Social Service Managers in Ontario

Service Managers are municipalities or districts in Ontario that have been assigned by the provincial government to be responsible for planning, allocating funding, and delivering community (social) services, primarily housing and homelessness services, but including:

• Community Housing – provides community and social housing, rent supplement programs and manages and develops affordable housing programs. Community housing is housing owned and/or operated by local housing providers (PHC), non-housing corporations, and housing co-operatives.
• Homelessness Initiatives and Prevention – provides financial assistance, life stabilization services, funding for community initiatives that address poverty, food insecurity and homelessness.
• Children’s Services – central role in planning, funding, administration and operation of early years and licensed child care services, municipally-administered child care services, as well as delivering Ontario’s Child Care Fee Subsidy program. Service managers are given the role of Service System Managers (SSM) in Section 2 of O. Reg 138/15 under the Child Care and Early Years Act, to manage child care services and early years programs across the province.
• Ontario Works – providing case management, stability and employment supports, and service navigation for Ontario Works delivered on behalf of the Ministry of Community and Social Services as per the Ontario Works Act. Initial application and eligibility decisions are handled by the Ministry through a centralized intake.

Service Managers typically sign agreements, fund, or coordinate with local frontline service delivery organizations to deliver services, including:

• Social Housing Services Corporations (non-profits and co-operatives)
• Local Housing Corporations
• For-profit housing providers
• Emergency shelters
• Transitional housing providers
• Child care centres (municipally funded)

They are designated by the Ontario provincial government:

[Section 6 of O. Reg. 367/11] shall designate the municipalities and district social services administration boards that are service managers for the purposes of this Act.

Section 11 of the HSA

They must prepare a Housing and Homelessness Plan that addresses matters of provincial interest and policy statements issued:

Each service manager shall have a plan to address housing and homelessness.

Section 6 of the HSA

The Minister of Municipal Affairs and Housing issues policy statements with provincial interests to inform these plans at least every 10 years:

For the purpose of guiding service managers in the preparation of their housing and homelessness plans, the Minister may, with the approval of the Lieutenant Governor in Council, issue policy statements on matters relating to housing or homelessness that are of provincial interest under section 4.

Section 5 of the HSA

They must take action to meet the targets relating to local housing needs as laid out in their Housing and Homelessness Plan:

A service manager shall, in accordance with its housing and homelessness plan, carry out measures to meet the objectives and targets relating to housing needs within the service manager’s service area.

Section 12 of the HSA

They may fund, build and provide housing and programs directly to accomplish their goals:

A service manager may establish, administer and fund housing and homelessness programs and services and may provide housing directly.

Section 13 of the HSA

There are two types of service managers:

• Consolidated Municipal Service Managers (CMSMs) are the service managers that are municipalities
• District Social Services Administration Boards (DSSABs) are the service managers for the 10 districts in northern Ontario where is was no municipal government with the legal jurisdiction to act as a Service Manager. They are established under the District Social Services Administration Boards Act.

Service Managers’ service areas

The municipalities, regions and areas that each Service Managers in Ontario are responsible for providing services for are outlined in Schedule 2 of O. Reg. 367/11: General under the Housing Services Act:

Find your local Service Manager

Current provincial interests

For the purposes of sections 5 and 6, it is a matter of provincial interest that there be a system of housing and homelessness services that,

• (a) is focussed on achieving positive outcomes for individuals and families;
• (b) addresses the housing needs of individuals and families in order to help address other challenges they face;
• (c) has a role for non-profit corporations and non-profit housing co-operatives;
• (d) has a role for the private market in meeting housing needs;
• (e) provides for partnerships among governments and others in the community;
• (f) treats individuals and families with respect and dignity;
• (g) is co-ordinated with other community services;
• (h) is relevant to local circumstances;
• (i) allows for a range of housing options to meet a broad range of needs;
• (j) ensures appropriate accountability for public funding;
• (k) supports economic prosperity; and
• (l) is delivered in a manner that promotes environmental sustainability and energy conservation.  2011, c. 6, Sched. 1, s. 4 (1).

Section 4 of the Housing Services Act

Service levels required

Service levels prescribed for Service Managers (Section 19 and 22)

Schedule 4 of O. Reg. 367/11 under the Housing Services Act, 2011 lists the prescribed service levels for each service manager in Ontario. The first number is how many rent-geared-to-income (RGI) units are required, the next is how many of those need to be for high need households, and the last is how many need to be accessible units.

Example: Kingston

Kingston responsible for maintaining a service level standard of 2,003 RGI units in the Kingston and Frontenac service area. The Housing & Social Services Department oversees the social housing system which includes:

• 15 non-profit housing providers that currently manage and directly operate 1,513 RGI units.
• Remainder of RGI units are secured through rent supplement agreements with private and non-profit housing providers, and recipients of the local Portable Housing Benefit (PHB).
• There are 61 municipally funded housing units, with tenants paying no more than 30% of their adjusted family net income or, if on social assistance, rent is no more than maximum shelter allowance which counts towards the City of Kingston’s service level standards.

Social housing units and PHB benefits are accessed by way of the centralized waiting list (CWL) which is maintained by the Social Housing Registry.

Responsibilities

Service Managers are responsible for establishing policies that create an environment that promotes affordable housing development by:

• Setting the local/district vision for housing through Housing and Homelessness Plans
• Contributing to and coordinating housing funding
• Developing and administering housing and homelessness programs
• Managing their social housing portfolios
• Reporting on progress in addressing needs/producing outcomes

To accomplish this, they must do the following:

Community Housing

Develop a 10-year Housing and Homelessness Plan

Each service manager shall have a plan to address housing and homelessness.

What plan must include

The plan must include,

• (a) an assessment of current and future housing needs within the service manager’s service area;
• (b) objectives and targets relating to housing needs;
• (c) a description of the measures proposed to meet the objectives and targets;
• (d) a description of how progress towards meeting the objectives and targets will be measured; and
• (e) such other matters as may be prescribed.

Section 6 of the HSA

Review Housing and Homelessness Plans at least once every 5 years

At least once every five years, a service manager shall review its housing and homelessness plan and amend it as the service manager considers necessary or advisable.

Section 10 of the HSA

Publish annual report to the public

A service manager shall report to the public under section 22 of the Act, every year on or before June 30, with respect to the previous year.

In reporting to the public, the service manager shall make the following information available to the public:

• 1. Details of,
  • i. the measures undertaken by the service manager to meet the objectives and targets in its housing and homelessness plan, and
  • ii. the progress achieved towards meeting those objectives and targets, as measured in accordance with the plan.

Section 9.1 of O. Reg. 367/11: GENERAL

Make information available to the public

A service manager shall make the following available to the public in accordance with any prescribed requirements:

• 1. The service manager’s procedures for applications for rent-geared-to-income assistance, including what information and documents the service manager requires under clause 44 (2) (b) and the form authorized for the purposes of subsection 44 (4).
• 2. The service manager’s local eligibility rules made under section 42.
• 3. The service manager’s occupancy standards established under section 43.
• 4. The rules included, under subsection 47 (2), in the service manager’s system for selecting households required under section 47.
• 5. Information on the housing projects in the service manager’s service area where rent-geared-to-income assistance is provided.
• 6. Information about the provincial eligibility rules prescribed for the purposes of paragraph 1 of subsection 42 (1).
• 7. Information about the provincial priority rules prescribed for the purposes of paragraph 1 of subsection 48 (2).
• 8. Any information or documents prescribed for the purposes of this paragraph.  2011, c. 6, Sched. 1, s. 54 (1).

Section 54 of the HSA

Affordable Housing means that rents are set at or below Average Market Rent (AMR) and are not geared to the household’s income. The rents for Affordable Housing units are generally set between 60% to 100% of the average market rent set by the Province. Rental rates for these units typically increase each year, as per provincial rent control guidelines.

Maintain a minimum service level standard of Rent-Geared-to-Income (RGI) units

Rent Geared to Income (RGI) means that rent costs are no more than 30% of your income. Households seeking special priority placement for RGI housing must submit supporting documentation.

A service manager shall ensure that rent-geared-to-income assistance under this Part is provided in its service area for at least,

• (a) the prescribed number of households whose income is no greater than the household income limit; and
• (b) the prescribed number of high need households.

Section 40 of the HSA

Service levels, modified [accessible] units

The following apply with respect to housing projects that are subject to the transferred housing programs prescribed for the purposes of this section:

1. The service manager shall ensure that the housing projects have, in total, at least the prescribed number of modified units.
2. The service manager shall ensure that the modified units required under paragraph 1 meet the prescribed requirements.

Section 41 of the HSA

Administer and fund a transferred housing program

A service manager shall administer and fund a transferred housing program as it relates to a housing project designated in the regulations for the purposes of this subsection.

Section 68

May audit the Local Housing Corporation

A service manager may appoint a person to conduct an audit or investigation to ensure that a housing provider is complying with this Act and the regulations.

Section 82

Under the HSA, Service Managers may conduct an audit or investigation to ensure that a housing provider is complying with the HSA and its corresponding regulations by way of an operational review. The review consists of four major areas: Governance, Tenant Relations, Finance and Maintenance.

• Kingston & Frontenac Housing Corporation (KFHC) Operational Review

With Kingston & Frontenac Housing Corporation (KFHC) being the City’s largest social housing provider, staff issued a Request for Proposal to not only complete a comprehensive operational review of KFHC, but to also review its current organizational structure and funding model, and research other best practices for Local Housing Corporations (LHC) throughout the province.

Requirements under the Ontario-Canada Bilateral Agreement under NHS

On April 30, 2018, Ontario and the Canada Mortgage and Housing Corporation signed a Bilateral Agreement regarding the National Housing Strategy.

• Canada-Ontario Community Housing Initiative (COCHI) – protect affordability for households in social housing, to support the repair and renewal of existing social housing supply, and to expand the supply of community housing over time.
• Ontario Priorities Housing Initiative (OPHI) – address local housing priorities, including affordability, repair and new construction.

Develop an Investment Plan

Service Managers receiving COCHI/OPHI funding must submit Council/Board (or delegated authority) approved Investment Plans that outline capital and operating funding allocations, along with reporting and spending timelines. These are reviewed by the Ministry to ensure consistency with the Bilateral Agreement and Program Guidelines, balancing Service Manager flexibility and the province’s need to be accountable.

Quarterly progress update reports

Service Managers receiving COCHI/OPHI funding must provide quarterly reports linked to their Investment Plans.

Homelessness Intervention and Prevention

Conducting an enumeration of persons who are homeless using a Point-in-Time Count and make it available to the public

An enumeration of persons who are homeless shall be conducted by the service manager in the service manager’s service area at the times and in the form and manner directed by the Minister.

…

A service manager shall make available to the public in the form and manner specified by the Minister and at the times specified by the regulations and at such other times as the Minister may specify,

• (a) a summary of the information collected in the course of the enumeration; and
• (b) any other prescribed information relating to the enumeration.

Section 19.2

Maintain a By-Name List

Service Managers are expected to begin developing their By-Name List in April 2021, with implementation meeting minimum Ministry requirements by completed by December 31, 2021 and the By-Name List must be operational January 1st, 2022.

Service Manager Guidelines

Built for Zero Report Card

Child Care and Early Learning Services

Works in partnership with local child care providers, school boards, and community agencies to support a high-quality, inclusive, and accessible child care and early years system that meets the evolving needs of families.

• Ontario’s Child Care Fee Subsidy program
• Child Care Waitlist (OneList)
• Special Needs Resourcing (SNR)
• Canada Wide Early Learning and Child Care (CWELCC) Program

Service Managers are not made equal

There are 47 service managers across Ontario that have very different service areas, assets and service levels.

These designations are not automatically based on municipal tier (single-tier vs upper-tier), but rather on provincial assignment made in 1999 during municipal restructuring and reaffirmed in regulations such as O. Reg. 367/11.

Hastings County has full control, Belleville and Quinte West have advisory role

The Cities of Belleville and Quinte West, the largest located within the County of Hastings, have no control over their housing and homelessness programs and only act in an advisory role through the Community and Human Services Committee.

Hastings County is an upper-tier municipality and the Service Manager for:

• City of Belleville (single-tier)
• City of Quinte West (single-tier)

and 14 lower-tier municipalities and townships:

• Town of Bancroft
• Town of Deseronto
• Municipality of Centre Hastings
• Municipality of Hastings Highlands
• Municipality of Tweed
• Municipality of Marmora and Lake
• Township of Carlow/Mayo
• Township of Faraday
• Township of Limerick
• Township of Madoc
• Township of Stirling-Rawdon
• Township of Tudor and Cashel
• Township of Tyendinaga
• Township of Wollaston

Hastings County was made the Service Manager by the Ontario government in Schedule 2 of O. Reg. 367/11 under the Housing Services Act, 2011.

Hastings County Council is made up of the Heads of Council of its 14 member municipalities, but does not include the mayors of Belleville and Quinte West.

Belleville (single-tier) is the county seat, which is politically independent of Hastings County. Belleville and Quinte West are independent of Hastings County but included in the Hastings County Census Division.

Instead, 4 Belleville members of council and 3 Quinte West members of council sit on Hastings County’s Community and Human Services Advisory Committee, which at the time of writing consists of:

• County of Hastings
  • Warden Bob Mullin
  • Councillor Don DeGenova
  • Dennis Purcell
• Belleville
  • Councillor Malette
  • Councillor Thompson
  • Councillor Allsopp
  • Councillor Brown
• Quinte West
  • Councillor Armstrong
  • Councillor O’Neil
  • Councillor Sharpe

As an advisory committee, decisions made by the Committee are considered recommendations and are forwarded to Council for final approval.

The provincial government did not assign Belleville or Quinte West the Service Manager role, so:

• They cannot directly run or control their own housing or homelessness plans
• They must participate through advisory roles only

This governance setup was not unique – similar arrangements were made elsewhere (e.g. Stratford, Brantford initially).

This was the result of municipal restructuring in the 1990s. In some cases, counties were seen as more regionally appropriate, especially when multiple municipalities (including separated cities) needed to be served under a unified plan

These service managers have more control over their housing programs

Lower-tier municipalities have equal control: Northumberland County

Northumberland County is an upper-tier municipality and Service Manager for its 7 lower-tier municipalities:

• Township of Alnwick/Haldimand
• Municipality of Brighton
• Town of Cobourg
• Township of Cramahe
• Township of Hamilton
• Municipality of Port Hope
• Township of Trent Hills

Northumberland County Council consists of the mayors of 7 townships and municipalities within its boundaries. The Warden is the head of County Council and is elected each year from amongst Council’s membership.

The Social Services Committee, which oversees the Northumberland County Housing Corporation (NCHC) consists of 3 County Council members, being the current Warden and 2 members appointed by Council.

City of Peterborough has full control, Peterborough County has advisory role

The City of Peterborough is a single-tier municipality and Service Manager for the City, Peterborough County and the 8 lower-tier municipalities in Peterborough County:

• Municipality of Trent Lakes
• Township of Asphodel-Norwood
• Township of Cavan Monaghan
• Township of Douro-Dummer
• Township of Havelock-Belmont-Methuen
• Township of North Kawartha
• Township of Otonabee-South Monaghan
• Township of Selwyn

The City is the county seat, which is independent of the County, but included in the Peterborough County Census Division.

The City in its role as Service Manager is the sole shareholder of Peterborough Housing Corporation, which is run by a Board of Directors and operates as a stand-alone corporation, but is ultimately accountable to the City. The Corporation is obligated to meet the City’s delivery and performance standards and follow provincial housing legislation.

The Greater Peterborough Joint Services Committee (formerly the Peterborough Regional Liaison Committee) is made up of 4 County Councillors and 4 City Councillors. As an advisory committee, decisions made by the Committee are considered recommendations and are forwarded to Peterborough Council (housing) and Peterborough County Council (social services) for final approval.

Peterborough County Council consists of 16 members: the Mayor and Deputy Mayor of each of the 8 lower tier municipalities.

Peterborough County handles social services including Children’s Services, Ontario Works and Homelessness Services.

City of Kingston has full control, citizens have advisory role: Kingston

The City of Kingston is a single-tier municipality and Service Manager for the City, Frontenac County and its 4 lower-tier municipalities:

• Township of Central Frontenac
• Township of Frontenac Islands
• Township of North Frontenac
• Township of South Frontenac

The City is independent of Frontenac County but included in the Frontenac County Census Division.

The City in its role as Service Manager is the sole shareholder of Kingston & Frontenac Housing Corporation (KFHC), which is run by a Board of Directors and operates as a stand-alone corporation, but is ultimately accountable to the City. The Corporation is obligated to meet the City’s delivery and performance standards and follow provincial housing legislation.

The Kingston Housing and Homelessness Advisory Committee is made up of 2 city councillors and 5 citizen appointees. As an advisory committee, decisions made by the Committee are considered recommendations and are forwarded to Kingston Council for final approval.

Lower-tiers have equal control: Huron County

Huron County is an upper-tier municipality and Service Manager for its 9 lower-tier municipalities:

• Ashfield Colborne Wawanosh
• Bluewater
• Central Huron
• Goderich
• Howick
• Huron East
• North Huron
• Morris-Turnberry
• South Huron

The County in its role as Service Manager is the sole shareholder of Huron County Housing Corporation, which is run by a Board of Directors and operates as a stand-alone corporation, but is ultimately accountable to the County.

Huron County Council consists of 15 members from the 9 municipalities within its boundaries. Each municipality located within Huron County is represented at County Council by their: Mayors and Deputy Mayors or Reeves, with some exceptions.

Most similar to Hastings County: Simcoe County

Barrie and Orillia are not represented on County Council, which consists of the Mayors and Deputy Mayors of each of the 16 towns and townships located within Simcoe County:

• Township of Adjala-Tosorontio
• Town of Bradford West Gwillimbury
• Township of Clearview
• Town of Collingwood
• Township of Essa
• Town of Innisfil
• Town of Midland
• Town of New Tecumseth
• Township of Oro-Medonte
• Town of Penetanguishene
• Township of Ramara
• Township of Severn
• Township of Springwater
• Township of Tay
• Township of Tiny
• Town of Wasaga Beach

Barrie and Orillia have a representative on the Affordable Housing Advisory Committee:

• County Council representing the County at-large.
• East Simcoe representing the Townships of Oro-Medonte, Ramara and Severn.
• North Simcoe representing the Towns of Midland and Penetanguishene and the Townships of Tay and Tiny.
• South Simcoe representing the Towns of Bradford West-Gwillimbury, Innisfil and New Tecumseth and the Townships of Essa and Adjala-Tosorontio.
• West Simcoe, representing the Towns of Collingwood and Wasaga Beach and the Townships of Clearview and Springwater
• Barrie
• Orillia

Some service managers have developed more affordable housing with federal funding than others

Service Managers’ housing corporations have purchased properties and applied for, funded and built many affordable housing units in recent years using funding from the National Housing Strategy.