Part B: Ministry of Office of Housing and Construction Standards — Continued

Report on Performance

Performance Summary Table

The following table summarizes the Office of Housing and Construction Standard's performance in relation to the performance measures identified in the 2005/06 Service Plan. For a detailed comparison of goals, objectives and performance measures in the 2005/06 Service Plan versus those presented in the 2006/07 Service Plan refer to Appendix B2.

Goal 1: BC's most vulnerable citizens have access to short and long term social housing.

The most acute need for housing is found among low income people who have special housing and support needs. Included in this group are people with mental or physical disabilities, the frail elderly, the homeless or those at risk of homelessness and individuals or families who have experienced domestic violence. Government's response to this group is not limited to housing, but also includes providing health and other social supports. This group is often referred to as "the most vulnerable".³ Research indicates that by providing adequate, stable and affordable housing to the most vulnerable, government can reduce its costs in health care and other social service areas.⁴

With the emphasis on fiscal sustainability, government housing assistance is shifting away from a broad-based approach with potential eligibility available for any low income household or person considered to be in Core Housing Need.⁵

The new approach stresses meeting the needs of our most vulnerable citizens. Housing resources would first and foremost be used to meet the needs of priority vulnerable groups. This focused approach requires increasing the transitional nature of social housing and developing programs to move social housing tenants along the housing continuum, from government dependence to self-sufficiency.

To support government's efforts to help those most in need of housing and support, a new Provincial Housing Strategy will be unveiled in 2006. The Strategy is a comprehensive blueprint for improving the range of housing choices available for British Columbians and will enhance the safety and stability of B.C.'s housing system.


³	The "Most Vulnerable" are defined as those individuals who have a low income and a special housing need that inhibits their ability to find appropriate housing in the private market. A special housing need refers to the requirement for accessibility modifications or provincially funded support services in order to live independently in the community.
⁴	Eberle, Margaret, Deborah Kraus, Steve Pomeroy, and David Hulchanski. 2001. Homelessness: Causes and Effects. Volume 3. The Costs of Homelessness in British Columbia. Victoria: Ministry of Social Development and Economic Security.
⁵	Core Housing Need is the national standard that measures housing need. Canadian households are considered to be in core housing need if they do not live in and could not access housing that is in adequate condition and of suitable size without paying more than 30 per cent of gross household income.

Objective 1: Housing and social support services are integrated and targeted to those in greatest need.

Integration of housing services, supports and resources is required to improve people's graduated independence along the housing continuum from temporary shelters — to transitional housing — to supportive or permanent housing.

Recent research indicates that the most effective approach to addressing homelessness is the "continuum of care" model. The model emphasizes the delivery of supportive housing with integrated support services. Benefits are not only better health and personal outcomes for homeless people but also avoidance of higher cost institutional services (i.e., hospitals, emergency health services and correctional facilities).

With the shift to serving BC's most vulnerable citizens first in subsidized housing, linking housing with other social supports has become increasingly important. This shift requires clearly defined roles and responsibilities as well as new working relationships among the partners supporting vulnerable subsidized housing tenants. Partnership strategies and initiatives are key to ensuring the availability of appropriate programs and services.

Measure 1.1.1	2005/06Target	2005/06Actual	Variance	Target Met?
Develop a comprehensive provincial housing strategy	Substantially complete development of a strategy	Substantially complete development of a strategy	None	Target achieved
Data Considerations/Selection Rationale Development of a provincial housing strategy required a review of existing housing programs and assets and a refocusing on what government involvement should and can realistically aim to achieve, given limited resources.
Variance Explanation No variance. Target achieved.
Data Sources and Issues Internal data.
Changes to the Measure This measure was dropped in the 2006/07 Service Plan because it had been substantially achieved by the end of 2005/06. Additional funding was provided in the 2006/07 budget for Housing Strategy initiatives.

Measure 1.1.2	2005/06Target	2005/06Actual	Variance	Target Met?
Percentage of tenants belonging to assisted priority groups	82%	84%	2%	Target exceeded
Data Considerations/Selection Rationale Current priority groups include seniors, persons with physical or mental disabilities, and individuals who are homeless or at risk of becoming homeless, including women with their children fleeing abuse. The target reflects the number of households currently living in subsidized housing or receiving assistance in the private market that come from one of the designated priority groups who face a combination of challenges in addition to low income. The percentage of households assisted from one of the designated priority groups will continue to increase as existing units turn over and new units reach completion. Out of the total inventory of 59,427 subsidized households and units, approximately 49,731 were serving one of the designated priority groups.
Variance Explanation Enhancements to the SAFER program, the transfer of responsibility for the Province's Emergency Shelter Program and the completion of 1,583 units under different programs resulted in the net increase in priority groups being assisted.
Data Sources and Issues The source for this data is BC Housing.
Changes to the Measure The new measure for this Objective in the 2006/07 Service Plan is "Percentage of assisted clients belonging to priority groups". The targets related to this measure will be revised to include the effect of the SAFER program enhancements included in the BC Budget. It is expected that additional information to update this target will be available in the 2007/08 Service Plan.

Measure 1.1.3	2005/06Target	2005/06Actual	Variance	Target Met?
Number of frail and low income senior households assisted through provincial housing programs	34,800	36,860	2,060	Target exceeded
Data Considerations/Selection Rationale Demonstrates the provinces commitment to meeting the needs of frail and low income seniors by reporting on the number of senior households assisted through the Independent Living BC program and existing housing resources.
Variance Explanation There were a total of 36,860 seniors assisted through the various housing programs including SAFER, ILBC and the existing inventory of subsidized housing. The enhancement to the SAFER program announced in September 2005 resulted in performance being above the target for 2005/06.
Data Sources and Issues The source for this data is BC Housing.
Changes to the Measure This measure was revised in the Ministry's 2006/07 Service Plan to focus on the "Number of units/beds created or adapted for priority clients". The change helps to expand the focus from the frail elderly to include other vulnerable groups such as persons with physical or mental disabilities, women and children who have experienced domestic violence as well as those who are homeless or at risk of homelessness. Seniors receiving rental assistance in the private market will be included in the measure "number of senior households assisted through housing programs". This new measure reports on the efficiency of the use of the existing housing stock with the long-term objective being to identify strategies that will help to ensure that the needs of vulnerable British Columbians are being met.

Objective 2: Individuals in need have access to safe emergency shelter.

Homelessness is a serious issue faced by some British Columbians. As a first step in addressing the needs of the homeless, government provides emergency shelter bed funding to community agencies to assist individuals who are temporarily without accommodation. Funding provides for year-round beds and is enhanced during the winter months, when additional beds are needed most.

The economic and social cost of homelessness to Canadian communities is extremely high. Recent research in British Columbia estimates the cost of homelessness at $30,000 to $40,000/person for one year.⁶ The IBI Group estimates that the societal cost of homelessness in Canada is approximately $1.4 billion per year.⁷ The greatest expenditures are in health care, criminal justice, social services and shelters. Ensuring vulnerable populations have access to secure housing and support services at an early stage reduces the demand and costs on institutional and emergency support systems.


⁶	Eberle, Margaret, Deborah Kraus, Steve Pomeroy, and David Hulchanski. 2001. Homelessness: Causes and Effects. Volume 3. The Costs of Homelessness in British Columbia. Victoria: Ministry of Social Development and Economic Security.
⁷	IBI Group. 2003. "Societal Cost of Homelessness". Prepared for the Edmonton Joint Planning Committee on Housing and the Calgary Homelessness Foundation.

Measure 1.2.1	2005/06Target	2005/06Actual
Percentage of available shelter beds accessed	TBD	2005/06 Service Plan measure was to be determined Measure replaced in the 2006/07 Service Plan
Data Considerations/Selection Rationale Emergency shelters are an important point of access for moving an individual to the next stage in the housing continuum. This measure reports the capacity of the emergency shelter system and the ability of those who are homeless to access one of the 1,260 shelter beds under the Province's Emergency Shelter Program.
Variance Explanation Target not determined.
Data Sources and Issues The source for this data is BC Housing. Measuring success in alleviating homelessness is very difficult because of the transient nature of the population and the lack of information collected. This measure allows government to track emergency shelter bed usage and will help ensure resources are allocated where they are needed most.
Changes to the Measure The new measure for this objective in the 2006/07 Service Plan is "Percentage of nights where shelters are at full capacity." BC Housing assumed responsibility for this program in November 2005. Accordingly, there are limited operating data at this time. However, a system for tracking and reporting on this measure has been established, and baseline data will be available for 2006/07. In measuring results, it is important to recognize that a range of external factors can influence the outcomes, such as differences across regions, client groups and seasons. These factors will be included in the baseline analysis to ensure that appropriate information is being collected.

Goal 2: Low and moderate income households have an expanded range of housing options.

Affordable rental housing in the private market is becoming increasingly scarce, particularly in Greater Vancouver and Victoria. The Vancouver CMA⁸ vacancy rate is 1.4 per cent with the Victoria CMA vacancy rate even lower at 0.5 per cent.⁹ This is due primarily to the lack of new affordable housing supply, coupled with a booming economy and an in-migration of workers.

There is minimal construction and investment in affordable rental housing in the private market and those units being added are in the higher rent ranges. Evidence suggests that in spite of the high levels of demand, market rent levels are below the levels required to generate a reasonable return on investment.

Investor-owned condominiums and secondary suites in new and existing homes are areas where affordable rental housing is still growing. Over the past few years, the province has worked closely with local governments to promote the development of affordable market rental housing and permissive secondary suite bylaws and this work will continue.

To enhance affordability and increase housing options, tools, guides and workshops are developed in partnership with local governments, non-profit housing providers and industry. Planning guides assist with addressing a number of housing issues: secondary suite programs, community planning initiatives, design guidelines, financial incentives and land use planning and zoning tools. Legislation has been introduced to allow developers access to purchasers' deposit monies if those monies are appropriately insured. By lowering development costs, it is expected that the consumer will benefit.

Effective October 1, 2005, the Provincial Government doubled its funding for rent assistance under the Shelter Aid for Elderly Renters (SAFER) Program. Rent ceilings have been increased across the entire province, and separate rent ceilings have been established for the higher average rents in the Greater Vancouver Regional District. The program has also been expanded to include seniors who pay pad rental fees for owner-occupied manufactured homes.


⁸	CMA = Census Metropolitan Area.
⁹	CMHC Rental Market Report, BC Highlights October 2005 Survey.

Objective 1: Local governments have access to information and planning tools to achieve their goals with respect to affordable housing options in their communities.

The ability to impact market housing affordability is limited. Local governments are best placed to improve the affordability of market housing through innovative planning and development practices. The province is committed to improving access to information on best practices in this area.

As part of an educational strategy, the Office is working with local governments and industry stakeholders to develop and deliver customized workshops on improving market housing affordability. The Office initiated partnerships with other ministries and local governments to help address affordable housing challenges resulting from oil and gas industry expansion in north-eastern British Columbia.

Every three years starting in 1996, the province has surveyed all local governments to measure the use of planning tools that promote housing affordability. The results of the survey are summarized and published, and are useful for local governments to describe advances in planning for housing affordability.

Measure 2.1.1	2004/05 Baseline	2005/06 Target	2005/06 Actual	Variance	Target Met?
Percentage of local governments in communities over 100,000 that apply affordable housing planning tools and techniques	69.9%	Data not available	Data not available	N/A	N/A
Data Considerations/Selection Rationale Use of these tools indicates local governments are enhancing their capacity and moving toward the goal of improved housing affordability.
Variance Explanation N/A
Data Sources and Issues Survey completed every three years.
Changes to the Measure No change to this measure in the 2006/07 Service Plan.

Objective 2: Partnership opportunities that explore innovation in housing are promoted and supported.

The annual number of partnerships does not allow for a representative data sample to accurately measure significant benefits in the area of housing affordability. As such, it is being removed from the Office's performance measures and will not be reported upon in 2006/07.

Objective 3: Senior renters can afford to continue living independently in their own homes.

Effective October 1, 2005, many seniors across B.C. have benefited from a $16.6 million increase to the Province's Shelter Aid for Elderly Renters (SAFER) Program. The SAFER budget will nearly double to $34.1 million in 2006/07 and the average payment to eligible recipients will rise from $105 to $169 each month.

Rent ceilings have increased, creating expanded eligibility for the program and bringing them in line with average market rents for bachelor suites and one-bedroom apartments. For the first time, separate rent ceilings have been established for the Greater Vancouver Regional District to reflect local market conditions. Seniors faced with significant pad rental fees in owner-occupied manufactured homes are now eligible for SAFER benefits.

Goal 3: Landlord and tenant relationships are improved.

The Residential Tenancy Branch provides landlords and tenants with information and dispute resolution services, including arbitration.

An effective residential tenancy system assists landlords and tenants to resolve disputes on their own. The Residential Tenancy Branch contributes to this process by providing publications, workshops, and information about landlord and tenant rights and responsibilities through telephone, e-mail and in-person contacts.

Landlords and tenants who cannot resolve disputes on their own may ask the Residential Tenancy Branch to provide dispute resolution services. The dispute resolution process allows Information Officers to take a more active role in helping landlords and tenants resolve disputes. The aim of this process is to improve communication between the parties and help resolve disputes before they escalate to arbitration. When necessary, landlords and tenants may apply for arbitration — a quasi-judicial process where an arbitrator conducts a hearing and makes an impartial, binding decision on the parties. Decisions are based on the law and the evidence brought forward at the hearing.

Objective 1: Landlord and tenant disputes are resolved in a timely manner.

An important objective of the Branch is an effective residential tenancy system where landlord-tenant disputes are resolved in a timely manner. The Residential Tenancy Branch conducts approximately 18,000 arbitrations annually. With such high demand, the Branch strives to provide timely, efficient, and cost-effective services. The more quickly disputes are resolved, the better the rental market can function.

Measure 3.1.1	2005/06Target	2005/06Actual	Variance	Target Met?
Percentage of residential tenancy arbitrations scheduled to take place within six weeks or less	92%	70%	(22%)	Not met
Data Considerations/Selection Rationale This measure reflects the ability of government to meet statutory time limits for arbitration. Fluctuations in population, vacancy rates and availability of arbitrators influence the ability to meet targets.
Variance Explanation The number of applications for arbitration increased in 2005/06 while there was a reduction in the number of arbitrators available to hear disputes. Proposed amendments to legislation will authorize the director to hire full time staff arbitrators and to fast track some common types of disputes. This will improve efficiency and ability to meet targets in future years.
Data Sources and Issues Residential Tenancy Branch internal records (scheduling system).
Changes to the Measure N/A

Measure 3.1.2	2005/06Target	2005/06Actual	Variance	Target Met?
Percentage of residential tenancy disputes resolved without arbitration	2005/06 Service Plan measure was to be determined Measure dropped in the 2006/07 Service Plan
Data Considerations/Selection Rationale Information is provided to landlords and tenants through various formats — written publications, website, telephone calls, e-mails, presentations, and other organizations. The Residential Tenancy Branch does not keep records of contacts unless arbitration is involved.
Variance Explanation N/A
Data Sources and Issues N/A
Changes to the Measure Measure dropped in 2006/07 Service Plan. Although the Residential Tenancy Branch has data on disputes that are brought to arbitration, the Branch has no information on disputes that landlords and tenants resolve on their own.

Goal 4: A safe built environment where social, economic and safety interests of participants are balanced.

Many different parties contribute to safety in the built environment, including designers, builders, building owners and various levels of government. The provincial role is to support safety in buildings through regulations and a regulatory framework that is consistent throughout British Columbia. Because there are many parties, there are also many interests, each with its own emphasis. The Office of Housing and Construction Standards seeks to balance the social, economic and safety interests of the participants in the system to achieve safety.

Objective 1: Policy and legislative frameworks maintain or enhance safety, health and accessibility in the built environment.

In 2005/06, the Office of Housing and Construction Standards began a system-wide review of regulations that support safety in the built environment, with a focus on regulations affecting building designers, builders and building owners. During the year, the Office of Housing and Construction Standards assessed the need for change, and, with the help of industry participants, found changes would improve the regulatory framework.

Measure 4.1.1	2005/06Target	2005/06Actual	Variance	Target Met?
Objective-based BC Building Code and BC Fire Code adopted	Adopt codes	New codes not adopted	New codes not adopted	Not met
Selection Rationale Building and Fire Codes are continually being renewed, in response to new building science, new technologies and new building practices. The 1998 BC Building Code and BC Fire Code were scrutinized over the past eight years, and changes have been recommended. Adoption of the BC Building Code and BC Fire Code is tied to publication of the model National Building Code of Canada and the model National Fire Code of Canada, on which the BC codes are based. The provincial government has committed to increasing harmonization with the model national codes, which ties British Columbia to the model national codes production schedule.
Variance Explanation The Office of Housing and Construction Standards did not publish the next edition of the BC Building Code and BC Fire Code in 2005/06. The BC Building Code and BC Fire Code are based on the model National Building, Plumbing and Fire Codes. All provinces and territories, including BC, are more involved than previously in the development of the model National Building, Plumbing and Fire Codes. As a result of increased provincial-territorial involvement, there were delays in issuing the model national codes. British Columbia was subsequently delayed in including its variations.
Data Sources and Issues N/A
Changes to the Measure The Minister Responsible for Housing is expected to adopt the next edition of the BC Building Code and BC Fire Code in 2006/07. This measure appears in the 2006/07 Service Plan in relation to a new objective "Relevant and responsive codes, standards and regulatory systems in place", and reflects work associated with ongoing code development. A new unrelated performance measure "Home warranty claims within industry norms" replaces this measure in relation to the new related goal "Safety is achieved in the built environment" and objective "BC homeowners are protected".

Measure 4.1.2	2005/06Target	2005/06Actual	Variance	Target Met?
Percentage of code users benefiting from objective-based BC Building Code and BC Fire Code	2005/06 Service Plan measure was to be determined Measure dropped in the 2006/07 Service Plan
Data Considerations/Selection Rationale Because the BC Building Code and BC Fire Code, like the model national codes on which they are based, are being produced for the first time in an objective-based code format, it is worthwhile to determine whether code users are benefiting from the additional information offered through objectives, functional statements, intent statements and application statements. However, since there is only one format of the BC Building Code and BC Fire Code in effect at any one time, it may be difficult to quantify the benefits of the format.
Variance Explanation The Office of Housing and Construction Standards did not assess whether code users are benefiting from the objective-based BC Building Code and BC Fire Code because the codes were not yet available to code users.
Data Sources and Issues No data available.
Changes to the Measure Measure dropped in 2006/07 Service Plan. This and other measures related to the new related objective "Relevant and responsive codes, standards and regulatory systems in place" were replaced in the 2006/07 Service Plan with the new measure "Safety index to be established and safety trends maintained and improved."

Measure 4.1.3	2005/06 Target	2005/06 Actual	Variance	Target Met?
Safety trends by sector are maintained or improved	Indicators refined and data collected	Indicators identified Data collection system improvements underway	None	Target achieved
Data Considerations/Selection Rationale The BC Safety Authority, in accordance with the requirements established in the Administrative Agreement to develop an annual state of safety report, have selected indicators and are collecting data that support the indicators. Work is ongoing to improve the quality of the data collected.
Variance Explanation No variance. Target achieved.
Data Sources and Issues Data are collected by the BC Safety Authority.
Changes to the Measure This measure was modified in the 2006/07 Service Plan to recognize the establishment of a safety index that will measure and assess the performance of the province's technical safety framework in achieving acceptable public safety outcomes.

Objective 2: The building safety regulatory system is responsive to the changing needs of system participants.

In 2005/06, the Office of Housing and Construction Standards prepared recommendations for modernizing and rationalizing relevant regulations to achieve safety in the design, construction and occupancy of buildings with significant input from various system participants. Government directed the Office of Housing and Construction Standards to proceed with a Modernization Strategy, which focuses on the following five areas where the potential for change will have the greatest impact:

Information management and system performance
Liability and risk
Competency
Consistent code application
Consistent code compliance and enforcement processes.

Measure 4.2.1	2005/06Target	2005/06Actual	Variance	Target Met?
Prepare recommendations for modernizing and rationalizing the building safety regulatory system	Make preliminary recommendations by Fall 2005	Preliminary recommendations made	None	Target achieved
Data Considerations/Selection Rationale Over the past 25 years, industry associations have made many submissions to the provincial government calling for reform of building regulations. In 2003, the provincial government moved forward with reform through adoption of the Safety Standards Act. It then shifted attention towards the system to achieve safety in the design, construction and occupancy of buildings. The first step towards reform was taken in 2005/06, with a comprehensive review of the need to reform the regulatory framework. In 2005/06, success was measured by achievement of this review.
Variance Explanation N/A
Data Sources and Issues Information was gained through: Review of submissions made to the provincial government between 1980 and 2005. Workshops with industry representatives to confirm issues identified and to seek concurrence on critical issues to address.
Changes to the Measure Measure dropped in 2006/07 Service Plan because it has been achieved. This and other measures related to the new related objective "Relevant and responsive codes, standards and regulatory systems in place" were replaced in the 2006/07 Service Plan with the new measure "Safety index to be established and safety trends maintained and improved."

Measure 4.2.2	2005/06Target	2005/06Actual
Provide updated and improved technical regulations for the minister's review annually	Refine and update regulations	2005/06 Service Plan measure was to be determined Measure replaced in the 2006/07 Service Plan
Data Considerations/Selection Rationale Continuous improvement in technical regulatory structure is essential to allow BC to benefit fully from changes in technology and industry practice.
Variance Explanation N/A
Data Sources and Issues Identification of changes to recommend to the Minister occurs through discussions with the BC Safety Authority and a broad range of stakeholders concerning improvements in consistency and flexibility.
Changes to the Measure Discussions with the BC Safety Authority and a broad range of stakeholders concerning improvements in consistency and flexibility are ongoing. As continuous improvement is essential to allow BC to benefit fully from changes in technology and industry practice, this and other measures associated with the new related objective "Relevant and responsive codes, standards and regulatory systems in place" were replaced in the 2006/07 Service Plan with the new measure "Safety index to be established and safety trends maintained and improved."

ANNUAL SERVICE PLAN REPORTS 2005/06Ministry of Forests and Range andMinister Responsible for Housing