The continuation of the housing crisis in the Haliburton-Kawartha-Pine Region(HKPR) is making it difficult to find housing, specifically for marginalized individuals who require affordable housing. A “tiny home community” has been proposed as a potential solution for affordable &transitional housing
The Tiny Homes project is a continuation of a project completed in the 2018-2019 school year (1). The project researched the feasibility of tiny homes as an option for transitional housing in the Haliburton-Kawartha-Pine Ridge Region (HKPR) of the Human Services and Justice Coordinating Committee(HSJCC). It was concluded that there are a number of factors in the way of making tiny homes a reality. Such roadblocks include provincial building codes, municipal by-laws, land availability and financial support. As a result, the HKPR would like to assess and develop a plan to combat these issues in order to develop a “tiny home community” in Peterborough as a housing solution for those post-incarceration.
The goal of this research is to determine what steps needs to be taken in order to make tiny homes a solution in Peterborough. Building codes for Ontario, as well as the by-laws and zoning regulations in Peterborough will be assessed to determine if there is a way to integrate this model. In order to consider the development of tiny homes, it needs to be determined whether or not they can be built. In addition, there is the question of how these homes will be constructed. This will require reaching out to development companies and architects to see if construction is a reality. An important factor will be the location of the community, considering the layout and function of the City of Peterborough. Research will also be conducted to determine how the development of a tiny home community would be funded, with regards to the cost of construction and the cost of maintenance once it is operational.
There is a need to protect the most vulnerable populations in Peterborough, and the first step in accomplishing that is making sure they have a place to go to and call “home”. The Human Services and Justice Coordinating Committee is an organization consisting of a collection of human service systems, who come together with the goal of helping those who have come in contact with the justice system. Their logo is in the shape of a trillium, to represent that the organization is located in Ontario. The three colours it is composed of, green, red and blue, are meant to represent their three divisions: mental health, developmental and human services and the justice system, respectively. While there are a number of regional and local committees, the project will focus specifically on the Haliburton Kawartha Pine Ridge region. This region is made up by Peterborough City and County, City of Kawartha Lakes, and Haliburton Northumberland Counties. In addition to looking at those who come in contact with the justice system, this region takes special interest in the criminalization, institutionalization and stigmatization of those with mental illnesses, addictions and disorders as a result of brain injury.
The city of Peterborough has one of the lowest vacancy rates in Canada, at 1.6% in 2018. As a result, individuals are resorting to whatever means necessary to survive. For those coming out of the justice system, this may mean returning to the lifestyle that initially got them involved with it, and that they need to escape from. Providing transitional housing will give them an opportunity not otherwise available, which in turn can offer stable ground to start over. Additionally, tiny houses are an opportunity for those with low-or no-income, similar to those coming out of the justice system, which will also enable the individuals to get back on their feet.
A tiny house is a residential building between 100-600square feet. These little dwellings are a growing trend all around the world because of their environmental, social and economic considerations. Despite the sudden interest, the tiny house movement has been around for as long as Gypsy’s have lived in mobile wagons travelling through Europe in the 1500s. In the1800s, the movement shifted from purely mobile homes to having designated areas where they could be kept, known as trailer parks. The 1850s saw a particular increase in the use of trailer park homes in the United States as a counter-cultural response to consumerism, using it as motivation to live a simpler life. Since then, the tiny house movement gained momentum following the war in the 1940s, and again with the environmental movement that began in the 1960s. While in the 21stcentury some are downsizing to lead a minimalist lifestyle, the tiny house movement can be viewed as a solution to temporary housing for guests or travelers, an alternative housing option for urban areas with large populations, little area, and housing for the homeless.
The three biggest advantages of living in a tiny house are environmental, social and economic. Environmental impacts stem from indoor pollutants, which are volatile organic compounds (VOC). VOCs are carbon-based chemicals that are in the housing structure, such as building materials and interior finishing’s, that evaporate and sublimate into the air in the home. These chemicals can cause health hazards over prolonged exposure that can lead to nausea, dizziness, headaches, and irritation of the eyes, nose and throat. Formaldehyde is a notable volatile chemical because it is found in virtually all building materials, especially new manufactured wood for building and furniture, as well as some fabrics. Homes build after 1990 are being insulated better, which is good for the home-owners wallet because less money is
being used to heat and cool homes, but it also means the formaldehyde is staying in the home longer instead of being circulated out. In addition to the internal pollution, chlorofluorocarbons (CFCs) are chemicals that contribute to global warming by depleting the ozone layer, and they originate from refrigerators and air conditioners. Overall, the chemicals being produced in large homes are harming both humans and the earths health.
Socially speaking, tiny houses are a different way of living that is both simple and enjoyable. Looking at a tiny home is aesthetically pleasing for the eyes. They are so compact, with simple construction and unique characteristics, unlike many of the large subdivisions being built now. They also provide housing solutions for overpopulated areas, temporary housing for travelers that are both visiting the area or moving around with their mobile tiny home, as well as transitional housing for the homeless. In April 2018, the City of Toronto approved the Laneway Suite Program as a way to try and combat the costs and shortage of housing they have. This program turns to current homeowners in the downtown core or East York community, who possess land behind their homes that back onto an alleyway. If all requirements are met, homeowners can apply to have a laneway home built on and behind their property. There are incentives for those who would like to take part in the program, including a $50 000 forgivable loan to build the home. Additionally, homeowners may charge and collect rent, not exceeding the City of Toronto Average Market Rent for the home. The growing interest in this model and the steps taken to implement it demonstrates the vast potential it has to solve a number of social issues.
Finally, tiny houses are a solution to being able to afford a home in an ever inflating real- estate market. In September 2019, the average price of a home in Canada was $512,501, while the price of building a tiny home is about $40-80 000.However, costs can actually decrease depending on the size of the home, design, building materials, cost of labour and cost of the land. Additionally, the monthly cost to own and maintain a tiny home is a fraction of that of a regular single-family home. A tiny home that would cost $27,000 on a 20-yearmortgage, before property taxes, would be $364 monthly. This translates toa cost of roughly $500 per month, including the mortgage and utilities. This model would be ideal for low-income households who struggle to find somewhere affordable to live, and those in poverty who rely on government funding. The possibility of being able to live in, or own a home, for these groups of people will help serve as a support to them and provide the shelter they need.
Despite the growing tiny house movement, zoning regulations and city by-laws are preventing people from being able to build and live in them. Zoning was developed in the 1870s by German engineer Reinhard Baumeister in order to regulate how specific geographic areas were allowed to be used. The idea is that zoning can help social problems such as poor sanitation, fire hazards, poor design of buildings, as well as separate industrial areas from residential areas for a better quality of home life. As a result, many cities have been able to eliminate the construction of tiny houses by requiring that a dwelling must be on a minimum size plot of land, causing the price of the land to be more than the price of development. The International Building Code (IBC) has stated that a dwelling must be a minimum 70 square feet worldwide. While this code would actually solve the problem of how small a tiny house can be for a legal dwelling, the IBC does not actually have legal authority and it only considered a guideline, so each area adopts the codes and expands on it to suit them. Similar to zoning regulations, current building codes vary based on location, and thus the minimum dwelling size changes.
When developing commercial or residentials buildings, the City of Peterborough must follow a number of regulations including Smoke-Free Ontario, guidelines for how to make public spaces accessible, and the Ontario Building Code (OBC). The OBC is adapted from the National Building Code, set forth by the National Resource Council. While the National Building Code holds no legal bearing, it acts as the model code for province’s and territories’ in Canada to develop their own Code’s. The OBC includes priorities that are specific to the needs of Ontario, such as higher standards for energy efficiency and greenhouse reduction, as well as additional sections about public pools, spas and rapid transit stations. If a tiny home in built in accordance with the OBC, it must be no smaller than 188 square feet. Despite the OBC allowing the development of tiny homes, municipal zoning and by-law regulations in Peterborough provide a challenge. That is, each zone in Peterborough has its own parameters for residential building. In order to build a tiny home in Peterborough, changes to the zoning regulations would be required. Approval for these changes would need to go through the Building Division. Planning and Development Services would also need to be consulted, as applications must be filed in order to build, and projects must be approved by the City.
Also, one of biggest issue lies in the permanency of such a small dwelling. Developing a tiny home community would mean there are a number of residences in a small space, which would violate zoning regulations. Trailers in trailer parks or camping grounds are also known as tiny houses on wheels (THOWs). THOWs are simply tiny houses that do not have a permanent foundation in the ground, but rather are on wheels so they can be moved.
THOWs are limited to where they can go because of zoning regulations, so many end up having to move around. Most trailer parks are considered to be campgrounds that are seasonal, and these seasonal campgrounds cannot be used as a permanent or home address. In order fora tiny home community to be built, the land being used cannot be considered a campground, but must allow for a number of residential buildings to be constructed.
In addition to THOWs, there are other tiny home models that are being used around the world. An accessory dwelling unit (ADU) is a smaller housing unit that resides on the same property as a dwelling. Traditionally, these units were used to house servants, elderly parents or newlyweds. As a result, ADUs are often called granny flats. The development of ADUs are often accepted more easily into communities when it comes to zoning regulations, because this structure follows a landlord-tenant format. However, varying zoning regulations and building codes impact the extent of the additional building on the property such as the size, the distance to be built from the house and other specifications. This model is incredibly similar to the laneway suite model in Toronto, however rather than having the unit in the laneway, itis on the property of the landowner.
In Peterborough, ADUs are permitted under the Secondary Suites zoning by-law. This by-law permits 1-15 dwelling units as detached accessory buildings on the same lot. The by-law is positive for two reasons: it provides the opportunity for homeowners to build an income property that in turn helps the housing crisis in Peterborough, and organizations with land have the potential to build a tiny home community. While these organizations may have the resources to be able to build a community, the by-law states that one secondary suite is allowed on the property for every principle dwelling unit. In other words, 15 secondary suites can be built only if there are 15 dwellings already present on the property. Changes to zoning and by-law regulations would be required in order for a community to be built.
Based on the previous research about this project, as well as the preliminary research conducted, the following factors were identified to be investigated:
· Potential design plans and cost of construction for tiny homes
· Zoning, by-law and building code regulation barriers for tiny homes
· Financial and social service support for a tiny home community
· Land availability in the city ofPeterborough
Previous research provided highlighted the various barriers in developing a tiny home community. This goal of this research is to determine what solutions, or alternative views, offer the possibility to move this project forward for the HKPR. Recommendations will also be made for both the project and future research.
Although Canada is only recently implementing legislation and guidelines that make it possible to build tiny homes, many countries around the world already practice this model of living. Dignity Village in Portland, Oregon was the first tiny home community in the United States of America, as a transitional housing trial for those who do not have a permanent residence or cannot afford to live anywhere except low incoming housing. The community houses sixty residences in one-or two-bedroom tiny houses, which are uninsulated and built on platforms to facilitate their eventual removal. Since the houses are built on a platform, they are not permanently hooked in the ground for hydro facilities. To combat this, there is a community building on the property that includes additional living space, restrooms, a shared kitchen and computing center.
The lack of permanency of the community stems from the zoning regulations, establishing Dignity Village as a designated campground, thus only allowing temporary residency. The word “temporary” is very vague when used in this context. An evaluation of the lack of clarity concluded that if the majority of Dignity Village residents are present for a period of 24 months, it is no longer considered temporary housing. If or when this becomes the case, the Village is violating zoning regulations and the terms of its lease with the city. Since its creation, Dignity Village has been deemed a success. This determination can be viewed positively in that the community is meeting its purpose and goals, however, other options for transitional housing are held at a higher standard that Dignity Village. That is, the Village does not have professional staff, a significant amount of either public or private funding, nor the access to services that come with other transitional housing programs. The Village demonstrates, on a very basic level, that tiny homes as means for transitional housing can be successful. The criteria and components of the Village should be viewed as the bare minimum for the development of similar projects.
Following Dignity Village, Quixote Village in Olympia, Washington was developed as a permanent tiny home community for the homeless. The Village has 30 tiny homes on the two-acre property, each with a half-bath, and a community building similar to Dignity Village with kitchen and bath facilities, as well as common areas. In order for this Village to be built, the City of Olympia developed a “single room occupancy” dwelling category. This category states that the dwellings must be a minimum of 120 square feet, with access to full bathroom and kitchen facilities. Olympia took the necessary steps in order to make this Village a reality to help the homelessness population.
Australia ranks as one of the least affordable housing markets according to the Organisation for Economic Co-operation and Development (OECD). Unaffordable housing, both in the renters and buyer markets, is seen as a social issue. Australia recognizes these issues and decided the ways to combat it are increasing urban density, offering first time home buyers cash incentives, implementing requirements that developers must have some properties geared toward low-income housing, and the employing of government funded housing assistance programs. Despite these measures, Australia also has some of the largest house sizing in the OECD, which presents a challenge when trying to increase urban density.
Currently, ADU’s are recognized under the Building Code of Australia. With the tiny home trend increasing in Australia as a response to the financial barriers, ADU’s have become an increasingly popular niche market. Such popularity has sparked research into alternative models of tiny homes, such as THOWs or the possibility of tiny home communities. It is recognized that in order for the trend to develop further, changes in legislation are required. Despite the Australian movement in its early stages, it provides a viable option for assisting their financial housing crisis.
In Canada, an organization called the Homes for Heroes Foundation in Calgary, Alberta built a tiny home community that opened November1st, 2019. There are 15 houses that are 275 square feet each and fully equipped with all the features of a large home. The organization has a goal of trying to help the 3500 homeless war veterans in Canada by giving them a place to get back on their feet, so eventually they reach a point where they can integrate back into civilian life. The Village in Calgary has a central resource centre with includes a counselling office, so support services are on site at all time. Alberta follows the National Building Code, therefore their limitations for the construction of a tiny home differ compared to Ontario. Despite these differences, Calgary was still able to accept and build a tiny home community.
Section 9 of the OBC outlines every requirement for houses and small buildings. This includes permitted building materials, sizing of hallways and doorways, window requirements, stair and accessibility needs, and fire and safety features. This legislation requires an incredibly thorough examination and understanding in order to build a tiny home community. Specifically, section CSA Z240 MH of the OBC pertaining to building requirements of manufactured homes built as trailers or on wheels, and section CSA A277 of the OBC outlining to what standard factory-built homes must be certified to.
Manufactured homes, factory-built homes and modular housing are all synonyms for prefabricated houses that are completely constructed in a factory and then shipped to site. The Canadian Mortgage and Housing Corporation (CMHC) specified that modular housing can allow for about 55% savings in cost, and a 43% reduction in carbon monoxide emissions when compared to on-site building. Modular buildings must meet buildings code requirements in the factory before they can be shipped to site, resulting in more efficient construction.
Reduction in costs stem from inexpensive building materials and increased energy efficiency in the home. A case study conducted in Alberta compared two nearly identical houses based on National Building Code parameters, however one was a traditionally on-site built house and the other was a modular home. The design of the homes was a five-bedroom duplex fully equipped with all the basics the building codes outline. Performance and energy efficiency were tested and compared. It was concluded that modular building assumed an air-tight construction that reduces thermal loads by about 57%. The assumption is that the air-tight construction prevents leaks that allow the air to escape. Resulting in less money and energy used to heat and cool the home, because the temperature is better maintained and thus more efficient. Additional research is required, but the investigators believe that the thermal load can be reduced by up to 72%compared to traditional housing with the proper materials, increased south window sizes, and air-tight construction.
The improved efficiency and smaller carbon footprint of a modular house is consistent with increased efforts for net-zero building. In 2013,the Natural Resource Council launched the R-2000Net Zero Energy Pilot initiative to increase awareness about trying to achieve a net- zero energy performance. To “build for net zero energy” means to build a home that consumes as much clean energy as it consumes. The fact that modular building is more environmentally friendly serves as an incentive to lean towards a greater practice of them.
Fleming College in Peterborough built the Kawartha Trades and Technology Centre in 2014. This state of the art, 87 000 square foot building, is centered around the Skills Arena. The Skills Arena contains a three-storey structure called the Kube, which in itself is an educational tool. The Kube allows students to practice their trades in different real-life scenarios, resulting in an immersive educational experience. This form of experiential learning model is one of three in the world for trades education. The Kawartha Trades and Technology Centre is built to LEED environmental and efficiency standards. The LEED rating system is a tool designed to help builders obtain green building for improved safety, health and sustainability. At Fleming College, these green features include low-flow toilets, a cistern that collects rainwater, optimized energy performance with 30% cost savings, green parking, and 75% of the construction waste kept out of a landfill (35). The efforts that Fleming is putting forward can be applied to designing and building tiny homes in order to make them green and efficient.
Building information modelling (BIM) is a form of education that looks at transforming software training and problem solving into project execution and management in the higher education system. [The Canadian version is available from Natural Resources Canada]. In a case study, students from the Sacramento Municipality Utility District were followed from fall 2014 to fall 2016.These students were challenged to build a tiny home between 100-400square feet, net-zero, and solar powered for a maximum budget of $25 000. The first phase of the project was strategic planning to research and design how to build these tiny homes with cost and energy efficient. Literature was read and local contractors were interviewed in order to achieve net-zero. Ultimately, tiny home prototypes were built based on the students designs. The implementation of BMI can be executed in Canada to assist in the development and construction of tiny homes.
The City of Peterborough has not had an official plan for growth and development in 30 years. A draft of a new Plan in June 2019 describes proposed changes to Peterborough affecting the social, economic, cultural and natural environment of the city. There is an increased recognition by the City that while development is essential, there needs to be a balance between protecting the natural environment and growth. This includes the implementation of policies in the City in order to mitigate climate change through energy efficiency, improved air quality, reduced greenhouse gas emissions, sustainable land use patterns, and the integration of green infrastructure. Developers and builders are encouraged to practice green building, which has positive impacts on climate change and the natural environment in reducing negative impacts through design, construction, and operation. The fact that modular building has a more positive impact on the environment can be applied to these policies and expectations in the development of a tiny home community. Section 5.2 of the Plan is entirely related to the state of housing in Peterborough.
There is a push for attracting young families and professionals to the City, while accommodating the current population. It is recognized that there is a shortage of housing in the City, and there is even less affordable housing. Land in Peterborough will be used to residentially intensify, redevelop where necessary, and continue development for growth. There is a general understanding that above all, Peterborough needs to be able to house its citizens.
With this also comes affordable, accessible and special needs housing. Following the events of tent city in summer 2019, it was clear that the homelessness issues in Peterborough needed to be handled in a better manner. This vulnerable population has stated that they have had bad experiences with emergency shelters, and do not like how they are operated. Therefore, the Plan looks to apply the appropriate measures in order to accommodate these individuals.
Amongst these measures is the increased awareness and implementation of secondary suites in Peterborough for strategic growth. It is also important that housing is built on land that is supported through appropriate levels of infrastructure, public service facilities, and with the support of active transport. Essentially, the location of housing not only needs to support the individuals residing in it, but also their lifestyle.
In conjunction with the difficulty being able to house those in Peterborough, there is a lack of suitable land for developing housing. The Plan states that their goals for development may be restricted based on current zoning by-laws. These by-laws would either need to be adjusted, or the Planning Department would need to approve projects. One of these changes looks at adjusting height and density by-laws. That is, in order to accommodate an increasing population, different models of housing are going to be permitted, such as apartment buildings and condominiums. In order to build these structures they must be compatible with the surround area, while maintaining the environmental initiatives that the Plan is pushing for, and ensuring the community is served.
The first interview conducted was with David Howard, the President and Co-Founder of the Homes for Heroes Foundation. This interview was conducted first because Mr. Howard planned and built a tiny home community, so his expertise on the matter was used to spearhead the interviews that followed. Mr. Howard stressed the importance of working with the province in order to bypass the zoning and by-laws that would prevent the community from being built. When the community was built in Calgary, a new by-law essentially had to be created. One home needed to be built on a 600 square foot lot, however, the community of was only built on three lots. In order to work around the by-law, multiple homes were attached and therefore considered one unit. In order to even be able to build the homes a rezoning application needed to be completed. This process took one year, inviting the community engagement through open houses, in order to have the community included in the development and prevent them from stalling the project. However, this first year cost about $400 000 and development had not yet begun, which is why a partnership with the province would be beneficial because it can mitigate some of the costs and help speed up the process.
The issue of zoning and by-laws was a common theme throughout the conduction of the interviews. Meeting with Interviewees C, D and E brought to light these problems as they specifically related to the City of Peterborough. There are two ways to define what a home is: a home can bed classified based how the land is zoned, and if the building is in accordance with the OBC. A dwelling is essentially a series of interconnected rooms with sleeping, cooking and cleaning facilities. According to Peterborough zoning by-laws, the minimum unit size is 600 square feet, and this minimum may increase based on additional features that could be included in the home.
Zoning by-laws dictate where dwellings can be built ,however, if there is a specific plan for an area of residentially zoned land, a site-specific zoning by-law can be passed. This means that the minimum room size can be adjusted specifically for the project. The Mason Home Subdivision built in Peterborough had a site-specific zoning by-law passed that waived the requirement for additional square footage, keeping the minimum floor size at 600 square feet so the properties remained small. The use of site-specific zoning can be applied in order to make the minimum room requirement as small as 160-193 square feet, in accordance with the OBC.
The secondary suite by-laws allow the unit to be a minimum floor size of 300 square feet, secondary to the main house either through being in the basement, in the form of an addition, or on the same property as it. The secondary suites by-law, Bill 108, also states that these structures are exempt from development charges, which will save the project money and time. However, it is unclear as to how the secondary suite is managed as a home, whether it be a buyer or renter model.
Section 9 of the OBC deals with the specifications of housing and small buildings. That is, there are minimum requirements for what a water closet must contain, or accessibility features and proper stair dimensions for safety. Sections CSA Z240 and CSA Z241 deal with trailer park model homes, mobile homes and factory-built houses. He mentioned that when contacted about the project he initially thought that a tiny home community was similar to that of a trailer park. Where this provides complications is that trailer and mobile home parks are zoned as campgrounds. Campgrounds can have homes of such small sizes in them because this zoning is “seasonal”. The term “seasonal” is under the discretion of the park owner, and basically meaningless according to Mr. Findlay. Where one resident of the park visits in the summertime, others may visit in the winter, and as a result these parks may operate on a year- round basis. While this may seem like a potential solution, Peterborough does not have any land zoned for this purpose in the city. Mr. Findlay did speak to site-specific zoning being applied to reduce the minimum square foot requirements.
There are a number of complicating issues related to these factors. The first is that zoning by-laws state minimum parking requirements for dwelling units. Parking is based on a per unit basis, so a large portion of land could potentially be occupied by parking. Moreover, it can take up to a year in order to acquire land. Interviewee C stated that a rezoning application in order to build smaller dwellings can take 4-8 months, and site plan approval can take 4 months. Mr. Findlay also stressed the significant amount of time these legal issues can take up, before construction can even begin. One of the most complicating issues is that the Peterborough Official Plan calls for an “up, not out” solution to the housing crisis in Peterborough, so the City of Peterborough employees stressed that there may be less of a desire for the tiny home model. Peterborough is trying to house as many people as possible, and affordable housing can be included in development plans. Member of Parliament Maryam Monsef made a promise to build 2000 affordable housing units in the next two years, and Interviewee P made it very clear that tiny homes are not the way to meet that promise and thus are a very low priority. Rather, it is believed that the tiny home model can simply be expanded into an apartment building as to accommodate a greater number of people.
Mr. Howard shared that the 20 units in Calgary werebuilt in conjunction with ATCO, a Canadian modular building company. Theseunits cost $80 000 each, with stainless-steel appliances, a full bathroom,skylight, and concrete sidings. There are four different styles of homes in thecommunity built to blend in with the its surroundings, but also to last (D.Howard, personal communication, Jan 14, 2020). These high-end finishing’sincreased the price of each unit dramatically, so lower end finishing’s will reducethe cost (D. Howard, personal communication, Jan 14, 2020). The units werefactory-built, and when installed at the community, placed on a pile (D. Howard, personalcommunication, Jan 14, 2020). Pilesare made of steel, wood orconcrete and driven into the ground in order to provide support for something to be built on top of it (D. Howard,personal communication, Jan 14, 2020). Building on a pile allows for airflowunderneath the home, decreasing the cost for heating and cooling (D. Howard,personal communication, Jan 14, 2020). In the event that the community needs torelocate, these piles can be picked up and moved (D. Howard, personalcommunication, Jan 14, 2020). Decking used around the homes were synthetic asopposed to wood, so there is less upkeep (D. Howard, personal communication,Jan 14, 2020). Considering the upkeep of these units is important forenvironmental considerations and cost reduction (D. Howard, personalcommunication, Jan 14, 2020).
The design of the Calgary community has all 20 unitsbuilt one storey high, rather than stackingthem in an apartment type fashion. Mr. Howard sharedthat stackable units would make it too easy for occupants to shutthemselves out from the community. When dealing with vulnerable populations itis best that these individuals work as a unit (D. Howard, personalcommunication, Jan 14, 2020). It is that sense of community and the teamapproach that helps support residents (D. Howard, personal communication, Jan14, 2020). Another reason units are not stacked because it allows privacy forthe residents, by keeping a single level everyone can keep an eye on everyone(D. Howard, personal communication, Jan 14, 2020).
Interviewee B has experience building smaller units andaffordable housing, with experience in co-housing. One model they have employedincludes smaller units in an apartmentstyle building (Interviewee B, personal communication, Jan 20, 2020). A size ofabout 160-280 square feet would be the least expensive to produce, as well asto rent, however the sizing is a problem with zoning and by-laws (IntervieweeB, personal communication, Jan 20, 2020).
Building materials need to be chosen for both their costs andenvironmental considerations (Interviewee B, personal communication, Jan 20,2020). Interviewee B uses insulated concrete forms (ICF), which are essentiallygiant Styrofoam Lego pieces that concrete is poured into (Interviewee B,personal communication, Jan 20, 2020). While this is sturdy and efficient, itis not the best environmental decision due to the carbon in the material(Interviewee B, personal communication, Jan 20, 2020). ICF is a premiummaterial, however construction materials are constantly evolving (IntervieweeB, personal communication, Jan 20, 2020). Plant-based concretes, such as hempcrete, are emerging all the time but not yet sustainable enough to be usedin development (Interviewee B, personal communication, Jan 20, 2020). TheCanadian Construction Materials Centre, a branch of the National ResearchCouncil, tests novel building materials and productdevelopment (D. Findlay,personal communication, Jan 29, 2020).Testing materials costs hundreds of thousands of dollars, but it is theonly way for innovation to occur (D. Findlay, personal communication, Jan 29,2020).
With regards to utility and water hookups in a home,zoning typically dictates the model by which homes orient themselves(Interviewee B, personal communication, Jan 20, 2020). Mr. Howard and theCalgary community have individual hookups for each home, and Interviewee Bagrees that this model is important for those that live in the community.Individual hookups are easier to implement in the design,however the OBC specifications can make it hard to ensure all requirements are met in such a smallscale (Interviewee C, personal communication, Jan 20, 2020). Although tinyhomes are just smaller scale homes, they require the same size sanitary, sewer, water,communications, and electrical connections that come with a regular size home (D. Findlay, personal communication, Jan29, 2020). This increases the complexity of legal issues associated withdevelopment, and it increases the cost (S. Donovan, personal communication, Feb3, 2020).
As previously stated,the Plan is looking to reduce homelessness in Peterborough while also being environmentallyconscious. It is important that the design considerations take into
account the environment, functionality, and cost. Scott Donovan ofLett Architects highlighted the differencebetween building a fully functionalhome similar to Homes for Heroes in Calgary,and a motel style home. While there is time to determine design plans, eachcomes with their advantages and disadvantages. The community units in Calgaryare functioning tiny homes, with a full kitchen and bathroomfacilities. Mr. Donovan conducted his own research and drew designs based onwhat he discovered (Figures 3-7, Appendix B). A half-kitchen and full bathprovide privacy for the tenant, but the simplicity of less hook-ups in eachhome making it easier to maneuver the by-laws (S. Donovan, personalcommunication, Feb 3, 2020). The lack of corridors and common spaces in thehomes means there is less upkeep (S. Donovan, personal communication, Feb 3,2020). The installation of a utility shaft in the middle of the building makesit easier install hookups and maintain the homes (S. Donovan, personalcommunication, Feb 3, 2020).
Mr. Donovan designed the homes so that they were modular(S. Donovan, personal communication, Feb 3, 2020). Canada Builds is the companyhe referred to, and it is located in Lindsay (S. Donovan, personalcommunication, Feb 3, 2020). According to Mr. Donovan, it could cost as littleas $20 000 for each unit, using wood or gypsum as the main structural material.An exterior wrap around the entire building and the use of insulationtranslates to higher energy efficiency, working towards net-zero (S. Donovan,personal communication, Feb 3, 2020). The interior designwould use materialsthat are minimized, durable and robustso there will be less damageover time (S. Donovan, personal communication, Feb 3, 2020). Similar to Homesfor Heroes, the homes modular design would allow them to be moved in the eventthat they need to (S. Donovan, personal communication, Feb 3, 2020). That is,if other land becomes available, or there is potential for expansion (S.Donovan, personal communication, Feb 3, 2020). The double-storey designincreases density despite minimal land (S. Donovan, personal communication, Feb3, 2020).
In order to constructa tiny home community, funds need to be collected. The entire
Calgary Village cost about $3.5 million to build, with about $500 000 set aside for contingencyand long-term expenditures (D. Howard, personal communication, Jan 14, 2020).Part of this money came from Mr. Howard’s own investments, as he is anentrepreneur and Home for
Heroes is his foundation (D. Howard, personal communication, Jan 14,2020). Additional funding came from the community through apartnership/sponsorship program (D. Howard, personal communication, Jan 14,2020). Each home was dedicated to a fallen soldier, with a plaque sharinginformation about them outside of the home and the company that sponsored the build named (D. Howard,personal communication, Jan 14, 2020).It cost $100 000 to sponsor a home in the community, and this programhelped speed the development process (D. Howard, personal communication, Jan14, 2020).
The Canadian Mortgage and Housing Corporation (CMHC) isa government program that offers money to be able to build housing in Canada(D. Howard, personal communication, Jan 14, 2020). However, the application for funding is “such a laborious processand it takes so much time”(D. Howard, personal communication, Jan 14, 2020). CMHC operates by givingloans for projects with higher interest rates than the banks, and the processtakes so long that if Homes for Heroes went throughthem, the CalgaryVillage would still not be built (D. Howard,personal communication, Jan 14, 2020). Mr. Howard explained that CMHC hadapproved the project for a $2 million Innovation Fund, but eight months afterthis approval, the terms of the funds changed (D. Howard, personalcommunication, Jan 14, 2020). By working with the community, the Village wasable to be built (D. Howard, personal communication, Jan 14, 2020). IntervieweeB shared that CMHC occasionally offers grants for projects like affordable andtransitional housing, but such a grant has not been proposed in over 10 yearsaccording to Interviewee I. Interviewee P shared that the Liberal governmenthas $40 billion to put towards affordable and transitional housing through CMHC,and the processis set to be easierto access this money.
The Peterborough Housing Corporation (PHC) is aprivately funded company that currently has $35 million in the works for development (Interviewee R, personalcommunication, Feb 13, 2020). They believe that modular housing can costup to $125 000 per unit, with a large portion of the expense in trying to buildfor net-zero (Interviewee R, personal communication, Feb 13, 2020). Thetriple-framed walls, Tyvek double-ply exterior, amount of spray-foam insulationrequired, and high-end windows in order to make these homes efficient increasesthe cost because the materials are better quality (Interviewee R, personal communication,Feb 13, 2020). All this insulation produces condensation that may result inmould problems, and so
“always when you solve one problem anotheris created” (Interviewee R, personalcommunication, Feb 13, 2020).
As for the ownership model of the community, there iseither the buyer or rental option. The community in Calgary is the rentalmodel, in which Homes for Heroes own the properties and lease them to veterans (D. Howard, personalcommunication, Jan 14, 2020). Individuals who receive Ontario Works (OW) and Ontario Disability SupportProgram (ODSP) funding need an address in order to claim their money(Interviewee E, personal communication, Jan 21, 2020).
These provincial support programs provide $497 as a shelterallowance in order to pay for rent (Interviewee E, personal communication, Jan 21, 2020).The cost of affordable housingutilities, without water, can be as little as $50 (Interviewee R, personal communication, Feb 13, 2020).A tiny home model makes it easier for those with support programs to beable to afford suitable living accommodations (D. Howard, personalcommunication, Jan 14, 2020).
Mr. Howard spent two years interviewing and discussing with veterans what they needed in order to be successful ina tiny home community. The biggest feature asked for was social service support(D. Howard, personal communication, Jan 14, 2020). In Calgary, the Mustard Seedis an organization that is working towards eradicating homelessness and poverty(D. Howard, personal communication, Jan 14, 2020). Social workers, provided bythem, are available in the community common space to talk to and seek guidance(D. Howard, personal communication, Jan 14, 2020). Each resident signs acontract coming into the community (D. Howard, personal communication, Jan 14,2020). This contract outlines the period of time they will spend living in theVillage, and goals they will work towards while they are there (D. Howard, personalcommunication, Jan 14, 2020). Such goals includegetting a job, staying sober, or seeking counselling (D. Howard,personal communication, Jan 14, 2020). The contract also outlines behaviouralconditions that must be followed, including no smoking in the units and nophysical violence amongst community members (D. Howard, personal communication,Jan 14, 2020). The Mustard Seed ispresent to assist with this program, and in turn they receive money meant tohelp cover operational costs (D. Howard, personal communication, Jan 14, 2020).
The City of Peterborough has a 10-yearHousing and Homelessness Plan, looking to transition individuals out of thestreets and shelter systems, and into home ownership
(Interviewee D, personal communication, Jan 21, 2020). Theseindividuals are going to need support services to ensure their physical andmental safety (Interviewee D, personal communication, Jan 21, 2020). Whilethere are a number of different services in Peterborough that could potentiallyprovide this support, different organizations support different groups ofindividuals (Interviewee D, personal communication, Jan 21, 2020). For example,the Canadian Mental Health Association (CMHA) supports those with mental healthrelated issues, Fourcast supports those with addiction relate issues, andKinark Child and Family Services support children (Interviewee Q, personalcommunication, Feb 12, 2020). Despite the number of different systems available, these services already have a largeworkload, with an even greater waiting list full of people to help (IntervieweeD, personal communication, Jan 21, 2020). In order to have services availablein the community, it will take both a large amount of funding, and a collaborative effortby a number of organizations (Interviewee D, personalcommunication, Jan 21, 2020).
Despite the potential for support from communitypartners, the City of Peterborough itself would need to approveof the tiny home community. This poses a number of problems. The first is that the city can actuallystop the project before development (Interviewee E, personal communication, Jan21, 2020). The community is meant to house those that are in need of realsupport, and the gathering these of types of individuals can seem frighteningin the eyes of the community (Interviewee D, personal communication, Jan 21,2020). There is fear of the community being ghettoized, or potential negativerepercussions from having individuals with different needs put together(Interviewee P, personal communication, Feb 11, 2020). If the citizens ofPeterborough feel strongly enough about not having the community built, theycan file for a review of the LocalPlanning Appeal Tribunal (LPAT) (Interviewee D, personal communication, Jan 21,2020). The LPAT looks at the arguments for and against the project and dictateswhether or not it should move forward (Interviewee D, personal communication, Jan 21, 2020).The most common argument is that the community “doesn’t fit with the characterof the neighbourhood” (Interviewee D, personal communication, Jan 21, 2020).This phenomenon is known as NIMBY, or Not-In-My-Backyard (Interviewee D,personal communication, Jan 21, 2020). This fear has prevented projects frombeing developed in the past, such as other emergency shelters (Interviewee D,personal communication, Jan 21, 2020).
The Mount Community Centre built in west Peterboroughprovides transitional and affordable housing (S. Kylie, personal communication,Feb 4, 2020). The community is built on 10-acres of land, where there arecurrently 43 apartments occupied and 30-40 being constructed (S. Kylie,personal communication, Feb 4, 2020).This community has a vigorousvetting process for its tenants, and they do not currentlyprovide on-site socialservice support (S. Kylie, personal communication, Feb 4, 2020). Inthe development of these apartments, the organization faced backlash from thecommunity with regards to the potential tenants (A. van Koeverdan, personalcommunication, Feb 4, 2020). In order to combat this, the community around where the Mount is built was involved in the constructionand project planning (A. van Koeverdan, personal communication, Feb 4, 2020).They felt comfort being involved in the process, and their support for theproject has led to positive relationships with the tenants (A. van Koeverdan,personal communication, Feb 4,2020). Andi Van Koeverdan, the Directorof Strategic Advancement, and Stephen Kylie, the Chair of theMount, emphasized the importance of combatting NIMBY for the sake of development and growth in Peterborough. The Mountsupports those coming out of the shelter system, which is why they receivedcriticism in the first place (A. van Koeverdan, personal communication, Feb 4,2020). When working with these individuals, they came to find that single maleshad the hardest time transitioning and living in harmony with the other tenants(A. van Koeverdan, personal communication, Feb 4, 2020).
The second problem that can occur is that housing thehomeless in Peterborough extends beyond those coming out of the justice system.The City of Peterborough has the By-Name Priority list, and the VulnerabilityIndex – Service Prioritization Decision Assistance Tool (VI- SPDAT)(Interviewee E, personal communication, Jan 21, 2020). The By-Name Prioritylist allows the City of Peterborough to keep track of the homeless in thecommunity, and the VI- SPDAT is a survey that determines the best type ofsupport and housing intervention for the individual (Interviewee E, personalcommunication, Jan 21, 2020). Based on this information, the City keeps trackof who needs housing in Peterborough and under what environment (Interviewee E, personal communication, Jan 21, 2020).This increases the amount of people that could benefit from transitionalhousing, or housing at all, calling for a greater density of units being built(Interviewee E, personal communication, Jan 21, 2020).
This leads to the thirdproblem, that combinesthe design and construction of the project, as well as the number of peopleto house. This problem is the belief that an apartment building
can house more individuals and serve the residents the same as atiny home community (Interviewee P, personal communication, Feb 11, 2020). Thismodel is currently in practice for affordable housing (Interviewee G, personalcommunication, Jan 27, 2020). In it, tenants pay what they can afford to pay(Interviewee G, personal communication, Jan 27, 2020). For example, anindividual on ODSP and OW may only pay $100 for rent, while a neighbour ispaying market value for an apartment in the same building (Interviewee G,personal communication, Jan 27, 2020). This is beneficial because it means thatthose individuals choosing to live there and pay the market rate can be seen assupport for those who need it (Interviewee G, personal communication, Jan 27,2020). Mixed housing, however, has the potential to create tensions betweenthose who pay less and those who pay more (Interviewee I, personalcommunication, Jan 29, 2020). It is important to remember that the communitycannot be forced to accept a tiny home project, so they need to be included inthe conversation (Interviewee Q, personal communication, Feb 12, 2020). Thecommunity will be more likely to accept a project like this if has been shownto be successful, or it is a pilot (Interviewee Q, personal communication, Feb 12, 2020).In other words,if the project has a chance to prove itself and the benefits it brings, thecommunity will be more likely to give it a chance (Interviewee Q, personalcommunication, Feb 12, 2020).
The Mayor of Peterborough, Mayor Diane Therrien, isworking hard towards decreasing homelessness in Peterborough. While remainingopen and impartial to the idea of a tiny home project she stated that, ”if it’sgoing to improve the environmental outlook of the land, going to house people,provide safe accommodations for marginalized folks, provide an economicargument, and in a community setting, these can all be used as a rationale forwhy this should be supported” (D. Therrien, personal communication, Feb 5, 2020).There are many people working together to try and come up withthe best solutions for Peterborough, and all options are being considered (D.Therrien, personal communication, Feb 5, 2020). Mr. Kylie and Ms. van Koeverdanwere aware of the development of a 4-plex model in Lakefield, Ontario, wherefour units were connected to a common area in the middle of them. Thisdemonstrates the variety of designs possible for affordable and transitionalhousing.
Interviewee G also provided insightinto possible construction materials. Greg Livingsis an individual that reuses old shipping containers to construct homes(Interviewee G, personal communication, Jan 27, 2020). Although the containerswould be inexpensive to purchase and environmentally conscious, to outfit them as functional homeswould be expensive (Interviewee H, personal communication, Jan 27, 2020).
The overall question to be addressed is whether or not atiny home community can be constructed in the City of Peterborough. Throughoutthe duration of this research I have concludedthat it is possible. I have highlighted three factors that need to be resolvedin moving forward with thisresearch.
The first issue to address is the land availability inthe city, and the regulations related to zoning, by-laws and the OBC. In orderfor this community to be functional for its tenants, they need to be able toaccess services in the City. Homelessness is very apparent in downtownPeterborough, where there are shops and restaurants that can provide food andshelter. Thus, the community must either be built in the downtown area, or inan area where these services are present. There is very little land availabledowntown, and what is available would require extensive cleanup prior to the beginningof development. Mr. Donovan pointedout the cornerof Sherbrooke and Bethune, as well as the corner of Alymer and Wolfe forpotential land opportunities. He stated that a project like this is not a “build it and they will come”, but more ofa “build it where they are” because where they are provides things they need.Moreover, the Mount has about 2.5 acres of land that can be developed throughthem. Peterborough Housing Corporation also has land all over the city thatthey procured in the past, which they can reuse and redevelop as required. What is important totake away from this is that land in Peterborough is very limited, especially for a projectthat requires so much. Regardless of the issueof trying to procure property, there is communicationbetween the City and organizations in the City it can be possible to obtainsome. Land can either be bought or donated, however the severing of land is alengthy process.
Land that is acquired must have a residential zoning. Asa result of this zoning, there are minimum requirements each unit must have. Where Homes for Heroes in Calgary has their units equipped with a full kitchen andbathroom facilities, it is clear that this will cause problems in Ontario as itis a stricter building code. The units themselves are allowed to be smallenough to fit the definition of a tiny home, however a designmust be finalized that issuitable according to the OBC. Other communities around theworld have followed a number of different layouts, functions and designs. Thedesign essentially needs to go one of two directions: closer to an
independent and full-functioning unit such as the Calgary Village,or a more simplistic design such as Dignity Village. There are advantages anddisadvantages to both models, however the biggest difference is that theCalgary Village provides complete independence for the tenants, where DignityVillage takes a more collaborative approach. Conversely, the OBC providesred tape in its role of setting requirements for what a home needs,which can be hard to maneuver and expensive to implement.
The recommendation being made with regards to theseissues is two-fold: determine a design plan, which will resolvewhat the size of the property for development should be. In orderto achieve this, meetings need to be set with architects, builders, and thePlanning and Building Department to continue research and development. Mr.Donovan designed his double-storey motel-style tiny home community with theidea that all people really need is a place to put their stuff. Those who needsupportive and transitional housing just want to feel safe and as though theyhave a place to go, and this model would assist them in maintaining a betterlife.
The second issue is the amount of resistance towardsa project like this. When conductingmy interviews, it was clear that the individuals were skeptic as to whether ornot this model could be successful.The need for support systems, the behaviour of the tenants, the potentialghettoization of the community, andthe small-scale of theproject were all argumentsbrought up as to why this model would not be successful. The only way tinyhomes will work in Peterborough is if the communityis open-minded aboutthem. The difference between building a tiny home community and an apartment buildingwith affordable and transitional housing, is the sense of community. Theargument was made that services can be implemented in an apartment building,and individuals that choose to reside in this mixed model can provideadditional support. The problem is that an apartment building is too big, andservices will not be able to properly engage with those who need it. It iscommon knowledge that the waiting list of individuals seeking support is longerthan those receiving it, so significantly increasing the workload is not going be possible. In order to effectively care for the individuals that would be inthe community, a collaborative effort needs to be made. Support aids in thecity need to come together in order to serve a variety of concerns that wouldarise.
The employment of a number of different organizationscoming together will serve to ease the minds of the citizens of Peterborough.There are measures that can be taken in order to prevent this project going forward, but efforts can be made in order to help get the City on board.In having commitment from social services to assist those that need it,citizens of Peterborough can feel comfort in the fact that there is an effortbeing made not just to house the homeless, but to rehabilitate them. Althoughproviding a place to live in itself is a good first step, the implementation ofassistance serves as security for those who worry about those in the community.Tent City in the summer of 2019 was a visual representation of how bad homelessness has become in Peterborough. Innovation and change cannotoccur if people are not open to new ideas and strategies.Whether marginalized individuals are housed in a tiny home community orapartment buildings, there is going to be pushback because people are worriedabout potential repercussions.
The strongest argument for a tiny home village is thesense of community it brings for its tenants. In an apartment building, whetherit houses a mixed population or solely marginalized individuals, there are toomany degrees of separation. It is impossible to effectively manage a largegroup of people when you may literally never cross paths with them. That is,two individuals that live in the same building can go without ever seeing oneanother. The goal of transitional housing is to assist those who need supportin order to get their life on track, so that they can operate as functioningmembers of society. It is imperative that the appropriate amount of attentionis paid to each person. In a smaller setting, it is noticeable when someone isnot seen or heard from for an extended period of time. This provides a level ofaccountability for the residents and allows a united effort towards positivechange, and the responsibility extends to eachtenant for their own behaviour. Namely, they have a duty to themselves to keep their homesin a presentable condition, to contribute to the well-being of the community, and to work on their own progress. Through themaintenance of a community garden, sharing of a common kitchen, increasedresponsibility, and therapeutic measures, the group-oriented setting is optimalfor reintegration into society.
Homes for Heroes and the Mount Community Centre eachhave a code of conduct that tenants must sign on to and follow in order to livethere. The tiny home village in Peterborough would benefit from the enforcementof strict rules to prevent inappropriate and dangerous behaviour. The Mount has previously had issues where individuals have been evictedas a result of breaking the code of conduct. Marginalized individuals need to learn to operate as respectfuland independent members of society, and there are rules that need to befollowed in the conduction of this. It is this improvement in behaviour thatwould stem from the a tight-knit, supportive community.
Something that needs to be addressed is the target groupthat would be housed in the community. Through this research it has been madeclear that the scope of the problem extends far beyond individuals coming outof the justice system. A decision needs to be made as to who this communitywants to focus on. Is the population of those coming out of incarceration largeenough, and do they pose such a problem in Peterborough that they are the onlygroup that should be included in this community? Or, should the greater issueof homelessness in Peterborough be addressed? Once that has been determined, amore tailored approach can be made. Research needs to be conducted toacknowledge what the needs of these community members are. Mr. Howard spent twoyears talking to veterans so that they have amenities in place to enhance theirsuccess, and the same effort needs to be made here. There needs to be aconversation with these marginalized individuals to get a sense of what needsoverlap, where they differ, and what stepscan be taken to accommodate the majority. Otherwise, a village could be constructed without essentialaspects and services.
The recommendation is to reach out tothe City and open the line for communication.
Services and community members can voice their opinion on the matterand be educated on the tiny home movementin Canada. It is important to note that Mr. Howardis currently in talks with the Minister of Building in Ontarioto bring Villages into the province. His foundation can be shared as a successstory, as homeless veterans would experience similar problems as those coming out of the justice system or in homelessness in Peterborough.
The third issue is that funding needs to be secured forthe initial development of the community, but also for upkeep and maintenanceonce it is functioning. While CMHA can providefunding for affordable and transitional housing,interviewees voiced their frustration in the volume of red tape and amount oftime the process takes. Therefore, it is recommended to again turn to thecommunity and involve them in the process.
This project is not a massive skyrisedevelopment meant to simply house the population, but rather an effort to assistthose in the City that need it the most. There is the potential for funds to bedonated, like the sponsorship program that Homes for Heroes implemented.
Similarly, there is a call to the variety of social serviceorganizations in Peterborough to take a standtogether and work towards decreasing homelessness. These organizations could potentially buya unit in the village for the purpose of housing those in their system. Thepurchase of a unit would cover the initial costs of building and maintenance.The tenant can pay to rent the home with the shelter allowance they would beprovided. For example, the HSJCC could have five units that they own in acommunity of 20 homes. These units are their responsibility in ensuring maintenanceand financial support, however the tenant must follow the rules of thecommunity.
Unfortunately, there is little fundingthat the City can offerfor a project like this. That is why it is recommended to discussaffordable and transitional housing with the province. It is in their bestinterest to try and resolve homelessness, so they are encouraged to take partin the solution. Additional research should be conducted to find wherealternate forms of funding can come from. With regards to the cost of building,BIM can be implemented through local high school programs and the Fleming TradeSchool. This project provides an opportunity for experiential learningand would decreasethe cost of production as both labourand development fees would beeliminated.
Ultimately, a tiny home communityin the City of Peterborough is a possibleresolution to a myriadof problems. The most important step to take to ensurea reduction in homelessness and see this project move forward, is toinclude the community in the process. Their involvement would be beneficial forevery problem that is addressed in this research and development. With the Cityon the positive side of change, these ongoing concerns will begin to decreaseand make for a stronger community within Peterborough.