Common questions

Common questions regarding municipal efforts to help address homelessness in the Halifax region

What are designated outdoor sheltering locations?

Designated outdoor sheltering locations are spaces in some municipal parks where those experiencing homelessness can camp for the purpose of sheltering.

HRM By-Law P-600 – Respecting Municipal Parks states that the Executive Director of Parks and Recreation has the authority to grant permission for camping in municipal parks. In compliance with the by-law, designated camping locations were proposed in the June 14, 2022 staff report, approved by Regional Council.

These designated outdoor sheltering locations are for use by those experiencing homelessness. They are not to be used for recreational camping.

What is the status of the designated outdoor sheltering locations?

On June 14, 2022, Regional Council approved a staff report endorsing the proposed criteria and locations for designated outdoor sheltering locations in municipal parks.

As of July 27, 2022, Municipal staff have procured and installed portable toilets; garbage cans and organized garbage collection; access to potable water; storage boxes; and needle boxes. Informational signage for each location continues to be added.

Where are the designated outdoor sheltering locations?

As a provisional measure to ensure there are safe and serviced locations for those sleeping rough, the municipality designated four outdoor sheltering locations. Some designated locations have more than one site – and each site can have up to a maximum of four tents.

Barrington Street Green Way, between Cornwallis Street and North Street, Halifax (four to five sites)
Lower Flynn Park, Halifax (one site)
Geary Street Green Space, Dartmouth (one site)
Green Road Park, Dartmouth (two sites)

Collectively, these locations have the capacity for over 30 individuals – surpassing the number of persons currently identified as sleeping rough in parks.

View the map for locations and sites.

How were these locations chosen?

Municipal staff assessed several municipal parks against the criteria outlined below.

Locations cannot be:

within 50 metres of a school, daycare, or adult care facility
on active sports fields, dugouts, or bleachers
within horticultural displays or gardens
within cemeteries
near environmentally or culturally sensitive areas
blocking a path or right of access
on bridges, docks, or piers
near playgrounds, pools, or splash pads
near skateboard parks or sports courts
near picnic shelters, gazebos
near recreation facilities
in highly inaccessible spaces for individuals, services, and support providers

Once potential locations were identified, municipal staff considered the following when evaluating a proposed location:

•   proximity or availability of public washrooms, park washrooms, or another toilet option
•   proximity to a potable water source for drinking and handwashing
•   proximity to public transit
•   proximity to services and supports
•   site safety
•   site privacy
•   site maintenance services (including vehicular access and garbage removal)
•   potential of damage to the site
•   risk of conflict with other users of space

View the map for locations and sites.

Is accessibility a consideration when selecting designated outdoor sheltering locations?

Municipal staff recognize that there is significant portion of the homeless population with mobility challenges and accessibility was a key consideration when selecting the four designated outdoor sheltering locations. That is why the Green Road Park and North Street side of the Barrington Street Green Space were selected as two of the four locations.

In addition to the criteria outlined in the June 14, 2022, report to Regional Council, another factor that was considered in the selection process was to look at locations that people experiencing homelessness have used before. This also included getting feedback from those who have been sleeping rough for some time. Some tenting sites that met selection criteria are in a location that is not easily accessible; however, if it was a preferred location by people experiencing homelessness, these sites were included in the designated area.

How many tents are permitted at each location?

The number of tents permitted at each location varies. Some designated outdoor sheltering locations have more than one site – and each site can have up to a maximum of four tents.

Will temporary shelters or similar structures (like sheds) be allowed in the designated outdoor sheltering locations?

The designated outdoor sheltering locations are only for tents, not structures like temporary shelters or sheds.

What will happen if a temporary shelter or similar structure is constructed at one of these designated outdoor sheltering locations?

Signage will be installed at each of the designated locations to advise individuals on the guidelines for the location.

When a shelter is identified in a park, there is a reporting system in place for this information to be passed onto the municipality.

If a temporary shelter is identified, the first step is to determine whether there is someone living in it.

If it is occupied, the municipality would aim to follow its typical procedure of first having an outreach worker or navigator visit the individual. A compliance officer would also engage with individuals to ensure they are aware of the guidelines for staying at the designated outdoor sheltering location.

A reasonable amount of time will be given to the individual to move from the structure. which will be dependent on the individual’s circumstances and degree of health & safety concerns about the structure and its location.

If the individual refuses to move from the structure, the compliance officer will provide them written notice.

If municipal staff feel a negotiated settlement is not possible, a response plan will be developed with the Executive Director of Parks and Recreation. This response plan may include the assistance of Halifax Regional Police, as there is a violation of HRM By-Law P-600 – Respecting Municipal Parks.

The municipal administration does not have authority to direct police-related operational matters. Police officers fulfill their obligation to enforce the law, under the direction and authority of the Chief of Police.

If a shelter is not occupied, the owner, if known, will be asked to remove it. If not removed, the municipal may remove it.

What authority does the municipality have to designate outdoor sheltering locations?

HRM By-Law P-600 – Respecting Municipal Parks states that camping is prohibited in a park, unless otherwise posted or by permission from the Executive Director of Parks and Recreation.

In compliance with the by-law, designated camping locations were proposed in the June 14, 2022 staff report, approved by Regional Council. These designated outdoor sheltering locations are for use by those experiencing homelessness. They are not to be used for recreational camping.

What are the regulations for individuals sheltering in these areas, and how will it be enforced?

Individuals using designated outdoor sheltering locations will be expected to follow the rules and regulations that apply to everyone, such as By-Law P-600 – Respecting Municipal Parks, By-Law N-200 – Respecting Noise, and By-Law O-109 – Respecting Open Air Burning.
Additionally, individuals will be required to restrict the number of tents at each site to a maximum of four.

Compliance officers will regularly visit designated outdoor sheltering locations. During those visits they will confirm that residents are aware of the requirements of sheltering in that location. They will also ensure that people who are looking for assistance are contacted by Street Navigators, if that has not already been done.

If an individual is not following the rules of a location, the compliance officer will work with the individual to ensure they are aware of the associated regulations. After that, they may issue a formal notice, after discussing the matter with Parks & Recreation staff and compliance officers.

Should they still not comply, the issue will be escalated for further response. This may include further attempts at negotiation and if all options are exhausted, and the status quo remains unacceptable, the issue may be referred to the Halifax Regional Police for action, as a last resort.

How can people who use the designated outdoor sheltering locations, or those who live around the locations, report issues?

Individuals can contact 311 to report issues at designated outdoor sheltering locations or to access further information.

Halifax Regional Police should be called for any illegal activity taking place at a designated outdoor sheltering location.

Will additional designated outdoor sheltering locations be identified?

If the need for outdoor sheltering locations exceeds the capacity of these four locations, in the short term, municipal staff will engage the federal and provincial governments to discuss considering use of their space for additional locations. Municipal staff would then consider adding additional designated locations in park spaces in accordance with the above criteria.

HRM By-Law P-600 – Respecting Municipal Parks gives the Executive Director of Parks and Recreation the authority to permit camping in municipal parks. The Executive Director of Parks and Recreation will consult with the local Councillor(s) before determining additional locations. As authority for designating locations rests with the Executive Director, municipal staff will not return to Regional Council for approval of additional locations.

In addition, municipal staff will also continue the discussions with the Province of Nova Scotia and the Government of Canada to confirm if there is provincial or federal space that can accommodate additional designated locations.

How is the municipality controlling the number of individuals at each designated location?

Compliance officers will regularly visit designated outdoor sheltering locations. During those visits they will confirm that residents are aware of the requirements of sheltering in that location, including the limit to the number of tents that can be accommodated. They will also ensure that people who are looking for assistance are contacted by Street Navigators, if that has not already been done.

If an individual is not following the rules of a location, the compliance officer may issue a formal notice, after discussing the matter with Parks & Recreation staff and compliance officers.

What services are being provided at each designated location?

Municipal staff procured and installed portable toilets and garbage cans and organized garbage collection. Additional services such as access to potable water, storage boxes and needle boxes continue to be added.

Municipal staff will continue to regularly visit designated outdoor sheltering locations to ensure the services are adequate and to mitigate issues where possible. Municipal staff will also continue coordinating with the Province of Nova Scotia and their service providers to ensure those experiencing homelessness have access to the support they need.

How will individuals experiencing homelessness be informed of the designated outdoor sheltering locations?

Municipal staff have prepared handouts outlining the designated outdoor sheltering locations and guidelines for staying at these locations, which have been provided to individuals experiencing homelessness.

Municipal staff will also be installing signage at each location during the week of July 18, 2022, explaining the layout of the different sites, guidelines for staying at these locations, and supports available to individuals' experiencing homelessness.

Now that there are designated outdoor sheltering locations, what does the municipality intend to do about existing encampments at municipal parks that are not designated outdoor sheltering locations?

The municipality’s number one priority has been, and continues to be, treating those experiencing homelessness with dignity – and continuing to find ways to provide support within our organization’s capacity and scope.

The municipality is committed to working with people experiencing homelessness, volunteers, community partners, services providers and the Province of Nova Scotia to identify and implement housing solutions as well as create pathways into safe and supported space for those who are unhoused.

That is why we have implemented the designated outdoor sheltering locations as a provisional measure in the short term to ensure there is a safe and serviced location for those who must sleep rough.

The first step was to equip the designated outdoor sheltering locations with services such as portable toilets, garbage cans, and regular waste collection. Additional services such as access to potable water, storage boxes and needle boxes continue to be added.

For many months, individuals have been sheltering in Meagher Park. Health and safety conditions in the park have continued to decline, placing those sheltering in this location in an increasingly vulnerable situation. On July 5, 2022, the municipality provided notice that Meagher Park was closed, effective immediately. Individuals sheltering at the time of the notice have until July 17, 2022 to move from the park.

Municipal staff visited the park on July 5, 2022 to offer those currently sheltering in the park information on available resources, advise them that the park is being closed and to explain the transition period so they know they do not have to leave the park right way.

Through the municipality’s partners at the Province of Nova Scotia and its service providers, individuals experiencing homelessness will continue to be offered assistance, including available options for temporary housing which can lead to permanent housing solutions.

If there are no housing options for individuals located at these parks who are experiencing homelessness, or if these individuals do not or cannot accept the options provided, the municipality will work with service providers to support people moving to one of the designated outdoor sheltering locations.

What is being done to assist those sheltering at Meagher Park after July 17, when the transition period to move from this location has ended?

The provincial Department of Community Services has confirmed that those sheltering in Meagher Park at the time of the closure have all previously been in discussions with service providers about available housing options and been assessed for housing options. Not everyone is eligible or can accept the options that are currently available. Personal choice impacts people’s options.

After July 17, 2022, municipal staff will visit the park to confirm that everyone has moved from the park. If anyone remains, staff will engage them on a case-by-case basis to determine their status and inquire about their plans to relocate. Service providers will continue to engage with individuals experiencing homelessness to identify options and resources that are available.

If there are no housing options, or if individuals do not or cannot accept the options provided, the municipality will work with service providers to help those experiencing homelessness relocate to one of the designated locations.
If someone refuses to leave the park, for whatever reason, a negotiated settlement with municipal staff will be attempted. If that is not possible, a response plan will be developed by municipal staff which may include requesting the assistance of Halifax Regional Police, as a last resort. Failure to comply with the closure of the park is an offence under HRM By-Law P-600 – Respecting Municipal Parks and the Protection of Property Act, R.S.N.S., 1989.

What happens if an individual who's sheltering at a location in a municipal park (not identified as a designated outdoor sheltering location) refuses to move?

If it is reported that there are locations that are being used for sheltering that have not been designated, a service provider, such as a Street Navigator, will engage with individuals experiencing homelessness to identify options and resources that are available, if that has not already started. If an individual is sheltering in a location that is not a designated outdoor sheltering location, the Street Navigator will also help with relocating to a designated area.

If the individual refuses to move, compliance officers will then engage with the individual to inquire on their plans to relocate and Street Navigators will continue to offer support to the individual.

If the individual has not moved to a designated location, the compliance officer may issue a formal notice, after discussing the matter with Parks & Recreation staff and compliance officers.

There is no set timeline for this process, as each situation will be looked at on a case-by-case basis and a negotiated resolution will be attempted as much as possible. However, if municipal staff feel a negotiated settlement is not possible, a response plan will be developed with the Executive Director of Parks and Recreation. This response plan may include the assistance of Halifax Regional Police, as a last resort, as an individual camping in a location that is not a designated outdoor sheltering location is in violation of HRM By-Law P-600 – Respecting Municipal Parks.

What was done to communicate the closure of Meagher Park?

Prior to July 5, 2022, municipal staff reached out to speak with several key stakeholders, including the Province of Nova Scotia and a number of service providers who have been, and continue to support, those experiencing homelessness, to ensure they were aware of the plan to work with those sheltering in the park to move to the designated outdoor sheltering locations.

As the first priority has been to communicate directly with individuals experiencing homelessness who are located at Meagher Park, municipal staff visited the park in the morning on July 5 to offer those currently sheltering in the park information on available resources, advise them that the park is being closed and to explain the transition period so they know they do not have to leave the park right way.

We recognize that there might have been individuals sheltering in Meagher Park who were missed on July 5, 2022. That is why, during the transition period until July 17, 2022, municipal staff continued to visit Meagher Park to speak with those who have been sheltering in the park to find alternate arrangements for them, which could include moving to one of the four designated outdoor sheltering locations.

What happened at Meagher Park on July 28, 2022?

Further to efforts leading up to, and throughout the transition period which ended on July 17, the municipality has continued its civilian-led engagement approach to communicating with those experiencing homelessness who are sheltering in Meagher Park. Municipal staff have visited the park regularly to perform wellness checks with those who remain onsite, connect them with service providers, inform them of the closure of the park and explain the services that are available at each of the four designated outdoor sheltering locations.

As we have stated previously, as per this civilian-led approach, if an individual is sheltering in a location that is not a designated outdoor sheltering location, and after discussions with municipal staff and service providers is offered an alternative, but refuses to move, compliance officers will then engage with the individual to inquire on their plans to relocate and street navigators and outreach workers will continue to offer support to the individual.

That is what occurred today at Meagher Park – a Compliance Officer went into the park at approximately 10 a.m. to check with those still sheltering there to confirm if they had plans to relocate to one of the four designated outdoor sheltering locations and to remind them of the need to vacate the park, given the notice that was provided on July 5. The Compliance Officer spoke to the five individuals in the park and they acknowledged the message.

In terms of next steps, municipal efforts remain focused on assisting those who are experiencing homelessness and encouraging those who remain in the park to vacate the site and accept alternative options, including the support and services currently provided at the four designated outdoor sheltering locations.

As previously indicated, if someone refuses to leave the park, for whatever reason, and a negotiated settlement is not successful, the response plan may include requesting the assistance of Halifax Regional Police, as a last resort. Failure to comply with the closure of the park is an offence under the Municipal Parks Bylaw and the Protection of Property Act, R.S.N.S., 1989.

More information on the approach and status of the four designated outdoor sheltering locations and Meagher Park is available in the July 27 municipal update.

Why wasn’t Meagher Park chosen as a designated outdoor sheltering location?

The municipality has an established set of criteria to identify suitable locations for designated outdoor sheltering locations. Meagher Park wasn’t selected because of site safety and privacy, and its proximity to schools among other reasons.
Municipal staff assessed several municipal parks, including Meagher Park, against the following criteria:

Locations cannot be:

within 50 metres of a school, daycare, or adult care facility
on active sports fields, dugouts, or bleachers
within horticultural displays or gardens
within cemeteries
near environmentally or culturally sensitive areas
blocking a path or right of access
on bridges, docks, or piers
near playgrounds, pools, or splash pads
near skateboard parks or sports courts
near picnic shelters, gazebos
near recreation facilities
in highly inaccessible spaces for individuals, services, and support provider

Once potential locations were identified, municipal staff considered the following when evaluating a proposed location:

proximity or availability of public washrooms, park washrooms, or another toilet option
proximity to a potable water source for drinking and handwashing
proximity to public transit
proximity to services and supports
site safety
site privacy
site maintenance services (including vehicular access and garbage removal)
potential of damage to the site
risk of conflict with other users of space

Why are all the designated outdoor sheltering locations in the urban core of the municipality?

Municipal staff assessed several locations across the municipality and based on the criteria listed above, recommended the designation of these four locations. This recommendation was informed by historic use of some sites by those experiencing homeless and feedback from service providers about the need for proximity to services.

Why can’t empty commercial space be used for designated outdoor sheltering locations?

Municipal staff assessed several municipally owned locations across the municipality and based on the criteria listed above, in addition to feedback from key stakeholders and those experiencing homelessness, it was decided that designating these four locations for sheltering outdoors provided the best short-term approach.

At this time, acquiring empty commercial land or properties was not considered as an option, however municipal staff continue to discuss options with stakeholders on potential longer-term approaches to supporting those experiencing homelessness.

What is being done to clean up the parks where encampments have been located?

If a location where people have been sheltering has been confirmed as vacated, municipal staff will conduct an on-site inspection and determine what is required to clean up the site. The extent of work required will determine the time and cost associated with the restoration of these locations.

For Meagher Park, following the transition period, access to the park will be restricted so it can be repaired and returned to its intended purpose, as parkland accessible to all. Public safety is of primary concern, and the municipality will be fencing the area so that restoration work can be completed. This work includes cleaning the area and resodding the grass.

Now that Meagher Park has been closed, what about other parks in which individuals are sheltering?

For many months there have been individuals sheltering in Meagher Park. Health and safety conditions in the park have continued to decline, placing those sheltering in this location in an increasingly vulnerable situation. That is why Meagher Park was considered a priority.

In the coming weeks, other parks and locations will be assessed by municipal staff. Municipal staff, working with the navigators, province and service providers, will continue to work with those sheltering in the parks with access to support, as well as offers of a suitable housing options and/ or support with relocating to a designated outdoor sheltering location.

Why can’t all those who are sheltering at Meagher Park (and other locations) be given a space in one of the modular units?

The municipality has completed installation of the modular units, which has capacity to accommodate up to 64 individuals. However, the municipality has no role in the placement of individuals in these emergency accommodations or other temporary housing options.

The province, through with its service provider, Out of The Cold, has assessed and placed many individuals experiencing homelessness in the modular units and other temporary housing options. Based on information provided by the province in mid-July, the Dartmouth modulars are near capacity and the Halifax modulars are at approximately 50% capacity.

The provincial Department of Community Services has confirmed that those sheltering in Meagher Park at the time of the closure have all previously been in discussions with service providers about available housing options and been assessed for housing options, though not everyone is eligible or can accept the options that are currently available. As well, personal choice impacts people’s options.

Residents with questions related to supports and services for those experiencing homelessness can contact 211 for more information.

What is the latest update on the modular units?

The Halifax site, located at the western portion of the Centennial Pool parking lots accessed from Cogswell Street, consists of six modular units and three support units. Occupancy permits were approved on April 14, 2022, for 36 rooms and for two barrier-free rooms and the commercial kitchen on May 3, 2022. This site can currently accommodate 38 individuals.

The Dartmouth site, located on Alderney Drive near Church Street, consists of four modular units, an accessible unit, and two support units. Occupancy permits were approved on Jan. 13, 2022, and the provincial service provider, Out of the Cold, facilitated placements of individuals on Jan. 16, 2022. This site currently can accommodate 26 individuals.

The modular units are designed to provide temporary emergency accommodations for those experiencing homelessness. The wrap-around services provided by the province will help ensure the occupants are on a path to permanent housing.

What investment has been made by the municipality towards the modular units?

On Nov. 9, 2021, Regional Council approved allocating $3.2 million towards the purchase, installation, and maintenance of modular units at two sites to accommodate unhoused individuals (see staff report here). An additional $1.2 million was allocated on Jan. 11, 2022 (see staff report here), and a further $206,000 of unused educational funding was reallocated on March 1, 2022 (see staff report here). This is an addition to $500,000, which was allocated on Aug. 31, 2021 (see staff report here) for emergency accommodations.

What is the total cost of the modular units?

The total estimated cost for the modular units initiative is $4,364,000. This includes purchase and installation of the units.

What was the municipality’s role and the province’s role in this initiative?

While the province is responsible to lead addressing homelessness in all regions of the province, the municipality has an important role to play – and is committed to applying resources to support efforts aimed at helping to address homelessness in the Halifax region.

The municipality has provided the purchase, installation, and maintenance of these units, with a capacity for a total of 64 individuals experiencing homelessness. The municipality will also provide all typical municipal services, such as waste collection, and cover the cost of utilities and maintenance at these sites.

The province is responsible for determining placement of individuals and providing wrap-around services onsite through its service provider, Out of the Cold.

What is the status of the Lived Experience Committee?

As outlined in the June 14, 2022, report to Regional Council, municipal staff have engaged the United Way to bring together a lived-experience committee.

The intent of the committee is to ensure the voices and perspectives of persons with lived experience of homelessness are heard in the decision-making process. The committee will provide feedback to the municipality on its approach and policies related to homelessness. It will not be a committee in the traditional sense, in that some of those providing feedback may move in and out of the process. It is anticipated that there will be a small group of persons consistent through the process to provide feedback over a period of several months.

The United Way has secured facilitators for the committee and have developed a facilitator’s guide for the first consultations. Some members of the committee have been recruited and more are being identified in the month of July.

What is the status of the Park Patrol?

As outlined in the June 14, 2022, report to Regional Council, because of an anticipated increase in compliance needs related to people sheltering in the designated locations, staff proposed a short-medium term solution to establish a compliance function within the Parks and Recreation business unit. The purpose of this function in the would be primarily focused on monitoring and compliance related to designated sheltering locations in parks. Having a dedicated park patrol would allow the municipality to recruit and train with a view to having compliance officers that are heavily focused on a restorative approach and who could develop expertise in working with people experiencing homelessness.

The hiring process is underway, and more information will be available in the near future.

How are the roles different for the municipality and the province in addressing the homelessness issue?

The Province of Nova Scotia is responsible to lead addressing homelessness in all of Nova Scotia’s municipalities and has the mandate to provide:

Public housing and programs for people with low to modest income; and
Affordable housing throughout the province, including housing options for those experiencing homelessness.

While the province has overall responsibility on initiatives to address homelessness, the Halifax Regional Municipality acknowledges it also has an important role to play – and is committed to work with government and community partners to apply resources to support efforts aimed at helping to address homelessness in the Halifax region.

As such, the municipality has developed and led a number to initiatives to support those who are experiencing homelessness. These include:

Created four designated outdoor sheltering locations in municipal parks for those experiencing homelessness, with a total capacity for more than 30 individuals – surpassing the number of persons currently identified as sleeping rough in parks.
Built modular units at two sites in Dartmouth and Halifax, with the capacity to house 64 individuals experiencing homelessness (26 in Dartmouth and 38 in Halifax. The province’s service provider, Out of the Cold, has begun the process of gradually moving individuals into the Halifax modulars. It is important to note that decisions and timing related to the placement of individuals are determined by the service provider.
Approved $70,000 to a coalition of 11 community service providers for use as crisis funding for hotel stays to support individuals experiencing homelessness. In conjunction with service providers, the municipality has also directly covered the cost of hotel rooms for some individuals.
Worked with both levels of government to provide accommodations for up to 70 additional individuals in spring 2022, through the Rapid Housing Initiative.
Continue to provide the province access to select municipal facilities, which are used as temporary emergency shelters during severe weather events.

The municipality remains in regular contact with provincial counterparts and community partner organizations to communicate available services to those experiencing homelessness.

Residents with questions related to provincial supports and services for those experiencing homelessness can contact 211 for more information.

What is the municipality doing to support affordable housing?

As housing insecurity continues to be an issue in the region, all three levels of government play a role in the development and rehabilitation of affordable housing. The municipality acknowledges housing is a shared responsibility and issues surrounding affordable housing, and homelessness, cannot be solved by any single group or with any single solution.

As such, the municipality continues to work with community partners and other levels of government to expand initiatives to help address both affordable housing and homelessness.

For more information about municipal efforts so support affordable housing visit our webpage.