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
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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.
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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.
Page 4
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
Page 5
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.
Page 6
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.
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.
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
Having just moved from 30-days
in a transition house, this woman
not all. The agency without the kit reports they are
was in need of short term storage
struggling to devise a system for maximizing space,
as the shelter could not
labelling and disposing of items in a timely way.
accommodate
her
many
possessions.
Although
she
was
Some service providers report the lack of shelving
offered short-term storage, she
and system for storing items in plastic bags limits
could not pare them down to the
them from fully utilizing the space. For one service
service provider’s limit of three
bags. She decided not to use the
provider accepting only bagged items, shelving runs
service.
along one wall (to allow for larger items in other
Page 7
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.
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.
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.
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
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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 3months.
Her possessions
were stored safely until she
was able to move in.
damage deposit, having to re-purchase items when rehoused 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
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.
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
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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.
Having been offered a very large donation, the
service provider filled their one locker
Donation storage
completely, and rented 2 others temporarily.
Donation storage has been an important and
The donated sheets, towels, mattresses, box
unexpected benefit of the storage locker
springs and bed frames were redistributed to
clients within 6 months.
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
A client in need of short term
storage (under 2 weeks) was
wished to donate dressers and end tables, but were unable to
not offered space in the
accept the donations due to limited storage. Another service
service provider’s locker. As
provider shared their vision of a large warehouse for donated
the service provider finds it
goods that service providers could refer clients to (see Appendix C
time consuming and labour
intensive
to
transport
for details).
possessions to the storage
locker, they decided to store
Legal concerns
the possessions in their office,
Although initially a key concern of PHAA and other community
in ad hoc manner.
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.
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10
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.
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.
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.
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11
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.
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12
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.
Page
13
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
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14
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.
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15
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
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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.
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17
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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