. Develop approaches for homeless-serving agencies to share client information.
15. Simplify personal identification requirements for accessing programs and services.
16. Examine ways of reducing poverty to help prevent homelessness.
17. Identify legislative and regulatory changes to advance the plan’s objectives.

To inform the plan’s development, the Secretariat visited Alberta’s seven major cities and spoke with Albertans working in homeless-serving systems who described the roles they thought the province should play in ending homelessness. The Secretariat also met with representatives from municipal governments and community-based organizations who were involved in the development and implementation of local plans and initiatives to address homelessness.

The Secretariat reviewed existing action plans on homelessness created in North America, as well as related research and literature, to identify the key elements common to successful plans to address homelessness.

The information obtained through research and community consultation was used to identify best practices and create the principles and strategies listed above.

A Plan for Alberta was accepted and released by the Government of Alberta in March 2009, with $32 million in outreach and support services funding and $100 million in capital funding approved to implement the first year of the plan.

(b) Implementation

 b.      What were the key development and implementation steps and the chronology? No more than 500 words
Members of the Secretariat were appointed based on their strong leadership backgrounds, knowledge of housing/homelessness issues, and relevant experience. Once established, the Secretariat visited Alberta's seven major cities to gain an understanding of the unique challenges each community faced with respect to homelessness. To inform the development of the plan, the Secretariat spoke with homeless-serving agency staff who described the roles they thought the province should play in supporting and coordinating action on homelessness. Secretariat members also met with municipal governments and CBOs that were involved in developing and implementing local community plans and initiatives to address homelessness. The Secretariat reviewed existing action plans on homelessness in other North American jurisdictions, and reviewed research and literature to identify the key elements common to successful plans to address homelessness.

The transition to implementation was achieved by developing a detailed work plan and assigning specific roles to the Secretariat and the Ministry of HUA. A new Ministry division (HSLD) was created to lead the plan’s implementation and engage other Ministries in cross-Ministry coordination and support. The Secretariat retained a monitoring role by providing research coordination and strategic advice, and reporting annually on the progress of implementation.

The Government of Alberta approved $32 million in outreach and support services funding in 2009/2010 to support the first year of implementation. In 2009/2010, over 1,700 homeless people were housed with supports, exceeding the first-year target of 1,000. An additional $100 million in capital funding was allocated through the RFP process to support the development of 940 units of housing for the homeless, exceeding the first-year target of 700. In 2010/2011, the province provided $42 million in outreach and support services funding and $100 million in capital funding to continue to support the plan’s implementation.

Chronology of the plan’s development and implementation:

January 2008-March 2008: Secretariat established and members appointed

March 2008-June 2008: Secretariat begins meeting and initial planning

July 2008-September 2008: Secretariat conducts community consultations

October 2008: Secretariat completes and submits plan to the Minister of HUA

December 2008: HSLD Division created within HUA

March 2009: Government of Alberta approves and releases plan

April 2009-June 2009: HUA ontracts CBOs to deliver $32 million in outreach and support services funding

May 2009-October 2009: Secretariat conducts follow-up consultations and assists communities to develop their own multi-year plans to end homelessness

June 2009-October 2009: HUA allocates $100 million through an RFP process to develop housing for the homeless

June 2009-present: Secretariat and HSLD work with CBOs and major municipalities to support plan implementation

April 2010: Secretariat establishes the Alberta Homelessness Research Consortium

April 2010: HSLD establishes the Discharge Planning for Homeless Albertans Cross-Government Committee

April 2010: HUA contracts CBOs to deliver $42 million in outreach and support services funding

May 2010: HSLD and shelters implement a web-based homeless information management system

June 2010: HUA allocates $100 million through an RFP process to develop housing for the homeless

October 2010: HUA and Service Alberta implement processes to enable homeless people to obtain government-issued identification

(c) Overcoming Obstacles

 c.      What were the main obstacles encountered? How were they overcome? No more than 500 words
Obstacles encountered during the development/implementation of A Plan for Alberta:

1. Challenging the status quo (i.e. opposing skepticism about whether a complex and enduring issue like homelessness can be resolved)
• The Premier set a compelling vision of government moving from managing homelessness to ending it.
• A clear business plan was developed, showing that simply providing more shelters does not address homelessness, and that it is more expensive to keep people on the streets than to house them.
• Pilot projects were conducted to demonstrate the success of the Housing First approach.

2. Appointing Secretariat members who were based across Alberta and developing the plan within short timelines
• Secretariat members committed to meeting once every three weeks throughout the plan’s development.
• The Secretariat created and adhered to a detailed project management plan, which set strict timelines for development milestones.

3. Addressing a complex, far-reaching issue that affected different communities in different ways
• The Secretariat conducted extensive consultations with municipalities, communities, homeless-serving agencies, and homeless people in Alberta’s major seven cities through development/implementation.
• The Secretariat assisted each city to develop its own multi-year plan to end homelessness that aligned with the provincial plan.
• A branch within HSLD was dedicated to coordinating efforts to end homelessness across provincial Ministries.
• A research consortium was established to provide additional research on outstanding and emerging homelessness issues and best practices.

4. Securing adequate, sustainable funding and resources to support the implementation of the plan
• A business plan was developed that showed the cost to house a chronically homeless person with supports was one-third of the cost of leaving that person on the streets.
• Pilot projects were conducted to demonstrate the success of the Housing First approach.

5. Developing a community-driven implementation process
• The Secretariat and HUA identified a CBO in each of Alberta’s seven major cities that would be responsible for leading the implementation of the provincial and local plans to end homelessness. Regular meetings were held with the CBO during development/implementation.
• CBOs were contracted to allocate provincial outreach and support services funding to local homeless-serving agencies. The grant funding agreements between the province and the CBOs were outcome-based.
• The Secretariat and HUA committed to building community capacity through training, professional development, and funding support for homeless-serving agencies.

6. Tracking and reporting on the plan’s progress and successes
• A web-based homeless information reporting system was implemented in May 2010 to allow homeless-serving agencies to report aggregate data, which will be used to inform the ongoing implementation of the plan.
• A quarterly newsletter, Housing Starts Here, was created to share progress, success stories, and lessons learned with clients, stakeholders, and the public. Copies of these newsletters can be viewed online at www.housing.alberta.ca/695.cfm.
• The Secretariat provides an annual report to the Minister of HUA on the key activities and progress of the plan’s implementation, as well as strategic advice for ongoing implementation. The 2009/2010 report can viewed online at www.housing.alberta.ca/Alberta_Secretariat.cfm.

(d) Use of Resources

 d.      What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
Ending homelessness in Alberta requires an ongoing financial commitment from the provincial government. Dollars are being invested to rapidly re-house homeless clients and deliver effective support to help them achieve stability; however, existing funding relating to homelessness will also need to continue. For example, funding for emergency assistance, such as rent supplements, will play a key role in preventing homelessness. These emergency assistance programs may require incremental funding adjustments to ensure they continue meeting their objectives. New dollars may also be needed to augment other social programs across government, in order to help prevent homelessness from occurring in the future.

To facilitate the rapid re-housing of homeless clients, substantial capital investment will be required. In 2009/2010, $100 million was allocated through an RFP process to support the development of housing specifically for homeless individuals. The first year target of 700 units was exceeded, with 940 units supported as of March 31, 2010. Another $100 million RFP process is underway for 2010/2011 and includes proposals to add 700 additional units for the homeless.

The plan supports the role of communities in taking the lead to address homelessness in their own jurisdictions. As such, annual operating funding is provided for evidence-informed, community-led support programs that are compatible with the Housing First philosophy. $32 million in 2009/2010 and $42 million in 2010/2011 were provided to enable the delivery of Housing First programming and support services to help homeless people locate and maintain permanent housing. Over 1,700 formerly homeless individuals were housed in 2009/2010, exceeding the first-year target of 1,000, and over 900 have been housed in the first half of 2010/2011.

The operating budget for the 10-year plan includes support for initiatives such as new research staffing and training support for homeless-serving agencies. These elements will be essential for augmenting the capacity of community-based service providers to administer re-housing and support programs, and for gathering and analyzing homelessness data in order to track progress and measure outcomes. The plan also identifies the establishment of a provincial electronic information management system as a strategy to promote the collection of better information on homelessness to support effective decision-making.

To develop the plan and guide its implementation, leaders in the areas of housing and homelessness were appointed to the Secretariat. HSLD was created as a new division within HUA to lead the implementation of the plan, and a new branch, Homeless Cross-Ministry Initiatives, was created within HSLD to coordinate the plan’s implementation across government. Cross-Ministry support was also provided by the Assistant Deputy Ministers’ Committee on Housing and Homelessness, with 15 of the provincial government’s 22 Ministries represented on the committee.

Sustainability and Transferability

  Is the initiative sustainable and transferable?
The provincial 10-year plan to end homelessness is a priority for the Premier of Alberta, and a primary responsibility for HUA. The plan’s implementation will be sustained through ongoing government support and funding. In 2010/2011, the Government of Alberta has provided $42 million in outreach and support services funding and $100 million in capital funding to support the continued implementation of A Plan for Alberta.

All of Alberta’s seven major cities have approved local multi-year plans to end homelessness that align with the provincial plan, and there is excellent community and public support for both the local and provincial plans. There is ongoing consultation with community-based organizations, homeless-serving agencies, and other key stakeholders to ensure best practices are implemented.

Alberta was the first province in Canada to develop a multi-year plan to end homelessness. A provincial conference, Bringing Alberta Home, took place in November 2009 to share Housing First approaches and highlight early indications of the changes in front-line delivery and success stories of formerly homeless individuals. The plan and its initiatives were also shared in a workshop at a national conference, Growing Home: Housing and Homelessness, held in Calgary in February 2009, as well as a provincial conference, The Road Home, held in Edmonton in November 2010.

The knowledge gained over the coming years will add to the understanding of homeless issues and will impact best practices in service delivery in Alberta and across the country. The project is already considered a successful model by other jurisdictions and will influence similar changes as measurable outcomes are attained and communicated over the intermediate and long term. Since the release of the plan, HUA has received the 2010 Institute of Public Administration of Canada (IPAC) Gold Award for Innovative Management and national recognition for the provincial 10-year plan to end homelessness.

Lessons Learned

 What are the impact of your initiative and the lessons learned?
Alberta was the first province in Canada to approve a multi-year plan to end homelessness, and is now regarded as a national leader on resolving homelessness issues. The province has realigned funding priorities to support the plan, and both government and community stakeholders support the Housing First approach. Efforts to end homelessness are being coordinated at a municipal and provincial level, and community planning and strategic thinking has changed from managing homelessness to ending it. Front-line agencies are moving quickly to adopt the Housing First approach in service delivery.

The impact on clients is evident: over 2,600 formerly homeless individuals have found permanent housing to date. For the first time in 10 years, we are seeing a decline in emergency shelter use in all major Alberta cities, and homeless counts in Edmonton and Fort McMurray have indicated decreases in homeless populations. One year after program admission, there has been a marked decrease in the use of expensive emergency services by homeless Albertans housed through Housing First programs.

The implementation of a province-wide homeless information management system is helping government to identify best practices, inform planning efforts, and measure progress and success. Reliable information and measurable outcomes will facilitate knowledge transfer throughout Canada, and ensure that efforts to end homelessness remain sustainable and effective.

There will be measurable cost avoidance under the Housing First approach versus the crisis intervention system previously in place. Research indicates that it costs $100,000 per year to provide emergency services to a chronically homeless individual; the same individual can be permanently housed with supports for approximately $35,000 per year. Housing First is proving to be a cost-effective way to deal with a long-standing social issue.

The development and implementation of the plan would not have been possible without strong support from the Premier and the Government of Alberta as a whole. The Premier’s championship of the project enabled the mobilization of resources to create the Secretariat, as well as provide substantial funding for the first two years of implementation.

During the development of the plan, careful research identified Housing First as the most successful approach in other North American cities, and in-depth frontline consultations ensured the tailoring of this approach to meet unique community needs across the province. Collaboration with and support from municipalities, homeless-serving agencies, and other stakeholders continues to build on the strong foundation of provincial support, and has facilitated an effective delivery approach through CBOs and homeless-serving agencies.

In August 2010, the Secretariat presented its first annual report to the Minister of HUA, indicating that Alberta was on track with its plan to end homelessness in 10 years. The report also summarized lessons learned to date:
- The plan needs to be community-driven to meet unique community needs.
- The plan needs to be flexible to meet diverse client needs, offering various housing options and types of support services. One size does not fit all.
- Ongoing community consultation and support are required to ensure the continued successful implementation of the plan.

Contact Information

Institution Name:   Alberta Housing and Urban Affairs
Institution Type:   Government Department  
Contact Person:   Robin Wigston
Title:   Assistant Deputy Minister  
Telephone/ Fax:   780-427-4093
Institution's / Project's Website:   780-422-8462
E-mail:   robin.wigston@gov.ab.ca  
Address:   3rd Floor, 44 Capital Boulevard, 10044-108 Street NW
Postal Code:   T5J 5E6
City:   Edmonton
State/Province:   Alberta
Country:   Canada

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