Sprung Structures Fight Housing Shortages: City

Published 07/21/2024 · Updated 07/20/2024

This is a release from the City of Ottawa:

Subject / Objet Sprung Structure Description & Analysis Date: July 9, 2024

This briefing note is to provide Council with a more detailed understanding of Sprung Structures that are being explored to provide emergency welcoming and additional transitional housing capacity to accommodate the unprecedented levels of irregular migration in Ottawa. Further, the note outlines the factors that were considered in identifying Sprung Structures as the preferred rapid construction option. Not pursuing the development of Sprung Structures could result in continued and expanded use of community centres as Physical Distancing-Emergency Overflow Centres. Not pursuing the Sprung Structures could jeopardize up to $185 million of provincial and federal funding which is critical to support the City’s response to homelessness until 2026.

BACKGROUND

On July 12, 2023, Ottawa City Council approved the Integrated Transition to Housing Strategy (ITHS). The ITHS is comprised of short, medium and long-term initiatives to support single adult shelter clients to transition to housing, while addressing immediate pressures in the shelter system, and exit the operation of Physical Distancing-Emergency Overflow Centres (PD-EOCs) in City-owned recreational facilities.

On November 22, 2023, City Council approved a motion brought forward by the Emergency Shelter Crisis Taskforce directing staff “to actively pursue the option of a Sprung Structure or other semi-permanent facility.” Further, at the June 26, Community and Social Services Committee meeting, staff were directed to provide more information about Sprung Structures, including examples of interior designs for these buildings. Each Sprung Structure features aluminum arches that are integrally connected to an all weather outer architectural membrane. These semi-permanent structures are not like emergency tents used in disaster response. Interiors and exteriors are customizable. Exteriors come in a variety of colours with different accessories, including doors, windows, canopies, vestibules, covered walkway systems, connecting corridors, glazing walls, and graphic enhancements. The interiors are column free, allowing for flexible interior space planning that can meet a variety of operational requirements. Interiors can be constructed with washrooms, offices, kitchens and sleeping space. The structures are designed to be fully compliant with local building and fire codes.

Sprung Structures have been utilized locally and across North America for many different uses, including recreation centres, hospital emergency wings, banquet halls, office buildings, churches, and concert halls. For pictures and videos of example interiors and exteriors, please consult:

• Compilation of photos from various Sprung Structure projects

• Sprung Structures: Homeless Navigation Centres

• Sprung Structures: Ottawa Hospital Civic Campus

• Sprung Structure: Homeless Navigation Centre Solutions

ANALYSIS

To identify the preferred model to pursue, staff completed an options analysis that considered a number of rapid construction techniques, and evaluated them based on a series of construction, maintenance and operating criteria. These considerations included the following:

1. Rapid construction: Time is of the essence for this initiative to meet the unprecedented inflow of newcomers into the City. Sprung Structures were prioritized as they can be constructed quickly. Following building approvals, Sprung Structures can be constructed at a rate of 500 to 2,000 square feet per day, depending on customized options, complete with finished interior.

2. Purpose built for operational needs with required amenities: Sprung Structures are fully customizable and would be designed to provide the required capacity, with ability to scale up for overflow, as well as provide the amenities required under the Ottawa Transitional Housing Program Standards. The result is a comfortable, safe and client-friendly space. It can also be adjusted to conform to land parcel dimensions and potential constraints.

3. Flexibility and ability to repurpose: Needs change over time and may require that spaces be reconfigured to meet evolving demand. With the clear span interior, the space could easily be reconfigured in the future. For example, sleeping pods could be reconfigured to open space to adapt to different operating models. Similarly, if no longer needed for transitional housing, the structures could serve other City needs such as a community centre, library and/or emergency response.

4. Cost effective: Overall costs including construction costs, operating and lifecycle costs were also considered. The initial project costs are anticipated to be comparable to other rapid construction models and lower than traditional construction. The ongoing maintenance and lifecycle costs are anticipated to be lower due to centralized core building systems. Sprung Structures come with a 25- year pro-rated warranty, and the aluminum substructure has a 50-year pro-rated warranty.

5. Proven experience locally, and in serving vulnerable populations: Sprung Structures are used in Toronto for four respite centres, and in Ottawa by the Civic

Hospital for an Emergency Response Centre. Sprung Structures have been used by over 80 communities in the United States to provide homeless navigation centres. This supports the design and creation of spaces that apply best practice and industry specific considerations.

CONCLUSION

Ottawa’s single adult shelter system is operating over capacity with more than 360 single men and women staying in temporary Physical Distancing-Emergency Overflow Centres operating out of City owned recreational facilities. Immigration Refugee and Citizenship Canada (IRCC) has indicated that they anticipate the inflow of newcomers seen throughout 2023 will continue.

Housing & Homelessness Services and the Realty Initiatives & Development unit have been actively exploring private market opportunities for facilities that can be purchased and/or leased and have found that feasible, available options will not be sufficient to meet the required demand in the necessary timelines. In addition to Sprung Structures, the City and partners are currently pursuing the conversion of an office to transitional housing at 230 Queen Street, and the purchase of a former convent at 1754 St. Joseph Boulevard.

Without the additional flexibility and capacity provided by Sprung Structures, the City will need to continue, and expand its use of recreation and community centres across the city. As stipulated in the Integrated Transition to Housing Strategy, one of the criteria used to identify City facilities for emergency use is the prioritization of facilities across the City that have not previously been used for Physical Distancing-Emergency Overflow Centres to integrate these services into neighbourhoods where they have not previously been located.

Further, the timely development of an option such as Sprung Structures is a critical step in unlocking significant federal and provincial funding. In March 2024, the Government of Ontario announced a new agreement with the City of Ottawa which includes $120 million of new funding over 3 years for shelter services. This funding is contingent on the receipt of federal funding to address the shelter needs of newcomers.

The City has been in active discussions with the Federal Government for approximately $105 million to fund the development and operations of a Newcomer Reception Centre model over 2 years. This funding would satisfy the conditional provincial funding requirement, however, the City is required to apply the funding quickly and for the strict purpose of newcomer transitional supports. It cannot be used for permanent housing. The installation and operationalization of Sprung Structures is considered the best and most viable option to fulfill the requirements for both the provincial and federal funding within the required timelines and is the most cost effective considering those timelines.

Staff continue to actively move forward with project planning. An in-depth assessment of three potential City parcels for Sprung Structures is underway, and staff are exploring procurement processes and facility requirements. Staff will work with community partners to inform the design of the buildings, including internal set-up.

Sincerely,

Clara Freire

General Manager

Community and Social Services

cc. Wendy Stephanson, City Manager

Senior Leadership Team

Community and Social Services Departmental Leadership team