storage lockers for the homeless - british columbia lockers - final.pdf · page 3 executive summary...

Storage Lockers for the Homeless Final Report

Spring 2011

Table of Contents

Executive Summary ............................................................................................................... 3

Introduction

Background ........................................................................................................................... 5

Project overview .................................................................................................................... 5

Project Summary

Infrastructure .................................................................................................................................. 7

Usage ............................................................................................................................................... 8

Location/Access .............................................................................................................................. 9

Community referrals ....................................................................................................................... 9

Donation storage .......................................................................................................................... 10

Legal concerns ............................................................................................................................... 10

Budget ........................................................................................................................................... 11

Program sustainability .................................................................................................................. 11

Project Assessment

Conclusions ................................................................................................................................... 12

Service provider recommendations/Lessons learned .................................................................. 12

Appendices

Appendix A: List of Stakeholders Consulted ................................................................................. 14

Appendix B: Terms of Use agreement – SAMPLE ......................................................................... 15

Appendix C: Furniture Redistribution Centre ............................................................................... 17

Executive Summary

In 2008, the Housing Policy Branch (HPB) received approval to pilot a storage locker project

through the Housing Endowment Fund. After a series of discussions with a wide range of

stakeholders, in Spring of 2009, Pacifica Housing Advisory Association (PHAA) was awarded a

total of $87,890 from the Housing Endowment Fund towards project costs enabling the rental

of storage locker units, the building of shelving and the cost of storage bins.

As part of the awarding of funds there was a requirement to assess the pilot project. This

report represents a summary and analysis of discussions with community service providers

between August 2010 and February 2011. The report highlights successes and lessons learned

and will serve as a guide for possible future projects in BC.

Key Findings:

1. Carefully consider storage locker policies. Service providers should carefully consider their

policies on issues such as: maximum and minimum duration, volume of items, restricted

goods, size of items, manner of storage (bins, bags, loose, etc), access protocol and

transporting items to and from lockers based on their means. When developing policy,

agencies should consider client need as well as their ability to meet these needs.

2. Provide service providers with information re: best practices, sample tracking sheet and a

“Terms of Use” template for them to modify, etc. Service providers should be encouraged

to reflect on best practices, create a “Terms of use” document and ensure clients

understand and sign them.

3. Rent existing lockers from private storage facilities. Doing so avoids the cost of staffing a

facility and may allow the program to piggyback on the locker provider’s services and

policies, including processes for complaints, insurance policies and pest control services.

4. Match infrastructure to intended use. Depending on the intended use, large lockers may

be most appropriate, offering room for both shelving and furniture. If accepting only bags,

a service provider may benefit from more shelving.

5. Encourage service providers to prepare a kit for each locker. Kits could include bags, tags,

tape, clipboard, pen, and tracking sheet. Doing so helps service providers stay organized

and ensures quick access to possessions when required.

6. Budget

a) Include disposal costs when developing budget. Without disposal funds, the high

cost of transporting and disposing of large items may lead to a resistance by service

providers to accommodate such items.

b) Carefully calculate infrastructure costs. Appropriate infrastructure (shelves, bins, etc)

helps ensure the locker is utilized to its full potential.

c) Although the locker facility’s service may include pest prevention practices, budgets

should include funding to addressing pests, should they become an issue.

7. Consider solutions to challenges storing large items. Storing large items is problematic for

service providers. However, not storing larger items such as furniture is also problematic. A

program proposed by a service provider is outlined in Appendix C.

8. Communications. Staff should be cautioned not to promote outside agency referrals until

service providers are certain there will be space available to accommodate them. It

addition, it would be prudent not to include the name of the private storage locker facility

in the news release, without the company’s explicit support.

Introduction

Background

Securing affordable storage has long been identified as a challenge for those experiencing

homelessness as well as for service providers working to support this vulnerable population.

The loss of housing can result in a homeless individual or family disposing of their possessions

or carrying personal items throughout the day. Other possible impacts include the loss/theft of

personal property when stored in an ad hoc manner, as well as hindering the search for

employment and housing.

Due to a lack of capacity and/or infrastructure, service providers often store items in an

informal manner, taking up limited space. In addition, service providers have concerns

regarding hygiene, liability and bed bugs and report being hesitant to provide storage services

to homeless individuals.

In 2008, the Housing Policy Branch (HPB) received approval to pilot a storage locker project

through the Housing Endowment Fund. Victoria was selected as the pilot site as it had no

formal storage program for the homeless, and research indicated homeless individuals in

Vancouver had access to day storage through the Gathering Place on Helmcken Street.

The province was interested in exploring opportunities to partner with service providers in

addressing storage capacity for the homeless. HPB staff consulted with a range of service

providers and other key stakeholders in Victoria (see Appendix A) to assess the need as well as

service provider interest and capacity in such a partnership. The partnership was to involve

development of the pilot and one-time capital funding from the Housing Endowment Fund to

develop short term and/or long term storage options for the homeless.

In Spring of 2009, Pacifica Housing Advisory Association (PHAA) was awarded a total of $87,890

from the Housing Endowment Fund towards project costs enabling the rental of storage locker

units, and the cost of shelving and storage bins.

To assess the project, a 6-month progress report was completed in November 2009 and a series

of interviews were conducted with community service providers between August 2010 and

February 2011. A summary of those discussions, this report will serve as a guide for possible

future projects.

Project Overview

The project generally followed through as expected. PHAA leased seven lockers of varying sizes

in a privately owned facility in Victoria. At the time of drafting this report, three lockers were

being used to support their Homeless Outreach Program and four lockers were designated to

other service providers to support their work with homeless and at-risk individuals. Community

service providers utilizing the lockers included: The Greater Victoria Coalition to End

Homelessness; Victoria Cool Aid Society’s shelter program; the Vancouver Island Health

Authority’s Assertive Community Treatment teams; and Our Place, a local drop in centre for the

homeless.

Service providers reported the seven lockers were being heavily used, and for varying and

flexible purposes based on needs determined by the respective organizations. The most

common uses were for recently evicted clients being re-housed through the community

organization, and for community donations. Agencies differed on the time frame clients were

permitted to utilize the service.

Possessions were being stored in shared lockers, typically on shelving and within sealed

garbage bags. The client’s belongings were delivered to the storage facility by a moving

company, the client or an outreach worker. Clients accessed the lockers through the service

provider who was also responsible for storing and labelling items with the client’s name and

date of storage. While rules for accessing possessions vary with each organization, access was

generally limited. Clients were typically asked to sign a Terms of Use agreement (see Appendix

B for sample), indicating any restrictions, duration of use and access protocols.

Project Summery

Information regarding storage locker infrastructure, usage, location/access, referrals,

donations, legal concerns, budget and program sustainability was obtained during service

provider interviews. Service user stories have been inserted to illustrate where the storage

locker program has worked well, both for the service provider and service user, and where the

program has been less successful.

Infrastructure

As noted, PHAA leased seven lockers in a privately owned

facility in Victoria. The lockers range in size, the largest being

204 sq feet. Items are stored on custom built shelving, inside

industrial garbage bags wherever possible.

While PHAA originally planned to rent 10 lockers ranging in

size from 64 – 100 sq feet, they chose to rent fewer, but

larger lockers. Their largest locker was used for storing

community donations.

Rather than purchase metal shelving and store items in

storage bins as originally intended, PHAA had their

maintenance staff build shelving and they use industrial bags

to store items and control pests. The estimated budget was not sufficient to purchase the

shelving required. While the original plan was to use bins and plastic wrap, the storage

company requested PHAA use industrial plastic bags to prevent pests.

Most lockers include a ‘kit’ for storing and labelling items. The kit includes industrial plastic

bags, ID tags, tape, clipboard, pen and tracking sheet. Each bag/item is labelled with the name

of the client and outreach worker, and the date

stored. PHAA provided a kit to most community

organizations participating in the program, though

not all. The agency without the kit reports they are

struggling to devise a system for maximizing space,

labelling and disposing of items in a timely way.

Some service providers report the lack of shelving

and system for storing items in plastic bags limits

them from fully utilizing the space. For one service

provider accepting only bagged items, shelving runs

along one wall (to allow for larger items in other

While deemed able to live independently, shelter staff feel this senior, a semi-regular shelter user with dementia, requires ongoing support to live independently. He is observed to be very vulnerable and is often preyed upon by other shelter clients. The storage locker helps to keep his most important belongings secure.

Having just moved from 30-days in a transition house, this woman was in need of short term storage as the shelter could not accommodate her many possessions. Although she was offered short-term storage, she could not pare them down to the service provider’s limit of three bags. She decided not to use the service.

areas of the locker), but the result is that once the

shelves are full, plastic bags must be piled on top of

each other. For another service provider, the lack of

shelving has not been an issue as to date as they accept

larger items including furniture.

Usage

While technically the program has been in operation for

1-year, at the time of the interviews, community

organizations had only been utilizing the lockers for

between 4 – 12 months. The delay was due to time

required to draft agreements between PHAA and each

community organization, as well as waiting for

additional lockers to become available within the

storage facility.

On average, 6 – 7 clients utilize a small locker at any one

time. As noted, time limits vary for each organization. One

service provider, with a 3-month maximum imposed, has

served 10 clients over a 7-month period. This same service

provider also has a 2-week minimum. Another service

provider imposes no limits on time or volume of possessions

and has only been able to offer the service to two clients

over an 8-month period.

Service providers report a wide range of individuals utilizing

the service. The most common need is for recently evicted clients being re-housed through the

service provider, and for community donations. One service provider notes that shelter clients

with too many possessions to store on-site, and individuals being incarcerated or in treatment,

are other common reasons for utilizing the service.

Personal effects and small furniture are the items most

commonly stored. Agencies either report an inability to

store large items due to lack of space or are concerned

about the cost of disposal should larger items be abandoned.

Agencies that do accept large items note it severely limits

their ability to serve other clients as the locker becomes full

quickly. However, agencies also describe problems

associated with not storing large items, including having to

abandon large items at a previous residence, losing a

Well known to the service provider, this client, an active drug user, had been homeless on and off for years. Determined to address his addiction after becoming employed, he chose to leave Victoria and many of belongings to begin treatment. Shelter staff offered him storage for his most important items and when he completed treatment his possessions were shipped items to his new home on the mainland.

Having housed and re-housed the client numerous times over the years, the service provider advocated for supported housing. When housing was approved, she was unable to move for 3-months. Her possessions were stored safely until she was able to move in.

This client has been housed precariously for a number of years. As an artist, he was concerned about the security of his most valued paintings. The service provider agreed to store of his paintings without any set time limit.

damage deposit, having to re-purchase items when re-

housed and the cost of disposal for the agency tasked with

removing them. Awkwardly shaped and bulky items are

also problematic, given the limited shelving space.

However, PHAA reports they may be able to take larger

items if they could manage and afford the disposal if items

are abandoned.

Location/Access

All seven lockers have been rented in one private storage

locker facility in Saanich, north of Victoria (Old Winery Self

Storage on Quadra Street). As previously noted, clients only access the locker through the

service providers and while rules for accessing possessions vary with each organization, access

is generally limited. Service providers report the location has been ideal – far enough from

downtown that clients do not seek to access the locker without staff, but on a major bus route

and easily accessible.

PHAA has built an excellent rapport with locker company staff who now donate items that have

been deserted to be re-distributed to clients in need. The hours of operation (8:00am –

6:00pm) also work well for service providers.

However, it is important to note that two service providers

feel transportation is an ongoing challenge. Not all service

providers have access to a vehicle and without

transportation, particularly access to a van or truck, it is

difficult to fully utilize the storage locker service. Agencies

may need to arrange moving services, including arranging

the funds to pay for such costs.

PHAA originally planned to rent lockers in two locations.

While initially interested, the second company declined to

participate after the media attention from the funding

announcement and news release. However, having one

location has not been a problem and the various service

providers are very pleased with the company they work with.

Community referrals

It was initially envisioned that outside agencies could contact

any service provider with a funded locker, to request

assistance for a client in need. However, to date, PHAA, nor

This long-term shelter user, frequently evicted from housing for violent behaviour, was sentenced to prison for a number of months. While in jail, the service provider arranged to store his belongings.

A new client was offered storage when the locker program first began. He moved in all of his belongings, including furniture. Over 8 months, he was housed, evicted and re-housed and number of times. His possessions remained in the locker and more were added. Due to the large volume of items, the service provider has only been able to offer the service to one other client in 8-months. The service provider is unsure when/how to dispose of this client’s possessions and have no Terms of Agreement contract in place.

the other service providers, are receiving referrals from outside agencies. This appears to be

due to a lack of promotion which is deemed unrealistic given the lockers are already fully

utilized. However, PHAA regularly receives referrals from outside agencies requesting housing

assistance for clients who are homeless or at risk. It is likely that some of these referrals result

in the provision of storage. In addition, there was originally a plan for more than one service

provider to share a locker. However, this was felt

to be too cumbersome to manage.

Donation storage

Donation storage has been an important and

unexpected benefit of the storage locker

program. PHAA uses the largest of its three

lockers for donations. At the time of the

interview, one other service provider used their

locker exclusively for donations, though they said this would likely change over time.

The lockers enable service providers to accept donations in greater volume which can be

distributed quickly to clients in need. The ability to store donations has meant lower costs for

clients rebuilding their lives and less work for service providers assisting clients in securing new

household items.

Storing community donations was an unmet need and deemed an extremely good use of space.

Agencies shared stories of hotels donating beds and mattresses, all redistributed to clients in

need within a few months. While describing the value, agencies

also note the large volume of donations they turn away for lack of

space. For example, one agency spoke of a seniors’ facility that

wished to donate dressers and end tables, but were unable to

accept the donations due to limited storage. Another service

provider shared their vision of a large warehouse for donated

goods that service providers could refer clients to (see Appendix C

for details).

Legal concerns

Although initially a key concern of PHAA and other community

service providers, liability has not been an issue to date. The

private storage locker company has insurance and a process in

place for customer complaints and PHAA is able to piggyback on these services.

While PHAA made sample Terms of Use forms available, not all service providers are asking

clients to sign as a condition of use.

Having been offered a very large donation, the service provider filled their one locker completely, and rented 2 others temporarily. The donated sheets, towels, mattresses, box springs and bed frames were redistributed to clients within 6 months.

A client in need of short term storage (under 2 weeks) was not offered space in the service provider’s locker. As the service provider finds it time consuming and labour intensive to transport possessions to the storage locker, they decided to store the possessions in their office, in ad hoc manner.

Budget

At the 6-month check-in, a number of costs not initially

accounted for in the original budget were highlighted. The

estimated cost of shelving was low and no funds were

included to dispose of abandoned items (transportation,

dumping and oversize fees). As a result, service providers

are hesitant to store large items as they cannot afford the

cost of disposing of them. In addition, there was no budget

for pest control. While pest prevention was taken into

consideration during the conception of the project

(including the use of plastic bags and storage totes), and the

storage company contracts regular pest control inspections,

the cost of addressing pests should they become an issue,

was not included in the budget. Consequently, three of four

service providers are hesitant to take items such as beds

and couches.

Program sustainability

While agencies did not offer concrete plans for when funds are exhausted, each stated they

hoped the lockers would continue to be funded. PHAA feels the lockers are a necessary part of

the Homeless Outreach Program and they hope to include storage fees as a part of future

budgets.

Storage was provided to a couple, previously housed by the service provider, currently under eviction. The ability of the service provider to store the couple’s most valuable possessions acted as an incentive to moving them quickly and voluntarily from their current residence. The smooth transition helped to preserve the relationship with the landlord, increasing the likelihood the service provider would be able to house another client in the unit.

Project Assessment

Conclusions

The Storage Lockers for the Homeless program has helped to fill a gap in the support services

available to homeless individuals throughout Victoria and has been well utilized. For those who

use the program, it has ensured important possessions are retained during the transition from

housing to homelessness and back to housing. It is also reasonable to assume that the program

helps to reduce the number of possessions that must be replaced if storage cannot be secured.

Shelter providers report that the storage locker program compliments their existing services as

shelters are unable to store possessions in either large quantities or long term. It also offers an

option to service providers who typically store possessions in a very ad hoc manner – often in

corners of offices and under desks.

Service providers report that access to storage proves an extremely useful tool when convincing

someone under eviction to leave their apartment, as they do not fear losing their important

belongings. Other benefits include: maintaining a positive relationship with the private

landlord; fewer possessions for the client to replace when they are re-housed; and increasing

the likelihood of having a damage deposit returned because the client has not deserted their

possessions for the landlord to dispose of.

Service providers report that the project also brought agencies together. Storage is common

problem for agencies working with the homeless and those at risk of homelessness. The

project encouraged agencies to share resources and learn from one another.

While considered successful, the Storage Lockers for the Homeless project also offers lessons

that could be applied, should a similar project be initiated in the future. The following

recommendations are based on information provided by PHAA and other service providers

participating in the storage lockers program.

Service provider recommendations/Lessons learned:

1. Carefully consider storage locker policies. Service providers should carefully consider their

policies on issues such as: maximum and minimum duration, volume of items, restricted

goods, size of items, manner of storage (bins, bags, loose, etc), access protocol and

transporting items to and from lockers based on their means. When developing policy,

agencies should consider client need as well as their ability to meet these needs.

2. Provide service providers with information re: best practices, sample tracking sheet and a

“Terms of Use” template for them to modify, etc. Service providers should be encouraged

to reflect on best practices, create a “Terms of use” document and ensure clients

understand and sign them.

3. Rent existing lockers from private storage facilities. Doing so avoids the cost of staffing a

facility and may allow the program to piggyback on the locker provider’s services and

policies, including processes for complaints, insurance policies and pest control services.

4. Match infrastructure to intended use. Depending on the intended use, large lockers may

be most appropriate, offering room for both shelving and furniture. If accepting only bags,

a service provider may benefit from more shelving.

5. Encourage service providers to prepare a kit for each locker. Kits could include bags, tags,

tape, clipboard, pen, and tracking sheet. Doing so helps service providers stay organized

and ensures quick access to possessions when required.

6. Budget

a. Include disposal costs when developing budget. Without disposal funds, the high

cost of transporting and disposing of large items may lead to a resistance by service

providers to accommodate such items.

b. Carefully calculate infrastructure costs. Appropriate infrastructure (shelves, bins, etc)

helps ensure the locker is utilized to its full potential.

c. Although the locker facility’s service may include pest prevention practices, budgets

should include funding to addressing pests, should they become an issue.

7. Consider solutions to challenges storing large items. Storing large items is problematic for

service providers. However, not storing larger items such as furniture is also problematic. A

program proposed by a service provider is outlined in Appendix C.

8. Communications. Staff should be cautioned not to promote outside agency referrals until

service providers are certain there will be space available to accommodate them. It

addition, it would be prudent not to include the name of the private storage locker facility in

the news release, without the company’s explicit support.

Appendix A

List of Stakeholders Consulted

1. Downtown Service Providers group (including representatives from Victoria Police Department,

Vancouver Island Health Authority, Coalition to End Homelessness, United Way, Downtown Victoria

Business Association, local government, various provincial ministries and social service providers)

2. Gathering Place, Vancouver

3. AIDS Vancouver Island

4. Burnside Gorge Community Association

5. Victoria Native Friendship Centre

6. Pacifica Housing Advisory Association

7. Salvation Army Addictions & Rehabilitation Centre

8. St. Vincent de Paul Society

Appendix B

Terms of Use agreement – SAMPLE

Date: _____________________________________

Pick up date: _______________________________

The following is an agreement between _____________________________________________

(agency name)

and ______________________________________.

(client name)

Employee name: ___________________________________________________

Liability Statement:

Recommend each service provider seek legal advice and draft their own liability statement.

Restrictions:

Recommend listing restricted goods. Examples may include:

- No explosive goods, flammable or volatile substances

- No illegal drugs, controlled substances or drug paraphernalia

- No bio-hazardous items or environmentally harmful goods

- No food stuffs or perishable items

- No stolen property (clients may be required to provide proof of ownership)

- Stored belongings must also not include wet items, dirty clothing, money, medications or

important documents

Service providers may wish to note that their belongings may be inspected to ensure compliance.

Duration:

Recommend service providers carefully consider their policies on service duration, including:

maximum and minimum weeks/months; when items will be considered abandoned and what will

occur when items have not been claimed within the timeframe. The service provider may also

wish to note that extensions may be given and that the client should contact the service provider

to arrange any changes to the terms of use agreement.

Access Protocol:

Recommend service providers carefully consider their access protocols including: who can

access the locker and how frequently. If offering to transport items, service providers may wish

to specify when items will be transported to and from the storage locker.

Description of items being stored:

_____________________________________________________________________

_____________________________________________________________________

_____________________________________________________________________

_____________________________________________________________________

_____________________________________________________________________

All dates must be placed on bags which will be numbered and tagged with the client’s name and

date stored.

I, __________________________ (the service user) have read and agree with the preceding

terms regarding the use of the specified storage space.

I understand that my belongings are stored entirely at my own risk.

____________________________________________ Date: _______/_______/_______

(Client signature) year month day

____________________________________________ Date: _______/_______/_______

(Employee signature) year month day

Appendix C

Furniture Redistribution Centre

The following concept surfaced during the six and 12-month project assessment interviews with

service providers. The proposal presented by service providers seeks to address three common

dilemmas when working to house homeless clients: the cost of replacing large and often

expensive furniture when re-housing clients; turning away large donations due to lack of space;

and challenges disposing of large items of furniture.

Project Proposal

The project proposal involves a non-profit service redistributing donations from local

businesses, the public, non-profit groups, as well as manufacturers, retailers, importers and

distributors. The service would concentrate on distributing large household items such as

furniture and other household goods.

Donations would be received, sorted and organized by volunteers within a warehouse space.

Referrals would come from social service providers on behalf of clients in need of goods. The

agency would visit the warehouse with their client and work with volunteers to select items.

Transporting the goods could be provided by either the society for a fee or no-charge, or

arranged by client themselves. Linkages could also be made to local moving companies. For

example, the Vancouver Island Health Authority provides a non-profit, client-run moving

service to social service agencies and the public.

Costs would involve:

- Administration/staffing

- Warehouse rental

- Pest control (e.g. bed bug sauna)

- Disposal fees

- Transportation (picking up donations from manufacturers, retailers, importers and

distributors)

Windfall Basics: A Toronto example (http://www.windfallbasics.com)

The project proposal has similarities to a program in Toronto: Windfall Basics. Incorporated in

1992, Windfall provides new and donated clothing and other basic-needs items (e.g. personal

hygiene products, house wares and school supplies) at no cost to people living in poverty or

crisis. The items are distributed through social service agencies. Windfall does not accept

referrals from individual clients.

http://www.windfallbasics.com/

Sorting and packing is done by teams of program participants from Community Living Toronto

and other groups of volunteers, such as schools and corporate teams.

Items are packed for each agency according to their clients' needs. Every month, an agency

representative comes to the warehouse to pick up the donated items for redistribution to their

clients.

Product donors include manufacturers, retailers, importers and distributors. Companies donate

their unsold items, rather than store their surplus inventory, sell it below value or put it in

landfill sites. Windfall picks up the items and offers an in-kind donation receipt.

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