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HomeMy WebLinkAboutCSD-09-071 - Older Adult Strategy Future DirectionsREPORT REPORT TO: Community Services Committee DATE OF MEETING: December 7, 2009 SUBMITTED BY: Mark Hildebrand, Director of Community Programs and Services, ext 2687 PREPARED BY: Debbie Campbell, Manager, Community Resource Centres, ext 3382 WARD(S) INVOLVED: All DATE OF REPORT: December 2, 2009 REPORT NO.: CSD-09-071 SUBJECT: OLDER ADULT STRATEGY FUTURE DIRECTIONS RECOMMENDATION: That the Older Adult Strategy Final Report, as attached to Community Services Department report CSD-09-053, be received; and, That Rockway Senior Centre be closed effective January, 2011; and further, That a group of citizens and staff be appointed to advise on the transition of programs from Rockway Centre to alternate locations. EXECUTIVE SUMMARY: The City of Kitchener has a long history of providing quality recreation programs and services for older adults. Growing recognition of the significant demographic shifts being experienced on a national, provincial and local level with the aging of the “Baby Boom” generation has led to the development of an Older Adult Strategy to maintain the progressive focus for older adults in the City of Kitchener. Older Adult Strategy At a quarterly strategy session on October 13, 2009, a new Older Adult Strategy – an extensive review of Kitchener’s older adult programs, services and emerging trends – was presented to Council for information purposes. Developed over the past two years in conjunction with the outside consulting firm of dmA Planning & Management Service, the strategy positions the city to respond to the current and emerging needs of the rapidly growing older adult population in the City of Kitchener. í ó ï The Older Adult Strategy provides a framework for program and service provision for adults in the next 20 years, and positions the City of Kitchener to meet the needs of the upcoming adult and older adult markets. The Strategy provides directions regarding the mandate of the Community Services Department; transitioning the current system of facilities, program and service delivery to meet the upcoming adult users; and new approaches to service provision. Rockway Centre Closure One of the key recommendations within the Older Adult Strategy is that dedicated older adult centres should no longer be included in the City’s recreation facility inventory, and alternative uses should be explored and eventually adopted for Rockway Centre. Rockway Centre has a rich history of innovative service for older adults in the City of Kitchener. At the time the Centre began, it was one of only three community centres in the City of Kitchener, and provided a much needed service. It is currently the only dedicated facility for older adults in the City of Kitchener community centre inventory. However, much has changed since 1975. There are now 11 additional Community Centres providing programs and services to Kitchener residents. A recent scan of adult programs identified offerings of over 180 adult programs per session at these Centres, with senior participation in at least 100 of these programs. A shift has been incrementally occurring over the past number of years, enhancing programming for older adults through neighbourhood based facilities. At the same time, memberships at the three older adult centres, as a percentage of the City’s older adult population, have dropped from about 8% in 1996 to just over 4% in 2006. Three factors have aligned leading to a recommendation to close Rockway Centre: declining membership and usage, changing demographic trends, and structural challenges with the facility. Usage of Rockway Centre and its many programs has been on a steady decline in the last five years. For example: 1) Membership has dropped 25% in the past five years from 1,319 in 2004 to 986 in 2009 (YTD to Nov. 30) 2) Attendance at groups is now half as many people as in 2004 (projected 49.7% decline to year end) 3) The meal program served 32.6% fewer meals (projected to year-end) than in 2004. A provincial grant enabled the meal program to continue in 2009, without which the program would have been in jeopardy. 4) Marmo Travel Club membership has declined 55%. 5) Attendance at special events has declined by 63% Current research indicates this declining trend will continue – dedicated “senior” centres will be avoided by the Baby Boom/Zoomer demographic as it emerges into older adulthood. Emerging trends in recreation programming for older adults will require the provision of different programming, opportunities and venues based on the Baby Boom demographic’s very different perception of aging. Currently, the city faces additional structural challenges with Rockway Centre including repairs required to deal with significant water issues and costly upgrades to ensure the í ó î three-floor facility is compliant with provincial accessibility legislation. (An estimated $1.035 million would be required over the next three years.) Meetings with current Rockway Centre members have identified three distinct viewpoints: a desire to maintain Rockway Centre as a dedicated older adult facility; a recognition of the physical limitations of the site and anticipated closure, and a desire to understand the associated timelines and transition plan; and an understanding and support of closing the Centre and willingness to relocate to another Centre to participate in activities of choice. Market research and community engagement with neighbourhood associations and participants of other Centres has identified that, although this closure would present a loss to the current members of Rockway Centre, there is longer term gain to repositioning adult programming to alternate facilities throughout the City of Kitchener. Transitioning Rockway Programs to Alternate Locations Although a recommendation is being made to close Rockway Centre, programs, on-going groups and select services will be relocated to other facilities to allow the continued participation of the current Rockway members. As identified by the Rockway Centre Advisory Council and convenors, transition planning is an essential component to the successful relocation of programs. A space inventory at City of Kitchener Community Centres identified that there is currently adequate daytime space to relocate the majority of ongoing groups and programs from Rockway Centre. To ensure a smooth transition, the following actions are proposed: The formation of a joint citizen-staff committee to advise on the transition options Meetings will be held with each of the ongoing groups at Rockway to discuss preferences for time and day, location options, equipment, storage and facility needs. Continued Use of Rockway Centre If Rockway Centre remains open beyond 2010, there are strong indicators that significant challenges should be anticipated, including: Significant capital remediation of the centre will be required to sustain its usage including foundation repairs, elevator repairs/replacement; and accessibility upgrades costing an estimated $1.035 million in the next three years. Membership, usage and participation are likely to continue to decline, leading to the discontinuation of groups, programs and services over time. A continued sense of uncertainty and vulnerability will exist regarding the future of the facility. Adequate space may no longer be available at other community centres to accommodate the transition of programs and services at a later date. The decision to recommend the closure of Rockway Centre was not made lightly. It was based on the combination of the major factors listed above and dialogue with many community stakeholders, all of which are further explained in the Report section. BACKGROUND: In 2007, the Community Services Department undertook the development of a strategy to understand and respond to the current and future needs of the older adult population in the City í ó í of Kitchener, and to develop an informed approach to the challenges and opportunities created by the rapidly growing cohort of older adults. On June 22, 2009, the Older Adult Strategy Background Report was provided to Council as information, and as a precursor to the Older Adult Strategy Final Report. The Background report, which was prepared by dmA Planning and Management Services, includes a profile of the older adult population; a profile of the emerging market segments and relevant trends and best practices to serve these markets; and a review of City programs, services and participation trends. Of particular significance is the demographic shift that has begun to occur and is anticipated to peak within the next two decades, with the aging of the "Baby Boom generation". By 2031, the total population of the City is projected to be 304,655 people, of which, 108,195 (36%) will be older adults. The growth in the number of older adults will result in increasing demands for programs and services of interest to this group. However, it also represents a proportionate shift in demand for parks and recreation services, where the majority of consumers will be adults, with vastly different expectations than the market served by the existing older adult centres. The Older Adult Strategy Final Report was presented at a Council Strategy session on October 13, 2009. This report identifies three distinct sections for consideration, each including both issues and recommendations for future direction. The three key areas are: 1) Clarifying the Department’s Mandate in Meeting the Needs of the Emerging Older Adult Market; 2) Compatibility of the Current Parks and Recreation System with the Future Older Adult Markets; and, 3) New Approaches to Service Provision These three key areas provide a framework for consideration, with recommendations to be considered incrementally. The key areas, associated issues, and future directions are included in Appendix A. The aging of the Baby Boomers cohort will result in a progressive shift in age structure in the City of Kitchener, as well as an increasing demand for programs and services for adults. This is a departure from a service delivery model that has traditionally focussed on children and youth. The future directions, as identified in the Older Adult Strategy final report, extend beyond the current older adult service model and have implications throughout the Community Services Department. The Older Adult Strategy Final Report has implications for program and service delivery throughout the community, and identifies Neighbourhood Associations as key partners in current and future program delivery for adults. Future directions also suggest moving away from dedicated older adult facilities to a more decentralized approach to program delivery. REPORT: Community Engagement: Advisory Councils and Neighbourhood Associations Following the Council Strategy session on October 13, staff undertook a series of meetings with key community members to share the final report from the Older Adult Strategy, and to seek community input in regard to the future directions as identified in the report. The reports were shared and meetings were held with: MACKS (Mayors Advisory Council for Kitchener Seniors) Rockway Centre Advisory Council Breithaupt Centre Advisory Council í ó ì Downtown Community Centre Advisory Council Rockway Centre ongoing group convenors Volunteer representatives from 11 Neighbourhood Associations Focus groups of City of Kitchener residents age 55 and over who currently do not use City of Kitchener facilities Input was sought on both the opportunities and challenges related to the issues and future directions as identified in the Strategy reports. Specific attention was directed to future recommendations related to no longer including dedicated older adult centres in the City’s recreation facility inventory and exploring alternative uses for Rockway Centre; the role of Neighbourhood Associations in program delivery for adults; and the use of Community Resource Centres for adult programming. In summary, the Older Adult report was well received by all groups. Participants identified with the emergence of two distinct market segments, the Zoomers and traditional seniors. They acknowledged that the trend toward programming for the upcoming Zoomer population has already begun, and supported a planned approach to continue to meet the needs of traditional seniors, while growing opportunities for the upcoming Zoomers. Many Neighbourhood Associations identified that this is already happening informally, as many Neighbourhood Associations are now offering an increasing number and range of adult programs. Meetings with Advisory Councils and Neighbourhood Associations identified widespread support for intergenerational facilities and skill-based programming, rather than age-segregated facilities and programming. It was also acknowledged in these discussions that there is a continuing need to provide suitable programming for traditional seniors. Access to transportation will continue to be key for any facilities offering adult programming. Focus group participants who do not currently use City of Kitchener facilities offered different insights. Overall, they identified that existing community facilities are adequate to meet the current need of older adults; however, physical programs are not always suited to the needs of Zoomers and traditional seniors. Suggested improvements related to accessibility and programming rather than to additional or improved facilities. Participants identified that any facility closure would be difficult for existing users; however, would be immaterial to other community members. The meetings with the Rockway Centre Advisory Council and Rockway Centre group convenors resulted in additional discussion specifically related to the future of Rockway Centre. This discussion is summarized in the Rockway Centre section of this report. Future Directions: Facilities The Older Adult Strategy Background report identified the decline in membership in Older Adult Centres in the past decade. The period from 1996 to 2006 saw a decline in older adult memberships of approximately 12%, while, in the same time period, the City experienced a 76% increase in the older adult population. Centre membership as a percentage of the City’s older adult population dropped from about 8% in 1996 to just over 4% by 2006. The trend in declining memberships continues today. The Older Adult Strategy final report includes recommendations related to facility models to meet the anticipated needs of older adults in the future. Trends suggest that the emerging population of older adults will be more interested in participating in leisure activities at facilities í ó ë that offer a wider range of opportunities and include a variety of components. The report identifies that the future program interests of Zoomers are unlikely to be accommodated in dedicated Senior Centres such as Rockway Centre. Moreover, Zoomers are likely to avoid any activity or facility perceived to be oriented exclusively to seniors. Future Direction 5 indicates that dedicated Older Adult Centres should no longer be included in the City’s recreation facility inventory, and alternative uses should be explored and eventually adopted for Rockway Centre. Rockway Centre Rockway Centre has been a dedicated Older Adult facility, providing programs and services to seniors, since 1975. It is currently the only dedicated facility for older adults in the City of Kitchener community centre inventory. Rockway Centre has a rich history of innovative service for older adults in the City of Kitchener. At the time the Centre began, it was one of only three community centres in the City of Kitchener, and provided a much needed service. However, much has changed since 1975. There are now 11 additional Community Centres providing programs and services to Kitchener residents. A recent scan of adult programs identified offerings of over 180 adult programs per session at these Centres, with older adult participation in at least 100 of these programs. A shift has been incrementally occurring over the past number of years, enhancing programming for older adults through neighbourhood based facilities. Three major factors have aligned leading to a recommendation to close Rockway Centre: declining membership and usage, changing demographic trends, and structural challenges with the facility. 1) Declining Facility Usage As a result of the multitude of opportunities for older adults and changing recreation trends due to major demographic shifts associated with the aging Baby Boom generation, the membership, attendance and program usage of Rockway Centre have seen a steady decline in the past five years. Staff have adjusted programming, and implemented the Tri-Us pass (a temporary, unpaid membership) to encourage increased usage and membership; although special interest courses and select services have seen increases, an overall decline in usage prevails. Membership at Rockway Centre has dropped from 1,319 in 2004 to 986 in 2009, a 25% decline. Current Rockway Centre membership includes: 645 Annual City of Kitchener resident memberships; 122 non-resident memberships; 200 Tri-us City of Kitchener memberships; 19 Tri-us non- resident memberships. In the past five years, Rockway Centre has experienced the following: 1) Membership has dropped 25% in the past five years from 1,319 in 2004 to 986 in 2009 (YTD to Nov. 30) 2) Attendance at groups is now half as many people as in 2004 (projected 49.7% decline by Dec. 31) 3) The meal program served 32.6% fewer meals than in 2004 (year end projection). A provincial grant enabled the meal program to continue in 2009, without which the program would have been in jeopardy. 4) Marmo Travel Club membership has declined 55%. 5) Attendance at special events has declined by 63% í ó ê 2) Changing Demographic Trends Additionally, new trends are emerging in regards to changing demographics that point to the continued decline in usage of dedicated senior centres such as Rockway. Research shows that the Baby Boom generation – those born between 1946 and 1964 and also referred to as “Zoomers” – will: Avoid activities targeted to “seniors.” Be less inclined to participate in “seniors only” facilities. Have different interests or needs than their parents, and will not have the same perceptions or expectations of aging – they will perceive themselves as younger for longer. Seek a broader range of experiences than Rockway Centre can provide Demand comfortable, welcoming and accessible multi-purpose facilities Be very mobile which will impact their preferences for recreation, leisure and social programming services at the community level. Have disposable income and be willing to pay for programs and services that cater to their needs – but be less willing to pay “memberships.” In essence, as the Baby Boom/Zoomers generation emerges as the next major users of older adult programming, trends in how they will use recreation programming, what type of programming they will use, and where they want it to be offered, will be significantly different than those of their parents. As a result of this research and trend information, the City’s new Older Adult Strategy, which was first tabled with Council at the October 13, 2009 quarterly strategy session, recommends that the City of Kitchener no longer include dedicated older adult centres in its recreation facility inventory. Additionally, the strategy makes the recommendation that Rockway Centre be phased out and that alternative uses for the building be explored and eventually adopted. 3) Structural Challenges The Older Adult Strategy recommendation comes at a time when the City is facing considerable challenges with the physical structure of the Rockway Centre facility. Rockway Centre is a 60 year old, three storied, 19,300 square foot facility with a small elevator, and multiple stairwells. The Centre has program rooms on each of the three levels. In 2008 Rockway Centre experienced significant flooding to the basement area. Repairs and remediation have been undertaken to deal with the problem in the short-term; however, to resolve these issues, foundation repairs around the perimeter of the facility are required. Additionally, an accessibility audit, which was undertaken in 2007, identifies the renovations that are required to ensure that the Centre achieves an adequate level of accessibility. Additional renovations are anticipated with the passage of the Built Environment standard under the Accessibility for Ontarians with Disabilities Act (AODA) legislation. Full accessibility would be required by 2025. At present, the following repairs are required: 1) Foundation repairs 2) External accessibility improvements 3) Elevator repairs/replacement 4) Washroom repairs to address accessibility requirements These repairs are required within the next three years at a cost of $1.035 million. í ó é These repairs address the short term needs of the Centre; however, there are other considerations in regard to the long term use of this facility for older adults. Rockway Centre is particularly ill-suited to meeting the needs of older adults. The single elevator, three floors and multiple stairwells create access and safety concerns, particularly with an aging population. The support needs to accommodate frail seniors require specialized amenities. The current design of the facility does not lend itself to such functional support. Program functionality is limited in the existing facility. There is no gymnasium, which is a requirement for active programming, an identified trend in the Older Adult Strategy. Furthermore, the existing facility design includes numerous rooms that can only be accessed by travelling through other program rooms. This design is not well suited for programming, and would require extensive renovation to sustain future use. Anticipated legislative requirements for building design will have implications for future facility renovations. Given the age of the facility, it is expected that significant renovations will be required to meet AODA requirements. Stakeholder Feedback Meetings were held in October and November with both the Rockway Centre Advisory Council and the Rockway Centre ongoing group convenors. In total, 25 people participated in two discussions. The Older Adult Strategy was presented and, as anticipated, much of the discussion focussed on the future directions related to Rockway Centre. Participants in these groups represented three distinct viewpoints: a desire to maintain Rockway Centre as a dedicated older adult facility; a recognition of the physical limitations of the site, anticipated closure, and a desire to understand the associated timelines and transition plan; and an understanding and support of closing the Centre and willingness to relocate to another Centre to participate in activities of choice. Those participants who expressed a desire to maintain Rockway as it currently exists are primarily long time members who appreciate the sociability of a centre that is exclusive to others in a similar age group and the dedicated facility space for specific activities such as billiards. All participants identified that Rockway Centre is more than a building, and is valued for its sense of community and space to congregate. It is the potential loss of this sense of community that is of most concern. During discussions regarding a possible transition of programs and services to other locations, participants identified some key considerations: locate programs in sites with compatible programming; transition planning to ensure a smooth and warm welcome to the older adult participants; ensure accessible transportation and adequate parking; ensure adequate storage of program materials; work to make sure a balance of gain against what is being lost by leaving Rockway Centre. Transitioning Rockway Programs to Alternate Locations Although a recommendation is being made to close Rockway Centre, programs, on-going groups and select services will be relocated to other facilities to ensure the continued participation of the current Rockway members. As identified by the Rockway Centre Advisory Council and convenors, transition planning is an essential component to the successful relocation of programs. A space inventory at City of Kitchener Community Centres identified that there is currently adequate daytime space to relocate the majority of ongoing groups and programs from Rockway Centre. í ó è To ensure a smooth transition, the following actions are proposed: The formation of a joint citizen-staff committee to advise on the transition options Meetings will be held with each of the ongoing groups at Rockway to discuss preferences for time and day, location options, equipment, storage and facility needs. Special interest courses will be relocated and offered at community centres; dialogue will take place with neighbourhood associations about this transition. Special events will be discontinued; many events had been cancelled or not offered in 2009 due to facility repairs and lack of participation. The Rockway Meal Program will be discontinued; however, a noon hour meal program continues to be offered at the Downtown Community Centre. Peer helping programs will be relocated to the Downtown Community Centre. Continued Use of Rockway Centre Discussions with Rockway Centre Advisory Council and group convenors identified some support for the continuation of Rockway Centre as a dedicated older adult facility. If Rockway Centre remains open beyond 2010, there are strong indicators that significant challenges should be anticipated, including: Significant capital remediation of the centre will be required to sustain its usage including foundation repairs, elevator repairs/replacement; and accessibility upgrades costing an estimated $1.035 million in the next three years. Membership is likely to continue to decline. Participation in ongoing groups is likely to continue to decline, leading to the discontinuation of groups over time. Sustainability of the meal program will be in jeopardy due to the decline in usage and revenues. Participation in special events will likely continue to decline leading to the further cancellation of events. Given the membership and participation patterns and facility needs, a continued sense of uncertainty and vulnerability will exist regarding the future of the facility. Adequate space may no longer be available at other community centres to accommodate the transition of programs and services at a later date. Recommendation for Closure Given the strategic direction in the Older Adult Strategy to discontinue the use of dedicated older adult facilities, the changing and emerging demographic trends of older adults, the declining membership and usage of Rockway Centre, the physical limitations of the existing facility, the facility remediation that is currently required, and the longer term renovation required to meet accessibility legislation, a recommendation to close Rockway Centre is being made. It is understood that such a closure will have a significant impact on the current members; however, there is also expressed support from other older adults in the community to discontinue the use of Rockway Centre. Moreover, the market research suggests that the impact on non-users of closing Rockway Centre will be minimal to non-existent, as there are numerous alternative locations to meet the recreational needs of older adults. It is recommended that Rockway Centre be closed in January 2011 to coincide with the opening of Kingsdale Community Resource Centre. The benefits of closing Rockway Centre in 2011 are: í ó ç 1) A space inventory, undertaken in fall 2009, identifies that the majority of ongoing courses, groups and select services could be relocated to other Community Resource Centres. A closure of January 2011 would ensure the availability of this space. 2) The decentralization of programs and services to other community centres would maximize the use of daytime space at these facilities. 3) A short term remediation plan would be undertaken to respond to water issues in the basement of the Centre, at an estimated cost of $100,000. This would be a temporary measure only, until such time as future facility use is determined. 4) Other accessibility requirements and renovations would be suspended, pending a decision regarding future facility usage. 5) The closure of Rockway Centre in 2011 would allow for the relocation of select equipment and furnishings to Kingsdale and other community centres, with potential capital cost savings. 6) The decentralization of adult programs to a variety of Community Centres is likely to attract new patrons to those facilities and programs. 7) Rockway Centre staff would be transitioned to the new Kingsdale Community Centre and other locations as appropriate. All City of Kitchener staff positions would be retained with the exception of the contract cook position. Transitioning of staff to Kingsdale would replace the need for an additional staff team when Kingsdale Community Centre opens, achieving savings in operating budgets. Challenges of closing in 2011 are: 1) Short timelines for transitioning of programming will be challenging for patrons and staff, 2) Opening of Kingsdale and closing of Rockway will occur in similar timeframes, and may be difficult to achieve without reallocation of staff resources for an identified period of time. As an alternative to closing Rockway Centre, the option of adding a gymnasium and undertaking required renovations and remediation to make this a viable Community Centre for all ages was considered. Upon investigation, this was not considered a viable option due to the costs and considerations of such a capital investment to an aging facility. FINANCIAL IMPLICATIONS: The Older Adult Strategy Recommendations As staff work through the implementation of the Older Adult Strategy, any recommendations with budget implications will be brought back to Council for consideration and approval. Rockway Centre Recommendation 2011 Closure Budget Estimates Community Programs and Services Budget Impact Rockway Centre annual operating: $307,067 Kingsdale Centre Annual operating: $245,022 Total Operating for both Centres $552,089 Less Rockway/Kingsdale transitional operating: $390,669 Centre annual operating savings $161,420 Less reduced program revenue: $ 3,500 Total CPS annual operating savings $157,920 Facilities Management 2011 Operating Budget Impact Estimates í ó ïð Estimated savings if Rockway Centre is taken out of City of Kitchener’s facility inventory $97,037. immediately upon closure as a Senior Centre would be Total annual Operating Budget Savings: $ 254,957 Capital Budget Impact 2010: $100,000 for short term foundation repairs The figures above include some assumptions that require verification and fine tuning through 2010 (e.g. the portability of the Elderly Persons Centre grant funding to another facility). Figures above do not reflect the moving costs of relocating Rockway Centre operations to alternate sites, or the costs associated with the implementation of CLASS program registration at Community Centres. COMMUNICATIONS: The Older Adult Strategy reports have been shared and subsequent meetings have taken place with the Mayor’s Advisory Council for Seniors (MACKS), Advisory Councils from the three older adult centres, ongoing group convenors at Rockway Centre and Neighbourhood Association Boards of Directors for those associations that provide community programming. As staff continue to work through the future directions of the Older Adult Strategy, these groups will continue to be included in meaningful dialogue. Upon approval of the recommendation to close Rockway Centre, staff will continue to engage seniors, neighbourhood associations and staff in the development of a transition plan for programs, services and the facility. CONCLUSION: The Older Adult Strategy provides a framework for program and service provision for adults in the next 20 years. The Strategy provides direction in regard to future facility needs to meet the interests of the upcoming Zoomer population. Rockway Centre is currently experiencing a decline in membership and usage, structural issues which require remediation and accessibility issues which must be addressed. Given the future direction of the Older Adult Strategy to no longer include dedicated older adult facilities in the City’s facility inventory in the future, a recommendation has been put forward to close Rockway Senior Centre effective January, 2011. A variety of research and community engagement has identified that, although this closure would present a loss to the current Centre members, there is longer term gain to repositioning adult programming to alternate facilities throughout the City of Kitchener. 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