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Home My WebLink About8.1 AlaCntyHomelessCarePln , .....-.: ~F,t!/-, '_ ,- _-., -.' CITY CLERK File # n~r5J-f:tJllQl '. AGENDA STATEMENT CITY COUNCIL MEETING DATE: September 16,1997 SUBJECT: Alameda County Homeless Continuwn of Care Plan (Report prepared by: Carol R. Cirelli, Senior Planner) CA c... EXIllBITS ATTACHED: Exhibit I: Resolution adopting the Alameda County-wide Continuum of Care Plan Exhibit 2: Alameda County-wide Continuwn of Care Plan RECOMMENDATION: ~ Approve the attached Resolution, Exhibit 1.. adopting the Alameda County-wide Continuwn of Care Plan. FINANCIAL STATEMENT: None . BACKGROUND: Over the past twenty years, public and non-profit agencies of Alameda County have responded to the needs of homeless youth.. families and single adults. The Alameda County-wide Continuum of Care Plan states that there are 300 homeless individuals in the East County area (Tri-Valley area. Sunol and other unincorporated areas), which is 3.2 percent of the County's total homeless population. A key cause of Alameda County homelessness is the imbalance between the high cost of rental housing and incomes of the poorest residents. Many services and housing for the homeless population have been funded through public (Le., cities, counties and federal agencies) and private (foundations, cOIporations,local residents and Alameda County residents) efforts. However, over the years, these service agencies recognized the need for the comprehensive phmnine and coordination of programs serving the homeless to avoid duplication of efforts and to ensure that overall service needs are met. During the past year, the Continuum of Care Working Group, comprised of appointed representatives from the County, all the cities, homeless service providers and advocates, homeless and formerly homeless people, faith community, business, organized labor, education and health care fields, conducted meetings and met with consultants for the final preparation and approval of the Alameda County-wide . Continuum of Care Plan, and :final adoption of the plan by Alameda County jurisdictions. ----------------------------- COPIES TO: In-House Distribution ITEM NO.--Ai g:\cdbg\stfrpts\hccpccsr . -' ~.- . -..: . ~ ~ - .. . . '. -. . - - ~. ..' ..... ...... ." " ~~t"" .-.' ". ...' DESCRIPTION: Alameda County-wide Continuum of Care Plan . The Alameda County-wide Continuum of Care Plan (plan) is a comprehensive five-year planning document that sets priorities for coordinating local efforts to address homelessness and prepare for potential increases in need from structural changes, such as welfare reform. The Plan aims to "coordinate all Alameda County homeless planning efforts into a single, more comprehensive homeless services delivery system, providing services to all homeless subpopulations in all parts of Alameda County along a 'continuum of care' from interventions for the prevention ofhomelessness, through the homeless person's first contact with the 'system,' emergency assistance and shelter, transitional housing and services, and permanent housing and jobs." The following are other major goals of the plan: · To maintain the capacity of the existing service system while building new partnerships to take advantage of all opportunities, especially those that are time-limited, to generate greater resources for the continuum of housing and services, and; · To establish a method for interjurisdictional cooperation to achieve the objectives of the Plan. The Plan outlines primary goals for five topic areas and a first year and Five Year strategy for achieving those goals, with recommendations for mai,ntaining, improving, and increasing homeless housing and services. The goals and recommendations cover the following five topic areas:, . 1. HousinolTransitional Housing/Shelter Priorities (e.g., exp~d the number of shelter bedsJtransitional housinglpennanent supported housing; niaintain the current capacity of - ~ _~ shelters, 1ransitional housing, etc.) 2. Incomes and Em>>loVInent Priorities (e.g., expand job training and placement) 3. Suooort Services Priorities (e.g., expand access to child care, transportation services, government food programs) 4. IntelWlted Health Care Priorities (e.g., expand the number of alcohol and drug pre- treatment centers) 5. Plan Administration Priorities (e.g., coordinate and streamline local funding processes, especially the federal McKinney homeless funding applications) City of Dublin General Plan The City of Dublin has always supported the provision of emergency shelters for homeless individuals and families. The Housing Element recommends the adoption of an amendment to the Zoning Ordinance allowing emergency shelters in multi-family zoning districts as a conditional use. In addition, the Housing Element includes a strategy for funding existing emergency shelter programs in the Tri- Valley area to house citizens in need of emergency shelter. . 2 -'~'_:-~= -. n" r __ - . " " - .. . ~ -.." - . " . " ." ". ". .' - . . .".." - ~ Dublin's Particioation as an Urban County Jurisdiction The Continuwn of Care Plan does not require the City to carry out any particular project. Instead, the Plan serves as a guide, or information source for coordinating local efforts to address homelessness. Adopting the Plan would simply commit the City to continue working and moving forward with other Alameda County jurisdictions to address homelessness. . One priority of the Plan is to establish a county-wide Continuum of Care Council. This Council would serve as a focal point for county-wide interjurisdictional coordination to accomplish the five-year Homeless of Continuum of Care Plan. The Plan recommends that Dublin's Urban County Technical AdvisoIY Committee representative participate in the selection of one or more Urban County . Representatives to the Continuum of Care Council. There is a potential for City of Dublin staff to be selected to the Continuum of Care Council. However, costs associated with this participation would be minimal. The Continuum of Care Council would initially meet monthly, or every other month, and there is a strong possibility that these administrative expenses could be covered as an eligible CDBG expense. RECOMMENDATIONS: Recognizing the need to comprehensively plan and coordinate service and housing programs, including McKinney homeless funding applications for the Alameda County homeless population, and recognizing that the Plan supports the City's General Plan housing goals, Staffrecommends City Council adoption of the Alameda County-wide Continuum of Care Plan. Adopting this Plan would support Dublin's Housing Elements goals and would demonstrate the City's commitment towards meeting these goals and needs of the County's homeless population. . . 3 '. '. -. RESOLUTION NO. - 97 . A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF DUBLIN ********* ADOPTING THE ALAMEDA COUNTY-WIDE CONTINUUM OF CARE PLAN WHEREAS, representatives of Alameda County, its cities, homeless service providers, non-profit housing developers, faith conununity representatives, formerly homeless persons and others have come together over a year to engage in a county-wide planning process for meeting the needs of homeless individuals and families; and WHEREAS, the planning process has resulted in the creation of the Alameda County-wide Homeless Continuum of Care Plan; and WHEREAS, the Continuum of Care Plan sets priorities for a five-year comprehensive county- wide effort to coordinate local efforts to address homelessness and prepare for potential increases in need from strUctural changes, such as welfare reform; and WHEREAS, the Continuum of Care Plan seeks to maintain the capacity of the existing service system while building new partnerships to generate greater resources for the continuum of housing and services; and . WHEREAS, Alameda County has been recognized by the U.S. Department of Housing and Urban Development as a Best Practice Performer in the area of Continuum Care; and WHEREAS, the Continuum of Care Plan is necessary for federal applications for homeless funding; and WHEREAS, the Continuum of Care Plan calls for the creation of a Continuum of Care Council with representation from every city to carry out the goals of the plan; NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of Dublin, hereby adopts the Alameda County-wide Continuum of Care Plan; and BE IT FURTHER RESOLVED, that the City of Dublin endorses the county-wide approach to federal McKinney homeless funding as guided by the priorities of the Plan; and BE IT FURTHER RESOLVED, that the City Council of the City of Dublin directs its representative to the Urban County Technical Advisory Committee, to participate in the selection of one or more Urban County Representatives to the Continuum of Care Council. . EXIDBIT 1 PASSED, APPROVED AND ADOPTED this 16th day of September, 1997, AYES: NOES: ABSENT: ABSTA1N: ATTEST: Mayor City Clerk g:\pJanning\cdbg\stfrpts\hccpreso . . . . . . ALAMEDA COUNTY-WIDE HOMELESS CONTINUUM OF CARE PLAN Alameda County and its Cities Working Together to Create a Comprehensive Homeless Services Delivery System for Preventing, Reducing and Ending Homelessness '" ". ADOPTED BY THE CONTINUUM OF CARE WORKING GROUP APRIL 15, 1997 . EXHIBIT 2 Table of Contents . EXECUTIVE SUMMARY '-, Chapter 1: PROCESS OF PLAN DEVELOPMENT Page 1 Chapter 2: VISION/MISSION & GUIDING PRINCIPLES Page 7 Chapter 3: OVERVIEW OF THE HOMELESS POPULATION '- AND CURRENT SERVICE CAPACITY Page 11 Chapter 4: ANALYSIS OF CURRENT FUNDING OF THE CONTINUUM Page 49 .-- Chapter 5: SUMMARY OF 1997 PLAN PRIORITIES Page 65 Chapter 6: HOUSINGrrRANSITIONAL HOUSING/SHELTER Page 75 ... Chapter 7: INCOME AND EMPLOYMENT Page 91 - " - Chapter 8: SUPPORT SERVICES Page 10 1 .- Chapter 9: INTEGRATED HEALTH CARE Page 113 ',' Chapter 10: PLAN ADMINISTRATION Page 121 Appendix 1: ACKNOWLEDGEMENTS & PLANNING PARTICIPANTS Page 133 Appendix 2: HOMELESS PEOPLE SURVEY INSTRUMENTS AND SUMMARY OF RESULTS Page 141 Appendix 3: COMMITTEE GUIDING PRINCIPLES Appendix 4: BIBLIOGRAPHY Page 155 Page 165 <:~.: .--- ': .. , ~.. . . . '- . -". - '..' - ~ ..' -' ' .'__ .__.." ," _r ,__, . ._ . ALAMEDA COUNTY-WIDE HOMELESS CONTINUUM OF CARE t.' Executive Summary . -. "If I wasn't laid off I wouldn't be homeless. What I need now is housing llSsistance. .. Homeless father, a veteran, in the Tri-Cities, 1996 . , ~ .."". Executive Summary . EXECUTNE SUMMARY For the past two decades, cities in Alameda County, its non-profits, faith-based institutions, businesses and other concerned community members have responded to the needs of homeless youth, families and single adults. This response includes food, clothing, transportation, shelter, housing, employment related services and many other health related services. While this effon, funded by multiple sources, public and private, has been valiant and successful in meeting some needs of individual clients, it falls far shon in comparison to the overall need. Over the years, many strong partnerships have emerged. Many of these have been formed through the financing made available under Federal McKinney Homeless Programs, matched by the County and its cities, foundations, corporations and local businesses and the generosity of the residents of Alameda County. However, of great concern has been the lack of comprehensive planning and coordination to avoid duplication of efforts and ensure that gaps in service are filled. The Alameda County-Wide Homeless Continuum of Care is five-year strategic plan to prevent, reduce, and end homelessness. Building on past plan planning efforts, this plan has a bold mission: to coordinate all Alameda County homeless planning efforts into a single, more comprehensive homeless services delivery system, providing services to all homeless subpopulations in all parts of Alameda County along a "continuum of care" from interventions for the prevention of homelessness, through the homeless person's first contact with -the ... system, <00 emergency assistance and shelter, transitional housing an'd services, and permanent housing and jobs. . The major goals of this Plan are: . To coordinate local efforts to address homelessness and to prepare for potential increases in need as a result of struCtural changes such a welfare reform, ',". . To maintain the capacity of the existing service system while building new partnerships to take advantage of all opportunities, especially those that are time-limited, to generate greater resources for the continuum of housing and services, and . To establish a method for interjurisdictional cooperation to achieve the objectives of the Plan. . Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 i . Executive Summary . . Phmning Process In preparation for launching the formal Continuum of Care planning process, a series of idea- gathering meetings were held in early 1995 with service providers, city staffs, elected officials, local HUD representatives, and other funders to discuss the concept of the county- wide plan. Based on the recommendation from the community and agreements between the panicipating jurisdictions and ESN, a Continuum of Care Working Group (CCWG) was seated in June 1996. The CeWG consisted of appointed representatives from the County, all the cities, homeless service providers and advocates, homeless and formerly homeless people, faith community, business, organized labor, education, and health care. The CCWG held periodic meetings between June 1996 and April 1997, leading to final review and approval of the Plan for adoption by jurisdictions. The CeWG was supported by a consultant team to assist in meeting facilitation, research, prioritizing, and drafting of the Plan. The consultant team consisted of HomeBase, the Bay Area-based public policy law firm devoted to developing systemic, long-term responses to homelessness, and Bay Area Economics, a leader in local government financial analysis. The Continuum of Care Working Group met six times between June 1996 and April 1997 . The meetings moved back and forth between Oakland and Hayward to maximize participation from all areas of the county. The primary work of the CCWG was carried out within five ' subcommittees, which were open to participation from the entire community. Each committee was led by ajurisdictional and a community-based co-cbair. The five working committees were 1) Housing/ Transitional Housing/Shelter; 2) Incomes and Employment; 3) Support Services; 4) Integrated Health, Mental Health and Drug and Alcohol; and 5) Plan Administration. The committees each met no fewer than five (and in some cases as many as ten) times between August 1996 and January 1997. The committees considered the existing service strucmre and unmet needs, reviewed recommendations from the consultants, and developed recommendations and action steps in several topic areas. The Committees also developed much of the text that became this Plan. Presentations of the Draft Plan were made throughout the County in the month of March 1997 and public comments were incorporated into the final version. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 ii ."-. ;'- . ..' Executive Summary Major Data Findings The Homeless Population . North County - 6,500 (includes Albany. Berkeley, Oakland. Emeryville. Piedmont and Alameda) Oakland only - 5,()(X) Berkeley only - 1,100 53% 11.7% 69 % of total . Mid County - 1,500 (includes San Leandro. Hayward. San Lorenzo and Castro Valley and otber unincorporated areas) 16% . South County - 1,100 (fri-City area. includes Newark, Fremont and Union City) 11.7% . East County - 300 3.2 % (Tri- Valley area., includes Pleasanton. Livennore, Dublin, Santa Rita, Sunol and other unincorporated areas) . The roughly 113.000 'adults and children who live on Transitional Aid for Needy Families (TANF) or General Assistance (GA) are at risk ofhomelessness. 67% of county GA cases and 55 % of T ANF cases are in Oakland. . A key cause of Alameda County homelessness is the imbalance between the high cost of rental housing and incomes of the poorest residents (13% of all households have an income of below 30% of the area. median income; percentages are higher in Oakland and Berkeley). . Families account for between 30% to 49% of the county homeless population, although single adults are a higher proportion in the North County cities. . About 38 % to 48 % of the county homeless adult population suffers from alcohol or drug (ADD) problems, 22 % to 42 % from mental illness, and 19% to 40% are dual diagnoses. . Veterans make up about 34 % of the county homeless population, although the figure may be higher in East County. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 iii . ,-- .-, .:--. .:/ :~': .' .' '. ::_~ :.= ~ ,. ..' :.... ',- -. .-.. .~-: . ,: -..-."-.'.' ". " ..... . . ". '.. .." . Executive Summary The Homeless Service Delivery System . There are approximately 834 shelter beds in the county. Many are targeted to specific homeless subpopulations (for example, those affected by domestic violence), so are not available to all homeless people. Beds exist throughout the county as follows: . .. North County - 500 Mid County - 165 South County - 108 East County - 61 60% 20% 13% 7% .. .. . There are roughly 898 transitional housing beds or units in the county, many targeted to specific subpopulations. By region, these break down as follows: .. North County -592 66% .. Mid County - 91 10% . South County - 32 3.5% . .. East County - 7 1% . County-wide - 175 19.5 % (transitional rental assistance) . . . . When they reach full capacity, the Berkeley and Alameda County Shelter Plus Care programs, which provide rental assistance coupled with suppon and health services, will serve 564 homeless households county-wide with mental illness, AOD problems, and/or HIV/AIDS. There are a number of agencies throughout the county providing varying ranges of services, such as legal help, counseling, information and referral, and showers. About ten of these are "multi ,service centers'" (MSCs) combining services with a place for daytime respite (or "day shelter"). One of these MSCs is in Mid-County, all others are in North County. Affordable housing is in shon supply throughout the County. High rental markers and low vacancy rates further aggravate the shonage. South and East County have particularly tightening rental markets currently- Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 iv Executive Summary . Current Fundin~ . Approximately $20.3 million was spent in FY 95-96 on core homeless services in Alameda County (compared to $49 million in San Francisco. which reports 6.000 to 10.000 homeless people per night). · Roughly 53 % of funds to serve the homeless originate from the Federal Government. 26 % from the County, and 11 % from the cities. . Nearly one third of all homeless funding goes to emergency services and shelters. one third to support services (including health), and one third to all other areas of the continuum including transitional and permanent housing. Less than 1 % goes to prevention. Although these figures vary by county subregion. all areas spend a large portion on emergency services. · Roughly 67% of funding for homeless services and housing is spent in North County. 12 % in Mid County. 8 % in South County. 5 % in East County. and 8 % county-wide. . SnmmQry of 1997-98 Action Plan Goals This Plan contains many recommendations to maintain, improve and increase homeless housing and services. Not all of the recommendations can be addressed in the first year. and many require further-planning or research before they can be implemented. : The following Plan recommendations are the primary goals for the Plan to begin addressing in the coming year. They have been selected as the best intersection of what the planners believe can be supported with the resources available for the Continuum and what is in the Plan. Priorities or goals may shift if new opportunities arise. The recommendations are not specific to certain 'subpopulations, although the need for expansion of services to many different groups is highlighted in the overview of the service system in Chapter 3 as well as in many specific recommendations in the full text. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 v . .-..... . . . ';'.". '0 -0" o. 0 . '. . . - .0 ." O' Executive Summary Recommendations fit into one of four types of actions: Maintenance of Current Capacity Improvement and Strengthening of Existing Services and Providers Expansion of Programs to Fill Gaps and Creation of New Programs to Address Unmet Needs Advocacy to Support, Improve and Increase Funding, Programs and Systems that Serve Homeless People It should be noted that recommendations are structured this way for convenience but are not prioritized according to this structure. HousingITransitional Housing/Shelter Priorities . Maintain the current capacity of the system of shelters. transitional housing. and permanent supponed housing. Pinpoint expiring federal grants and assist in planning to fill projected service gaps. . . Expand prevention activities. . Expand the number of shelter beds/transitional housing units for particular subpopulations/in particular geographic subregions of the county. . Expand the number of units of permanent supported housing for particular subpopulations/in particular geographic subregions of the county. Incomes and Employment Priorities . Maintain existing homeless enterprises established to train and employ homeless people. Support them by providing sole source local government contracts for goods and services they provide. . . Expand and improve existing work force development efforts and coordinate with welfare reform effons to provide job training and placement services to those losing benefits. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 vi Executive Summary . · Advocate to ensure that One-Stop Career Centers established under Alameda County Welfare reform efforts and other County training/placement programs provide information and referrals. job listings and resume services in a manner that meets homeless peoples needs. . Explore the benefit and feasibility of required homeless hiring targets or preferences in awarding contracts to contraCtors. service providers and housing operators that employ homeless and formerly homeless people. Support Services Priorities . Maintain and improve existing multiservice centers. Expand resources for a package of basic services. · Establish two new multiservice centers. in underserved pans of the County. . . . Expand homeless people's access to government food programs. Provide training and technical assistance materials to providers in all pans of the county on food program eligibility criteria and how and where to apply. .( ,- Provide affordable transportation to homeless people to further their seryice, vocational. and housing goals. Provide more free or low cost quality child care in coordination with meeting the housing, vocational, and service objectives of homeless families. " . :. , ' , Integrated Health Care Priorities . Maintain and support existing crisis management, outreach and intervention programs which provide mobile health services and referrals at parks and homeless service sites allover the county. ' . . Maintain and support the existing 24-hour county-wide alcohol .and drug crisis hotline and publicize its availability. Establish at least one new multidisciplinary health team for underserved parts of the county . ":-.". Alameda County-Wide Homeless Continuum of Care Plan: April 1997 vii .":~ .+.:, . Executive Summary . . . Expand the number of Alcohol and Drug pre-treatment, detox, outpatient, short-term residential, and long-term residential treatment slots. Special priority should be given to increasing beds for dually diagnosed homeless people and programs that accommodate single parents with children. Plan Administration Priorities . Establish a county-wide Continuum of Care Council as a focal point for county- wide inter jurisdictional coordination to accomplish the five-year Homeless Continuum of Care Plan. Hire or assign a full-time Continuum of Care Coordinator from the County as staff to the Council for the first year. . Coordinate and streamline local funding processes. Explore creating a single "core'" application form, requesting uniform information. Coordinate McKinney homeless funding applications. . Begin to establish community-developed, county-wide minimum standards of care applicable to all Continuum of Care providers. . Encourage new partnerships and collaborations among providers. Explore jointly- the benefits of consolidating certain common functions of related agencies" including bulk purchasing of supplies and food and shared bookkeeping and other administrative activities : . Develop an integrated management infonnation system to improve service delivery by enhancing communication between Continuum of Care agencies, jurisdictions, and homeless people. Five Year Strategies In addition to the first year goals outlined above which are presented in greater detail in Chapter 5, each topic area for the Plan contains numerous Five Year strategies of action steps to maintain, improve and expand services and housing for homeless people. Each year the Continuum of Care Council will review the activities outlined under the Five- Year Strategies to select those activities on which it will focus for the year. This review will be based on achievements in the previous year., and changes in the environment affecting the Plan, such as increased need, the emergence of special and time-limited opporttInities and resources, and changes in funding availability. Chapters 6 through 10 describe the Five-Year Strategies and action steps to carry them out. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 viii .... ..". I "'." . . CHAPTER 1 .; .' .- Introduction and Process of Plan Development ....: " ~~'. i.... - - --- .' '.' ~...: .-- "To have received my Social Security Disability early would have .",. prevented mefrom becoming homeless.-- Male homeless veteran, resident in Hayward 28 years before becoming homeless there in 1996 . .'-, . Chapter 1: Introduction and Plan Development . . INTRODUCTION TO THE CONTINUUM OF CARE For the past two decades, cities in Alameda County, its non-profits, faith-based institutions. businesses and other concerned community members have responded to the needs of homeless youth, families and single adults. This response includes food, clothing, transportation. shelter, housing, employment related services and many other health related services. While this effort. funded by multiple sources, public and private, has been valiant and successful in meeting some needs of individual clients, it falls far short in comparison to the overall need. Background Prior to the emergence of wide-spread homelessness in the 1980s, most services for low- income people were divided among a number of agencies and delivered over time. For homeless people the need for services of all types is more immediate. The fragmentation of the mainstream delivery system and the lack of coordination between agencies made it virtually impossible for existing agencies to meet the needs of the newly homeless. As a result. agencies that specifically served the homeless population were established. The emerging homeless delivery system was also fragmented. Over the years the homeless service "system" expanded. Federal. State and local dollars became available to serve the - homeless. with each funding stream carrying different requirements. At the federal level - alone there were more than 20 programs to provide homeless housing and services,,: overseen by six different agencies. Fragmented funding and lack of coordination at the local government levelled to a system of largely unconnected services and agencies trying to meet a host of needs for their client populations. In Alameda County, however. there has always been a strong interest among many providers in working together. Despite continued fragmentation at the funding and oversight levels, agencies and service providers have collaborated around funding applications and service delivery in an effort to eliminate overlaps. fill gaps and strengthen the service system. Over the years, many strong partnerships have emerged. Many of these have been formed through the financing made available through Federal McKinney Homeless Programs., matched by the County and its cities, foundations, corporations and local businesses and the generosity of the residents of Alameda County. Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 1 . .: .'." Chapter 1: Introduction and Plan Development Today, the goal in Alameda County and throughout the Country is to transform the current array of loosely connected programs into a coordinated and comprehensive system of housing and suppon services to prevent and reduce homelessness. This type of coordinated system has been named Continuum of Care by the U.S. Deparnnent of Housing and Urban Development. The Continuum of Care is designed to move homeless people from the streets to appropriate shelter, services and housing programs, and eventually to establish or reestablish them in permanent housing and assist them in achieving self-sufficiency. Below is the diagram developed by HUD to describe the flow through the Continuum. Continuum of Care Outreach Intake Assessment - Permanent Housing Emergency Shelter Transitional Housing .. .. .. r .. .. - . Supportive . ~ Housing -- . . . .. ... . . . . . . Mental Health Subslance Abuse . - Job Training Family Support . . Independent Education . ..... .. '. Living Skills H,LV. As illusttated in the flow chan above. a continuum of care begins with a point of entry in which the needs of a homeless individual or family are assessed. In most communities. the intake and assessment component is performed by an emergency shelter or through a separate assessment center. To reach and engage homeless persons living on the Street, the homeless service system should include a strong outreach component. Once a needs assessment is complete, the person/family may be referred to permanent housing or to transitional housing where supportive services are provided to prepare them for independent living. For example. a homeless person with a substance abuse problem may be refened to a mmsitional rehabilitation program before being assisred. wiIh pennanent housing. Some individuals, particularly persons with chronic disabilities, may require ongoing supportive services once they move into permanent housing. The goal of the comprehensive homeless service syStem is to ensure that homeless individuals and families move from homeless to self- sufficiency. housing. and independent living, Alameda County-Wide Homeless Continuum of Care Plan: April 1997 2 . . .', " " .:= . ' - .... ..- , - - - " ,. - '" . :. .':,' .,- -,' , " .. . ""-' ..:.., '. '." "..-. ... -.... ';- . .-.. -. ..... . Chapter 1: Introduction and Plan Development Not every homeless person will access every ponion of the continuum, but the system must be designed to ensure that people make the housing and service connections they need. HUD has proposed to develop a block grant for a Continuum of Care that will allow local jurisdictions the ability to plan and coordinate interrelated services to meet homeless needs, and to fund housing and services to eliminate homelessness. In Alameda County there are fifteen jurisdictions, including 14 cities and the County. most of which invest some ponion of their locally controlled resources in homeless services and housing. Under a HUD homeless block grant, three jurisdictions are likely to be recognized for direct federal funding: Berkeley, Oakland and the Alameda County Urban County (a CDBG-designated jurisdiction comprised of the Unincorporated County and the cities of Albany, Dublin, Emeryville, Newark and Piedmont). The remaining cities in the County are most likely to receive funding only as a consortium, and depending on the federal formula, that consortium or individual cities may be required to apply to the State for funds rather than receive these funds from the Federal government. The Cities of Berkeley and Oakland, in preparation for a possible block grant, have participated in the development of this county- wide Plan in addition to committing to develop their own Continuum of Care Plans, in coordination with this county-wide Plan. The county-wide Plan encompasses -the Urban County . . The Alameda County-wide Continuum of Care Plan is needed if we are to break the pattern of fragmentation. This county-wide Plan is intended to link the homeless policies of all the jurisdictions and provide an overarching set of principles and priorj.ties which each' jurisdiction can put into practice in accordance with its own funding guidelines. It also identifies gap areas and needs in which multi-jurisdictional cooperation -and funding is beneficial to the furtherance of a complete continuum. "- -- Preparation for Development of a County-wide Continuum of Care Plan Many effons and collaborations have laid the groundwork for the development of a county- wide homeless ,continuum of care plan. ..These efforts have brought together multiple service providers, funders and affected community members to address needs along the continuum through coordinated planning and -organizing. Some of these efforts include the establishment of the Emergency Services Network of emergency and food service providers (1983); the formation of the East Bay Housing Organizations coalition of housing developers and development professionals (1989); formation of Coordinet, the southern Alameda County collaborative of shelter, employment and service providers (1991); the ,creation of the Homeless Base Conversion Collaborative to respond 10 impending base closures in the county (1993); and establishment of the Alameda County Food Bank by a network of faith-based and community organizations (1995). The Continuum of Care also builds on previous planning . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 3 Chapter 1: Introduction and Plan Development . and funding efforts around homelessness, especially the Homelessness in Alameda County Plan (1987) and the Oakland Homeless Plan (1993), as well as county-wide collaborative funding applications such as the 1992 and 1993 Shelter Plus Care programs and the 1995 and 1996 collaborative McKinney SuperNOF A responses. All of these efforts and others have contributed to the development of a collaborative environment ready to develop a continuum of care. In preparation for launching the fonnal Continuum of Care planning process, a series of idea- gathering meetings were held with service providers, city staffs, elected officials, local HUD representatives, and other funders to discuss the concept of the county-wide plan. This process began in March 1995 with an open-invitation meeting attended by almost 50 people representing more than two dozen organizations and jurisdictions. A follow-up meeting was held in May which funber developed the recommendations. During the second half of 1995 and early 1996, a multi-jurisdictional task force considered the recommendations which came out of these community meetings and established the parameters for a county-wide planning process. The Emergency Services Network (ESN) and East Bay Housing Organizations (EBHO) which together represent more than 300 providers of homeless and low income housing and services, discussed the concept at a series of general membership meetings and each voted unanimously to endorse and assist the effort. These discussions led to a county- wide consensus to fonnalize the planning process through the establishment of a working group to oversee the development of a county-wide plan and the hiring of consultants to assist in carrying out the.planning effort. . The Continuum of Care Working Group The Continuum of Care Working Group (CCWG) composition was developed based on HUD's proposed McKinney block grant legislation and local priorities for representation aniculated in the community meetings described above. It includes representatives of each of the county's CDBG entitlement jurisdictions (10 in all), three County deparnnents, service providers and advocates, homeless or formerly homeless persons, representatives of the faith community, business and labor representatives, foundations, and education and health care professionals. Jurisdictional members of the working group were appointed by the jurisdictions which they represent. Service providers and community members were elected by the membership of ESN and EBHO, and selected appoinnnents were made by the community as a whole at planning meetings. CCWG composition is also intended to ensure collaboration with the other planning efforts currently underway in the county. A major effort is in process to redesign the County"s welfare programs General Assistance-and TANF (fonnerly AFDC), into a comprehensive integrated -service delivery system, capable of .: ~= : .. " -,- Alameda County-Wide Homeless Continuum of Care Plan: April"1997 4 ..... .' :'.;': . Chapter 1: Introduction and Plan Development . . meeting the needs of people living in, or at risk of. poverty. Members of the CCWG are involved in these and other efforts to ensure that there will be coordination and interaction between the various planning processes and their outcomes. The county-wide continuum of care planning effort and the working group composition were approved by the Board of Supervisors in April 1996. Consultants to support the process were hired jointly by the City of Berkeley, the City of Oakland and the HOME Consortium cities. and overseen by the Alameda County Housing and Community Development Department. The consultant team of HomeBase and Bay Area Economics was selected to carry out the planning process. HomeBase has long been a regional and national leader in planning efforts for addressing homelessness. HomeBase developed the work plan for the process; facilitated the meetings. focus groups and qualitative data gathering; and acted as lead staff to the Working Group in writing the Plan. Bay Area Economics carried out a quantitative fiscal analysis, tracking all of the sources and uses of dollars spent on homelessness in the county in Fiscal Year 95-96. Alameda County Housing and Community Development was selected to act as the primary convener of the process and provided staff to the planning process. The Planning Process The Continuum of Care Working Group met six times between June 1996 and April 1997. - The meetings moved back and forth between Oakland and Hayward to maximize participatfon from all areas of the county. The primary work of the CCWG was carried out within five subcommittees, which were open "to participation from the entire community. Each committee was led by jurisdictional and community-based co-chairs. The five committees were 1) Housing/ Transitional Housing/Shelter; 2) Incomes and Employment; 3) Support Services; 4) Integrated Health, Mental Health and Drug and Alcohol; and 5) Plan Administration. The committees each met no fewer than five (and in some cases as many as ten) times between August 1996 and January 1997. The committees considered the existing service structure and unmer needs, reviewed recommendations from the consultants, and developed recommendations and action steps in several topic areas. The Committees also developed much of the text that became the final report. Four additional subcommittees met on an ad-hoc basis to outline specific strategies for gathering information on the homeless population and service capacity, collecting financial information on the service system, responding to community concerns regarding homelessness and homeless planning, and developing a methodology for county-wide plan adoption. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 5 Chapter 1: Introduction and Plan Development . During the development of recommendations, additional outside input was sought through a number of venues. These included update reportS and presentations at ESN and EBHO, and a community forum held in San Leandro on December 9. 1996 at which early versions of the recommendations were presented by the committee co-chairs and input was received from many people who had not yet panicipated in the planning process. Additional information was gathered through a survey of homeless services consumers carried out in December 1996. More than 300 surveys were distributed to providers and consumers throughout the county (except Berkeley) and 156 were reOlrned. The City of Berkeley also carried out its own survey of 198 homeless people within its jurisdiction. These surveys provided demographic information about the homeless population receiving services in Alameda County and identified some of the primary gaps and needs from the perspective of those seeking services. Public Comment and Adoption Recommendations from each committee were reviewed by a committee made up of the working committee co-chairs, and a rough draft of the plan was reviewed by the CCWG in late January. The revised draft plan was released for public comment on March 3rd, followed by a public comment period of 26 days. Comments were taken through a number of foruJ1.1s, including presentations at EBHO, ESN, two homeless shelters, various city and County commissions and task forces and written comments to Alameda County Housing an.d" Community Development. A full list of presentations made and those submitting comments appears in Appendix 1. .,', F: ~.- .. The final draft with public comments incorporated was taken to the CCWG for adoption in April. The final plan will be taken to each of the jurisdictions in Alameda County for endorsement and adoption, as well as to the membership of EBHO and ESN. ,", '~~: ;.. ..," Alameda County-Wide Homeless Continuum of Care Plan: April 1997 6 -' .._-, '- . ., . , - WO.' -.. -. '-. .-- -' .. _' _.- ...... - 0 - ~ ' ~ . . . .. ~ - - .' .. .'..' .... . . .' - -".' ~ _....- - '. . CHAPTER 2 Vision/Mission & Guiding Principles . . "(What would get me out ojthis situation is) ajob thot wants an employee willing to work and grow and contribute to company excellence; and. one that has company policy and procedures they adhere to... my own dwelling place and transportation... a whole lot of kindness and honesty which would be happily returned. .. Homeless in Berkeley, 1996 . .." Chapter 2: Vision/Mission & Guiding Principles .: l\HSSION STATE:MENT AND GUIDING PRINCIPLES This section contains the mission statement and guiding principles which were adopted by the Continuum of Care Working Group to guide the development of this plan. They are very broad goal statements which set the context for the specific recommendations and action steps in the plan. Most of the committees which developed the recommendations in different sections of the plan also adopted guiding principles specific to their topic areas to frame their recommendations. The committee guiding principles are contained in Appendix 3. Mission Statement The Continuum of Care Working Group is a team of strategic thinkers committed to using a comprehensive, multijurisdictional, community-based approach in its efforts to significantly reduce, prevent, and end homelessness and the institutionalization of human suffering, and to secure economic, social, and racial justice. . - , Guiding Principles These Guitling Prindples are goal statements to be reasonably interpreted in an effon to make each Guiding Prindple a reality within the five years of this plan. These Guiding Prindples are used to frame and interpret the recommendations set fonh later in the plan. 1. Unified Strategy through Multi..Jurisdictional Cooperation Alameda County and the cities within the county will have one unified plan to prevent, reduce and eventually end homelessness, which is supported by the Board of Supervisors, the mayors, city councils, city and county departments, housing and service providers, homeless and formerly homeless people, advocates, and business and neighborhood groups. Cities and coalitions of providers may have additional plans that will be designed and implemented to complement county-wide plans. .. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 7 ,"." '. . Chapter 2: Vision/Mission & Guiding Principles 2. Integrated and Coordinated System Services and housing to reduce. prevent and eliminate homelessness will be delivered through an integrated multijurisdictional services and supportive housing collaborative, which recognizes the importance of homeless specific services while incorporating mainstream services to avoid the unnecessary further expansion of a system exclusively for homeless people. 3. Long-Term Solutions While emergency shelter is often a necessary first step in assisting homeless people, emphasis will be on strategies with the best long-tenn solutions such as, but not limited to. housing, jobs and employment-related services and treatment services. 4. Prevention Prevention is key to addressing homelessness. Strategies that maintain and encourage residential stability, link housing and support services, and strengthen services in neighborhoods will be encouraged. . 5. Mutual Rights and Responsibilities Respect for the mutual rights and responsibilities of panicipants, providers arid funders of homeless services, and the public at large, is essential to the success of the continuum of care. 6. Human and Civil Rights Consideration for human and civil rights and libenies will be adhered to throughout all aspects of the continuum of care, including gathering infonnation on programs and participants. 7. Participation of Consumers Homeless and formerly homeless people, and those at risk of homelessness, will participate in the planning, development, delivery, governance and evaluation of programs. services and housing. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 8 Chapter 2: Vision/Mission & Guiding Principles e 8. Accessible Services Services and information will be easily and universally accessible to panicipants of the system as well as the public at large; i.e., the whole continuum must provide this. 9. Equitable Distribution The investment in and distribution of housing and supponive services will be equitably distributed throughout Alameda County and the cities within the County. 10. Equal Access Equal access to the system will be provided regardless of mental or physical disability, complexity of need, race, age, sex/gender, social class, national origin, cultural background including preferred language, sexual orientation, religious identity, veteran status, immigration/residency status, or familial status. 11. Equal Representation Staff and providers throughout the system will reflect the communities being served by the continuum of care. . e:.-- . . U. Meeting the Need Services, housing and resources to reduce, prevent and end homelessness will be provided in proportion to the need. This will be accomplished through expanding existing services and housing, directing existing funding from a variety of sources, creating new services as needed and leveraging new funds and refocusing programs. All decisions wilI be based on the most reliable data available. :' ,.' '.' } 13. Minimum Service Level Emergency services throughout the system shall provide a minimum level of service to all those in need, including but not limited to basic sheltering, food, clean bed, showers, assessment services, and services and housing coordination. :.:.:- Alameda County-Wide Homeless Continuum of Care Plan: April 1997 9 e:-' , - . Chapter 2: Vision/Mission & Guiding Principles 14. Standards of Quality/Accountability A standard of quality for decent, humane and safe services and housing, and the management of those services and housing. shall be developed and adopted for all housing and services within the continuum of care. Providers shall be held accountable for adhering to those standards. 15. Client Centered Provision of the services and housing that compose the continuum of care shall focus on meeting the needs of clients and shall be so organized. 16. Framework for Adequate Resources Panicipants in the effort to reduce homelessness and meet the needs of homeless people will reach for the most effective, innovative. creative and viable strategies, while attending to the task of securing adequate resources. 17. Outcomes, Assessment, and Evaluation . A plan for the collection and analysis of reliable. objective data shall be ~eveloped and implemented. This plan shall use demographic data, information on unmet needs and consistent outcome measurement instruments in order to assess and evaluate-the effectiveness of services and housing provided to homeless people and people at risk of homelessness. The plan shall also include input from consumers and other stakeholders. 18. Building Community The delivery of services to homeless people and those at risk of homelessness shall at all times be a dynamic and ongoing process, conscious of building community among all participants, and shall enhance the creation of community among all peoples in Alameda County. . Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 10 . CHAPTER 3 Overview of the Homeless Population and Current Service Capacity . "Currently, I need some help with rent costs, and day care later when I attend sclwol. A better paying job for myself and my partner would have prevented me from becoming homeless. '" Homeless mother and infant, Fremont, 1996 ." . Chapter 3: Homeless Population and Current Service Capacity . . OVERVIEW OF THE HOMELESS POPULATION AND CURRENT SERVICE CAPACITY Background Because of its geographic, demographic, and economic diversity, Alameda County represents a snap shot of American homelessness. The county spans 437.5 square miles and has more than 1.34 million residents. It includes inner cities and sprawling suburbs, parks and farmland, ports and decommissioned military bases, decaying factories and thriving computer industries. Key regions of the county are: . North County - Population Total: 603,776 Percent of County Total: 45% Alameda - 79,829 Albany - 17,404 Berkeley - 104,923 Emeryville - 6,439 Oakland - 384,097 Piedmont - 11,084 . Mid County - Population Total: 305,148 Hayward - 122,384 San Leandro - 71,564 Castro Valley - 49,400* San Lorenzo - 20,100* Other Unincorporated - 41,700* Percent of County Total: 22.8 % . South County - Population Total: 281,655 Fremont -184,590 Newark - 39,503 Union City - 57,562 Percent of County Total: 21 % . East County - Population Total: 150,471 Percent of County Total: 11.2% Dublin - 26,670 Livennore - 62,857 Pleasanton - 55,444 Unincorporated areas - 5,500* (Source: Alameda County Planning Department. Population dam is from 1994 except"'. indicating projections fOf 1995 from 1990 data) Alameda County-Wide Homeless Continuum of Care Plan: April 1997 11 Chapter 3: Homeless Population and Current Service Capacity . Homeless people are found in all pans of the county, urban. suburban, or rural. As detailed below. the homeless population in all regions includes the one-time homeless and chronically homeless; single adults and families with children; unaccompanied youth and seniors on fixed incomes; veterans and domestic violence victims; and those with problems of physical health. mental health. alcohol and drugs, and/or HIV / AIDS. I. The Homeless Population Estimated Numbers of Homeless People According to the federal definition of a homeless individual. a homeless person is one who lacks a fixed, regular, and adequate residence. In addition, the defmition includes those who live in supervised nighttime emergency and transitional residential facilities. The definition does not take into account those homeless people who live doubled up with friends or family, or those homeless individuals who are in hospitals or jails, waiting to be released onto the streets without shelter. It is very difficult to achieve a precise estimate of the number of homeless people in Alameda County. This is due to the transient nature of the homeless population and the difficulty of identifying all locations where homeless people find shelter. Methods fo~ estimating the homeless population have been subject to debate for many years. Recently, at the national level, the Interagency Council for the Homeless stared in its report, "Priority Home", (1994), that previous counts may have grossly underestimated the number of people affected by homelesSDess in the past decade. ;:: .~:' 1- ". .' An estimate that is cited in the Alameda County Comprehensive Housing Affordability Strategy (CRAS) report, (1993), and is often supported by service providers in Alameda County, is that approximately 9,OCX> people are homeless at any given time. The length of time people remain homeless, varies greatly and the homeless population over a year does not remain the same. In data collected by the Emergency Services Network of Alameda County, 40 percent had been homeless for less than a month, 30 percent bad been homeless between one and six months, and 30 percent bad been homeless from seven months or more up to more :than three years. Researchers in other cities have found that over a year the number of people who will experience an episode of homelessness is roughly three times a single point in time number. Thus, an annual estimate based on a point in time estimate of 9,OCX> would indicate that approximately 27,OCX> people are homeless during a year in Alameda County. . . .' , , "-- ", .... '-., Alameda County-Wide Homeless Continuum of Care Plan: April 1997 12 '.' '.' ~. :> . . . Chapter 3: Homeless Population and Current Service Capacity Another estimate of the homeless population is based on those receiving Counry support. According to the County Department of Social Services, in June of 1994, there were 10,242 unduplicated "cases" of support including cash support (AFDC for families and GA for individuals), and Medicaid or food stampS for which the head of household was classified as homeless. This number represents cases, not people, and so does not account for couples and families receiving aid. If we conservatively estimate that the average AFDC and food stamps case actually covers two people, the number of homeless people receiving assistance in 1994 in Alameda County is closer to 16,500. This number does not include homeless persons who were working, receiving Supplemental Security Income for a disability or Social Security, or those who had no income at all. Using the adjusted June 1994 caseload of 16,500 persons, as a point in time estimate would indicate an annual homeless population of 49,500. A third basis for an estimate comes from HomeBase, the Bay Area's public interest law center on homelessness. Using State records of homeless families who sought one-time housing assistance from the AFDC-HAP program between July 1993 and June 1994, HomeBa.se reports that 18,180 parents and children experienced an episode of homeless during a year in Alameda County. This number is unduplicated, and does not include any families that applied for this assistance in the previous year although they may still (or again) be homeless, because applicants may not apply more than once in a two year period. It also does not include single individuals or;couples without children. National estimates identify families with children as constituting 43 percent of the homeless population. Local estimates place the percentage of homeless families at between 30-49 percent of the total homeless population. Using the HomeBase figure as a base, this range would produce a total annual homeless population in the County of between 36,360 and 60,600. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 13 Chapter 3: Homeless Population and Current Service Capacity . The following table summarizes the sources of homeless statistics for Alameda County. stATISTICAL ESTIMATES OF HOMELESS POPULATIONS IN ALAMEDA COUNTY Number of bomeless Method Year PoiDt in lime A.nDual Cited by service 1994 *9,000 27,000 -providers County Depamnent of June 1994 * 10,242 cmes ... Social Services: unduplicated cases of total people 16.500 49,500 suppon parentS and children parentS and HomeBase Figmes: 1994 6.060 cbi.ldren based on Homeless *18.180 Assistance Program. 12.120-20.200 36.J60...60.600 State Records rotal homeless total homeless " ... All munbers that balded are the statistics on which extrapOlations are based. For most purposes. this Plan will use the estimated number of 12,000 homeless people on any given night in Alameda County. Where Homeless PeQple Come From . A survey of 1,425 homeless people at 30 homeless service sites throughout.the county. was conducted by the Emergency Services Network (ESN) from January through March 1994. The following chart shows the region of residence for those surveyed prior to becoming homeless: ,--, " AREA OF PREVIOUS RESIDENCE FOR HOMELESS IN ALAMEDA COUNTY North County 62% Mid County 12.5 % South County 9% East County 1.5% Out of County 15% (Soun::e: HCD, from ESN 1994 data) :: ~. .... .:~.. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 14 ,-- . . . ,- ' . "-" _....' Chapter 3: Homeless population and Current Service Capacity The survey indicated that 46 percent of those surveyed lived in Oakland before becoming homeless and 12 percent lived Berkeley. Tracking where homeless people may be considered to reside is difficult, as many homeless people and people at risk of homelessness move around seeking jobs, housing or services. A homeless individual or family may live temporarily in a number of places before identifying themselves as homeless and seeking homeless services, Of 122 homeless persons surveyed in shelters and service sites for this plan. 75 % (92) had moved at least twice in the last six years, and half had moved three or more times. Twenty-three people said they had been living in the city in which they became homeless for less than 6 months. Where Homeless People Are Based on an estimate that there are roughly 9,000- 12,000 homeless people county-wide on any given night, HomeBase estimates the distribution of homeless people in the county as: ~ North County - 6,500 (includes Albany, Berkeley, Oakland, Emeryville, Piedmont and Alameda) Oakland only - 5,000 Berkeley only - 1,100 69% of total 53% 11.7% ~ Mid County - 1,500 (includes San Leandro, Hayward, San Lorenzo and Castro Valley and other unincorporated areas) 16% ~ South County - 1,100 (Tri-City area, includes Newark, Fremont and Union City) 11.7% ~ East County - 300 (Tri-Valleyarea, includes Pleasanmn, Livermore, Dublin, Santa Rita, Sunol and other unincorporated areas) 3.2% Alameda County-Wide Homeless Continuum of Care Plan: April 1997 15 Chapter 3: Homeless Population and Current Service Capacity These estimates are based on the reponing of cities in their Consolidated Plans (Berkeley, Oakland) and extrapolations based on ESN findings about where people become homeless and where they receive services. However, since much of this information is drawn from service sites the availability of services may impact the numbers of homeless people expected to be found in a given jurisdiction. This can be expected to have only some impact however. since the overall need is more than 10 times greater than the service capacity anywhere in the county. Characteristics of the Homeless Population Much of the following information is based on the 1994 ESN survey cited above and a 1991 county-wide survey of 564 homeless adults at 29 homeless service sites, conducted by Marjorie Robertson, Ph.D., and others at the Berkeley-based Alcohol Research Group. These are the most up-to-date, county-wide sources of homeless population characteristics data available. According to Robenson, national research indicates that homeless population characteristics have not changed considerably in recent years, and that research done in the early 1990s is likely still valid. This information is supplemented, where appropriate, by the Continuum of Care survey of 156 people conducted in 1996, although the sample size was smaller and does not accurately represent the geographic distribution of homelessness. Homeless people who do not use any services or food programs were not included because all three surveys were conducted exclusively at food and .service sites. Extrapolations of numbers of homeless people within each category below are based on 12,000 total homeless point-in-time. Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 16 . .' '.' '-, ." ~i.: ,-- .'::: .:. .., :::. :-:. ,.- ,:-: ,- .+.:".;.". -. . . . , . ..' .- '. . ..-' .--" Chapter 3: Homeless Population and Current Service Capacity Race and Ethnicity- The following table shows the break down by ethnicity of homeless people seeking services and food in Alameda County: BREAKDOWN BY ETHNICITY OF HOMELESS SEEKING SERVICES IN ALAMEDA COUNTY Percentages of Percentages of Total Total Population homeless seeking homeless seeking Population Oakland(1990 services (ESN food (RobertsOn Alameda Census Data) 1994) 1991) County (1990 Census Data) African- 64% 69% 18% 43% ~merican Caucasian 26% 22% 60% 28% Hispanic 6% 6% * 14% ~sianJPacific 2% 2% 15% 14% ,- slander Native- 1% 2% .65% .5% ~erican bther 1% * 6.7% .3% -- * Dot a category tracked -by this SOU1Ce Native Americans and African Americans are disproportionately represented in the homeless population relative to their numbers in the overall population of the County and of Oakland. AsianJPacific Islanders and Hispanics may be undercounted due to language or cultural barriers, wlllch may. deter them from using -services. Age- The homeless population in Alameda County includes children, youth. adults and seniors. Among adults, the average age is 37. According to ESN. 41 percent of adults seeking services in the first quarter of 1994 were between the ages of 30-39. The next largest group. 30 percent. was between 40-54. The RobertsOn data show the average age of homeless respondents at 37.6 years. In the 1996 Continuum of Care survey nearly 80% of respondents were between 29 and 49 years of age. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 17 Chapter 3: Homeless Population and Current Service Capacity . Five percent of those seeking services in 1994 were 55 or over and only one percent were 65 or older. This number may underrepresem homeless seniors, who may be reluctant to seek services due to their physical vulnerability and a generational aversion to seeking poverty services. The 1996 Continuum of Care survey identified nearly 13 % of respondents as over the age of 50. Unaccompanied Youth- Numbers of unaccompanied homeless youth are often underestimated. In the 1996 Continuum of Care survey 8 percent of respondents were under 23, although only one person was between the ages of 12 and 17 . This may reflect the lack of services available to unaccompanied youth. In 1996, the U.S. Conference of Mayors estimated that 3 percent of all homeless persons nationally are unaccompanied youth. The City of Berkeley estimates that unaccompanied youth may constitute as much as 15 percent of that city's homeless population. In Alameda County as a whole, using the conservative national estimate of 3 percent, there may be between 270-450 unaccompanied youth homeless in Alameda County at any time and between 810-1,350 over the course of a year. HomelesSDess among youth often follows time in institutions such as foster care, juvenile detention, and inpatient mental health care. On any given day, 700 children - and youth are in emergency foster care or in Juvenile Hall in Alameda County. More than 4,000 youth are in foster placements, juvenile camps, the California Youth Authority, mental health facilities, group homes or other institutions. When they are discharged or "age-out" of these institutions, many of these young people are at high risk of becoming homeless. . ; Gender- Women account for an estimated 40% of the total adult homeless population at any given time. There is a large discrepancy between the percentages of men and women accessing shelter and other services sites and those accessing food. According to a study by Marjorie Robenson et al, "Health Status and Access to Health Services Among Homeless Adults in Alameda. County", (1993), this indicates that homeless women and families are more likely to seek non-food services than single homeless men. ': Alameda County-Wide Homeless Continuum of Care Plan: April 1997 18 . - , .. - . . Chapter 3: Homeless Population and Current Service Capacity GENDER DIFFERENCES IN SERVICE DEUVERY Women 46% At food sites (RobertsOn, 1991) 80% 20% Men In service programs (ESN, 1994) 54% The 1996 Continuum of Care survey supports the ESN service numbers, with women and men being evenly represented in the sample. Families- . Families account for 30 to 49 percent of the Alameda County homeless population according to local estimates, or 3,600 to 6,060 people at any given time. HomeBase has documented that 15,658 homeless family members in Alameda County received State homeless aid during 1995 (5,219 homeless point-in-time). Moreover, family homelessness is rapidly growing. According to HomeBase, the number of Alameda County homeless families seeking State-funded homeless assistance increased by 82 percent between 1992 and 1994; according to ESN, at least 580 children in families sought homeless services in the first quarter of 1994. an increase of 25 percent from the previous quarter. In the 1996 Continuum of Care survey, 66 people responded that they had children, and of these just a little over half reported having three or more children. though these children were not necessarily living with them. ~ Alcohol or Other Drug- In the 1994 ESN survey, 38 percent of respondents reponed having an alcohol or other drug (ADD) problem; 12 percent of respondents identified a long-term drug or alcohol problem as the primary cause of their homelessness. The 1991 Robertson survey found that 48 percent of respondents had current ADD problems. A range of 38-48 percent would indicate that 4,560-5,760 homeless people in Alameda County may have ADD problems at any given time. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 19 . . ...- -- Chapter 3: Homeless Population and Current Service Capacity . Mentally disabled - Forty-two percent of respon~ents to the 1994 ESN survey described themselves as mentally disabled. The Alameda County Department of Mental Health Services Community Crisis Response Team, which responds to mental health crisis in Alameda County, estimates that one-fourth to one-third of all the clients it sees are homeless. The Robertson survey found that only about 22 percent of respondents had a current "major mental disorder" diagnosis. The discrepancy between the ESN and Robenson findings may indicate the difference between the moderately mentally ill and the severely mentally ill, who need more treatment resources. Using a range of 22-42 percent, 2,640-5,040 homeless people may be mentally disabled at anyone time in Alameda County. .' Dual Diagnoses- Many providers in Alameda County have found that a large percentage of the Alameda County homeless population is "dually diagnosed" with a mental disability and an AOD problem. The City of Berkeley estimates that 40% of the homeless people are dual diagnosed. According to the Department of Mental Health Services, at least 60 percent of their severely mentally ill clients also have an AOD problem. However, Robenson's 1994 Alcohol Research Group repon found that only about 19 percent of homeless adults were dually diagnosed using the relatively strict criteria of a major mental disorder and substance use disorder. Again, the discrepancy among numbers may indicate the moderately and severely disabled. Using a range of 19-40 percent, 2,280-4,800 people with a dual diagnosis may be homeless at anyone time in Alameda County . .:. .,.. ......-:. HIV/AlDS- Estimating the numbers of homeless people with HIV or AIDS is very difficult, since many people are unaware of or prefer not to reveal their HIV status. The National Commission on AIDS estimate that the rate of HIV infection among homeless people is between 15 and 25 percent. Based on these figures, 1,800 to 3,000 homeless people may be HIV positive or have AIDS at any given time in the county. A 1995 housing survey of more than 600 people living with HIV and AIDS found that 10% were currently homeless and 43 % of respondents had been homeless since the time of their diagnoses. ..:- Alameda County-Wide Homeless Continuum of Care Plan: April 1997 20 . ., """ .". . . . Chapter 3: Homeless Population and Current Service Capacity Other Health Problems- The Robertson survey found that 35 % of respondents reponed fair to poor health staWS, and that 21 % reponed a chronic, disabling, or trauma condition that limited work. The 1994 ESN survey found that 15% of respondents were physically disabled. A study in Berkeley found that 51 % of the homeless population in that city had some type of medical problem. Using a range of 15-35 percent, 1,800-4,200 homeless people may have chronic health problems or a physical disability . Domestic Violence- According to the 1994 ESN survey, 21 percent of women surveyed cited domestic violence as their primary reason for becoming homeless. Shelter providers serving women, particularly those located in South and East County, estimate as many as 60 percent of their female clients may be homeless due to domestic violence. Based on these figures, 1,010 women or more may be homeless due to domestic violence at any given time in the county. Many children accompanying these women also become homeless as a result of domestic violence. In the county, 19,733 incidents of domestic violence were reported to police in 1993, although domestic violence shelters estimate there are approximately 245,()(X) incidents of domestic violence each year in Alameda County . Veterans- Veterans make up a large share of the homeless population. The RobertsOn survey found that 34 percent of men and women surveyed were veterans. The 1996 survey for this Plan identified 20% of respondents as veterans, although the discrepancy is probably due to.an over sampling of women's and family shelters. Nationwide, a 1996 study by the International Union of Gospel Missions found that 34 percent of homeless men seeking shelter were veterans and that seven percent of shelter-seeking women were veterans. Using the 34 percent figure, 4,080 veterans may be homeless in Alameda County at any - given time. Many of these suffer post-traumatic stress disorder and may use alcohol or other drugs to .. self-medicate" their symptoms. Summary of Homeless Demographics by County Subregion- The following table summarizes the characteristics of the Alameda County homeless population, according to the Robertson data collected at food sites in 1991. This information is broken down by regions within the county. The number of respondents from East County was too small to include. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 21 Chapter 3: Homeless Population and Current Service Capacity . ALAMEDA COUNTY HOMELESS POPULATION CHARACTERISTICS BY REGION IN COUNTY Source: HomeBase, based on Robertson data, 1991 Characteristic North County Mid County South County East County County-wide Ethnidty Af-Am: 74% Af-A.m.: 42 % Af-A.m.: 50% N/A Af-A.m.: 69% Cauc: 19% Cauc: 44% Cauc: 28% Caue: 22% Hisp: 5% Hisp: 9% Hisp: 11% Hisp: 6% As/Pac: 2% As/Pac: -% As/Pac: 2% As/Pac: 2% Na-Am: 2% Na-A.m.: 5% Na-A.m.: 9% Na-Am: 2% Gender M: 54-81 % M: 54-79% M: 54-57% N/A M: 54-78% F: 19-46% F: 21-46% F: 43-46 % F: 22-46% AOD* 38-70% 38-66 % 38-63 % N/A 38-69 % MentallDDess 2142% 19-42% 34-42 % N/A 22-42 % Dual Diagnom 18-40% 16-40% 28-40% N/A 19-40% mY/AIDS N/A N/A N/A N/A 15-25 % Other Health 15-45 % 15-30% 15-43 % N/A 15-44% Problems Domestic N/A N/A N/A N/A 21% Violence Veterans 31% 42% 26% N/ A (but 31% providers say it is high) e- N/ A = no Robertson data available * = Robertson county-wide figure for AOD 6 much higher than listed in Plan. Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 22 e . . . Chapter 3: Homeless Population and Current Service Capacity II. The Homeless Service Delivery System In Alameda County, the need for services and housing far outstrips available resources at all points along the Continuum of Care. This section describes the resources currently available in the counry to serve homeless people along the continuum and compares them to the needs outlined above. Outreach. Information. and Referral Outreach, information, and referral services are often the first point of entry for homeless people into the homeless service delivery system. For many others, the first contact is through a shelter, drop-in center, or other form of homeless service (described in separate sections below), which typically provide on-site information, assessment, and referral. Information, Referral and Outreach Services- The primary county-wide source of information and referral is Eden I&R, which provides a hotline for anyone seeking detailed information about services and housing in Alameda County and the surrounding areas. From July 1994 to June 1995, Eden I&R received more than 8,(X)() calls from people needing services, of whom 1,259 -, were homeless at the time of their call. The Northern California Council for the Community Help line, based in San Francisco~ provides information on serVices and housing in the Bay Area, including Alameda County. In addition, many homeless service providers in Alameda County provide 24-hour hotlines for information about their own services. At least five organizations in Alameda County provide regular -street outreach to homeless people, including two mobile health and mental health teams. These programs target homeless people who are living on the streets or in other places unsuited for .habitation, ,and .seek to provide them services where they .are and to link them with ongoing .services and shelter or housing. The programs providing this .service appear at the end of this chapter. .. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 23 Chapter 3: Homeless Population and Current Service Capacity Food Proirams Food programs are often the first line of support for those who are homeless or at risk of homelessness. Food programs include those providing hot meals on site, pantry food, meal or grocery vouchers, or combinations of these. There are now approximately 112 free food sites in the county, the vast ~ajority in Berkeley and Oakland. Many of the sites have limited days and hours of operation, however all provide food at least once a month. A full list of these programs appears at the end of this chapter. Food Programs in Alameda County by Location and Type: Location Soup Kitchen Food Pantries North County 29 67 Mid County 2 7 South County 1 3 East County 1 1 Total 34 78 Source: Alameda County Community Food Bank, March 1997 According to the Alameda County Food Bank, in 1995 an average of 89,656 Alameda County residents received an average total of 462,287 free meals per month, including 29,537 soup kitchen meals, 204,195 pantry meals, and 17,575 shelter meals. Daytime Multiservice Centers Daytime Multiservice (or "'drop-in"') centers are another place where homeless people frequently contact the homeless service delivery system. They provide a place to go during the day when most shelters are closed, on-site services, case management, and referrals to other support agencies. They generally offer basic services such as an address, access to a phone, showers, and clothing. There are now about ten Multiservice/drop-in centers in the county serving the subpopulations and geographic areas described below _ A list of these sites can be found at the end of this Chapter. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 24 . .. - - ,~... - '. . . ~ '-, " , ~. ,"- ... ~..~. .'.. .:.~: .:. f:.~ . Chapter 3: Homeless Population and Current Service Capacity MULTISERVICE CENTERS BY LOCATION AND SUBPOPULATION SERVED Subpopulation Served North County Rest of County Total All homeless 4 0 4 Families 1 0 1 Women only 1 0 1 Youth only 1 0 1 Mentally disabled & dual diag. 2 1 (Mid-COUDty) 3 Total 9 1 10 Source: HomeBasefHCD Job Training/Employment " . As described above, the single greatest contributor to homelessness is poverty. In order to exit homelessness and stabilize their lives, homeless people must have access to income. Although many homeless people suffer from chronic disabilities, or are unable to work and require some form of income support, most homeless people are interested in working and indicate that they would like to work. Locally, and - nationally, about 20% of homeless people are working but are still unable tc? obtain housing. (See Chapter 7 for more detail.) , -~ Finding a job today with continued high unemployment and the job market changing is not easy for low-income people who have housing. For homeless people it is even harder. Homeless people encounter multiple barriers to getting and retaining employment that most job seekers do not share, including the need for both interim and permanent housing, food, child care, transportation, access to a telephone and message services, clothing appropriate for employment, health care, substance abuse and mental , health treannent, job training and financial planning and assistance. HomeBase highlights child care as the greatest barrier to employment for homeless families, particularly for single women with children. At the Jobs for the Homeless Consortium in Berkeley, 57 percent of participants cited the lack of transportation as the greatest obstaCle to finding work. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 25 Chapter 3: Homeless Population and Current Service Capacity . Mainstream job training and job placement programs often lack the resources or the experience with the homeless population to meet all of the multiple needs that homeless trainees and job seekers present. Programs such as the Job Training Parttlership Act, which focus on quick results rather than long term employment goals are less well equipped to serve homeless people. Nevenheless, JTP A and other broad-based training programs are available in the County for some homeless people. More frequently, homeless people seek training and placement assistance through programs targeted to their overlapping needs. Several homeless programs in the County target the specific needs of homeless people seeking job training and linking them to support services. A list of these programs appears at the end of this chapter. The HUn regional initiative which covers the nine counties of the Bay Area includes a large job training and placement component which is directed at comprehensively serving the job training, placement and support needs of homeless people and their families. These services will become even more critical as welfare reform begins to impact homeless people receiving benefits. Support Services and Health Care Child Care/Education- Resources for child care for low-income families are scarce, and lack of child care is one of the primary factors preventing homeless and low-income women on income supports from finding work. A 1991 report by the County of Alameda Child Care Block Grant Task Force made infant care and school-age children in emergency and transitional housing programs one of the top five priorities. A recent focus group at Sunrise Village in Fremont echoed this need, with one panicipant emphasizing the need for older child care as well. . An Alameda County study of children in emergency and transitional programs found two of 20 shelters surveyed offered on-site child care where parents could leave the premises. Transitional housing programs studied had a limited number of vouchers for child care slots in other facilities, but more were needed to meet the demand. For school-age children, homelessness creates difficulties attending school. Homeless children move frequently and are often forced to change schools. If homeless families do not have access to their children's records, including immunization records, they may be denied access to school. Once in, homeless children have a hard time keeping up. due to the stress in their lives as well as the lack of a place in which to do homework. In the above cited study. less than 15 percent of the shelters studied had structured tutoring programs on site and less than one-quarter have quiet space for children to use for studying. Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 26 . . Chapter 3: Homeless Population and Current Service Capacity Homeless families need comprehensive services to ad,dress the multiplicity of needs that cause them to become homeless, and entrap them into the cycle of poverty. The repon, "Generation of Homeless Families", (June 1992) states, "To truly address the needs of these families shelters must also provide a variety of services and programs that enable families to build sound, independent living skills, complete their education, and obtain job training before moving to permanent housing. " Alcohol and Drug Treatment- According to the State Deparnnent of Licensing there were 506 licensed alcohol or drug treannent beds in Alameda County in 1994. These included 3-5 day detox programs, and shon (30-90 day) and long-term (6 to 18 months) residential treannent programs. Of these, 364 are funded by the Counry and available to people with very low-incomes. The County-funded slots include beds for men, women and special programs for women with children including 28 beds for children of women in recovery. No County beds are specifically dedicated for homeless people, although the Counry estimates that as many as 62 percent of persons in County reimbursed treannent facilities may be homeless. . In a srudy of people in alcohol treattnent programs, homeless clients presented a more complex clinical picrure than did others. They had more severe and chronic alcohol -, problems, co-occurring drug dependence and poorer mental health starus. This study suggests that homeless clients are likely to require a broader array of therapeutic services and perhaps a lengthier intervention than are usually- available in tradition alcohol treattnent programs. Staff at the County Department of Alcohol and Drug Programs cite three primary gaps in housing needs of homeless addicted people and their families: 1) an increase in the number of beds in residential recovery facilities to meet the need of homeless people, 2) supportive transitional housing to provide clean and sober living/life skills needed to live independently. and 3) supportive permanent housing for those not able to stay clean and sober and housed in the community at large. -. Health and Mental Health Care- . Health Care for the Homeless operates a mobile health team that goes to the sites where homeless people congregate and provides a range of health services to them. In 1993, Health Care for the Homeless provided 31,090 "encounters" (consisting of primary care services, alcohol and drug services, and case management services) to 6,550 different homeless individuals. Local clinics, such as the Berkeley Free Clinic and the Tri-City Health Center also serve homeless people along with the general low-income population. For those who are eligible, Medicaid provides health coverage Alameda County-Wide Homeless Continuum of Care Plan: April' 997 27 Chapter 3: Homeless Population and Current Service Capacity . which allows patients to see doctors throughout the community. Unfortunately, too few services are available to homeless people, 73 percent of whom lack insurance of any kind. Often the primary or only place in which medical care is received is in the emergency room. Transitional and ongoing mental health care is provided through Community Support centers and through transitional programs, drop-in centers and local health centers. There are limited Community Support Centers in Alameda County, several of them are in North county, one in South County and one in East County. Emeq~ency shelter Emergency shelters are another first point of contact with the homeless service delivery system. Ther~ are now approximately 25 shelters in the county, providing a total of 834 beds. Allowable stays in shelters average 45 days and range from 30 days to 6 months. 56 additional "armory" beds are available in winter, and 12 programs have limited supplies of motel vouchers for individuals, families, or those with HIV / AIDS. With an estimated 12,000 homeless people on any given night, there is room for fewer than 10 percent of the homeless population. . In 1991, ESN conducted the only known un duplicated count of Alameda County shelter tumaways; 2,448 people were 'turned away from shelters in the course of one week, more than three people for each of the shelter beds then existing. Domestic. violence shelters estimate a turnaway rate of five for every one bed.' Alameda County Housing and Community Development provides the following information on shelter bed subregion and homeless subpopulation coverage. Shelter beds are shown where they are located. Often shelters draw from, and were established to serve, a wider geographic area. : . Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 28 --'.+'.--. -.. - .. . . : . Chapter 3: Homeless Population and Current Service Capacity . . Homeless Shelter Beds In Alameda County by Target Population Population Number % Notes of beds Single Men 272 33% Single Women 82 10% Single women could be in some family beds also Singles (Men and Women) 70 8% Includes 20 beds which could be for family members of HIV + Families Subtotal 410 49% (Female-headed household) 260 (31 %) (Either sex-head/two parents) 150 (18%) Total 834 100% Source: HCD. ESN. Eden I&R. Alameda CountY-Wide Homeless Continuum of Care Plan: April 1997 29 .' :..... Chapter 3: Homeless Population and Current Service Capacity H Sb It B ds. Al d C t b T tP lat" d S b orne ess e er e m ame a OUD y Y .arge opu 100 an u area ArealPop MI AOD Parolee DV AIDS youth GcneraUunknOWII Total ~orth . 60% 36 24 so 20 370 500 Men 24 18 156 198 Women 12 6 22 40 Singles 20 SO 70 FanWies subtotal SO 142 192 FelJJllle Head/smgle women SO 40 90 Eirber sex Head of HH 102 102 Mid - 20% 30 18 9 108 165 Men 20 18 14 52 Women 10 0 10 Singles 0 0 FanWies subtotal 9 94 103 Female Head/single WOJDetl 9 70 79 Eirber sex Head of HH 24 24 South - 13% 36 72 108 Mm 22 22 WOJDetl 6 26 32 Singles 0 0 FanWies sublOtal 30 24 54 Female Head/siDgle women 30 0 30 Either sex Head of HH 24 24 East -7% 30 31 61 Men 0 0 Women 0 0 Singles 0 0 FanWies subtotal 30 31 61 Female Head/single WOJDetl 30 31 61 Ei1her sex Head of BH 0 0 Total 66 42 125 20 581 834 (Source: HCD. ESN. Eden I&R) Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 30 . '. .' ';,' -' [(. [) , '" . . ;\". ~: . . ~< I;. :.~- .' , ~::: I... ..' ~; , . '.' r' . -. .". " " ' .. .,' ~'.' ;.:,' ;..... .', ; ~:::: , " . '" " . , - .':':::" , , " " ..... ..... ':.... , " . ..- ,.."- . . . Chapter 3: Homeless Population and Current Service Capacity Information is not available on halfway houses or shelters for parolees, although it appears that there are few shelter locations targeted to this population. A list of all identified shelter beds in the County can be found at the end of this Chapter. Transitional Housin~ For many, exiting homelessness requires addressing chronic life issues, such as AOD problems or domestic violence, and saving enough money to obtain permanent housing. Transitional housing with services such as job training, financial planning assistance, and counseling for AOD or mental health issues provides an intermediate step for many to recover from homelessness and to develop life skills that will enable them to move to permanent housing with a lower risk of repeated homelessness. Residents can stay in transitional housing for 6 to 24 months. Transitional Housing In Alameda County by Target Population Population Number of beds Percentage of lunits Total Single Men 141 16% Single Women 154 17% Singles (Men and Women) 178 20% Families 211 23% Families or Singles 175 20% Youth 39 4% Total 898 100% Source: HCD, ESN, Eden I&R. Some projectS listed bad unknown number of units/locations. Includes funded projectS which will come on line in 1997-98. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 31 ~: .. ' Chapter 3: Homeless Population and Current Service Capacity Transitional Housing in Alameda County by Subarea of the County Subarea of County Number of beds/units Percent of T oral North County 592 66% Mid County 91 (includes 46 Housing/Jobs Linkages) 10% South County 32 (includes 23 Housing/Jobs Linkages) 3.5% East County 7 1% County-wide 175 (Transitions and Housing Stabilization 19.5% Project) T oral 898 100% (Source: ReD. ESN, Eden I&R) County-wide beds and Housing/Jobs Linkages represent transitional subsidy programs that provide rental assistance in private market housing. Although these subsidies can generally be used anywhere in the County, very expensive housing markets such as exist in South and East County make using the programs in those areas more difficult, even when programs are targeted to serve those areas. Transitional Housin2 in Alameda County by T8I'2et Population, Sex, and FamDy Status MI AOD Vets DV HIV+ Parolees General Total Notes Men 22 4 23 66 141 VetS also AOD Women 45 27 82 154 many beds for family also Singles/ 61 8 61 22 26 178 19M! eitber = Dual diagnosis FamUy 24 5 182 211 Family/ 175 175 BOSS trans singles RA Youth 8 31 39 Total 61 77 83 27 39 23 562 898 (Source: HCD, ESN, Eden I&R) Alameda County-Wide Homeless Continuum of Care Plan: April 1997 32 . .' ., - , - ., " '. :>. " " , - . ,';: . Chapter 3: Homeless Population and Current Service Capacity A list of all transitional housing beds/units in the County can be found at the end of this Chapter. Permanent Supportive Housin~ . While self-sufficiency is the ultimate goal of the Continuum of Care, those with serious disabilities (often the most "visible" homeless) may require long-term support services linked to permanent housing if they are to avoid a repeat of homelessness. The Alameda County and Berkeley Shelter Plus Care programs are the primary providers of such "permanent supportive housing," with long-term rental assistance and services for chronically homeless people with mental illness, alcohol or other drug problems, and/or HIV / AIDS. The Alameda County Shelter Plus Care Program includes dedicated units throughout the County in independent and supported housing environments, including 56 units of SRO housing at the Harrison Apartments, where an on-site services team delivers support to all of the residents who wish it. Shelter Plus Care participants work with a service coordinator to develop individualized service plans. Services are provided by numerous agencies working collaboratively in a multidisciplinary .approach. A new joint Alameda County/Berkeley Shelter Plus Care Component for homeless persons living with AIDS will be started in early 1997. At full capacity, the County and Berkeley and joint programs will serve at least 564 homeless households, including 165 in Berkeley and 399 scattered around the rest of the county. Besides Shelter Plus Care there are a few other programs with units . dedicated for homeless people with diSabilities or special needs. ... There are a limited Dumber of permanent units dedicated for people with HIV / AIDS in - Alameda County. These include about 9 rooms in shared living facilities and roughly 55 independent units. None of these are loCated outside of Oakland. An additional 66 units are projected to .become available in the next two years, including the first non Oakland units: 8 in Unincorporated Mid County, 6 in Berkeley, 6 in Emeryville, and 20 at the converted Alameda Naval Air Station. Also included are the first dedicated units for families with HIV/AIDS and unaccompanied youth. These units are accompanied with varying levels of supportive services. - Bay Area Community SerVices bas 14 units of low-income housing for people with developmental disabilities. Permanent. Subsidized Housin~ In addition to housing specifically dedicated to homeless or disabled populations, there are other resources available to very low-income individuals and families generally. These include the federally subsidized Section 8 rental assistance program, public housing, .and non-profit owned housing. Homeless people must compete for these broader resources with low- and very low-income people who are currently housed. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 33 Chapter 3: Homeless Population and Current Service Capacity . There are 4,050 units of public housing in Alameda Counry (3,382 of which are located in Oakland.) There are 16,705 Section 8 cenificates or vouchers for Alameda County. While homeless people receive a preference from housing authorities, the waiting list for Section 8 and public housing at housing authorities in the county are several thousand names long. With few vacancies, the wait is generally several years. The Oakland Housing Authority has recently been able to issue more Section 8 vouchers to new households and opened its waiting list for the first time since 1990. In addition to long waiting lists, very expensive and/or Section-8 saturated rental markets make Section 8 difficult to use even for those lucky enough to get it. For example, in parts of South and East County many landlords have been rejecting Section 8 because they can get higher rents in the market. Recently revised Fair Market Rents (the highest rent which Section 8 can pay in a specified area) for these areas should help alleviate this. Connected with high rents are low vacancy rates. The table on the following page shows vacancy rates by city within the County cities, for all types of housing. A recent' newspaper articles cites rental vacancy rates in East County at one percent. (Source: Tri- Valley Herald, September 22, 1996.) Vacancy rates are expected to continue to be very low during the coming year, which will put upward pressure on already high housing costs. . .. In the last decade, with changes in the federal support for public housing, there has been an increase in non-profit owned and managed housing targeted to low-inCome families and individuals. This housing provides another potential source of permanent housing for homeless people. However, because most of these units do not have ongoing subsidies attached to them, rents, while below market rates, are still often higher than homeless people and others with minimal incomes can afford. Aside from public housing, there are approximately 15..699 units of subsidized rental housing in the County. These units have received some type of federal, state or local subsidy which enable below-market, restricted rents to be offered to lower income households. The location arid amount of subsidized rental housing varies by County sub-region. The table on the following page shows the number of assisted, low income units and Section 8 vouchers and cenificates available by County sub-region and city as of January 1997, the number of lower income renters who spend in excess of 30 percent of their incomes on housing costs, and the percent of housing need met through this current supply of housing. Most Section 8 vouchers/certificates are "tenant-based'" which means that the tenant can take their subsidy with them if they move. Therefore the exact number of Section 8 vouchers/certificates in a city can change relatively frequently. The great majority of the subsidized housing is found in North County, with nearly 13,700 out of the total 19,790 subsidized units (69%) and about 11,400 of Alameda County-Wide Homeless Continuum of Care Plan: April 1997 34 .'. -. ;: . . . Chapter 3: Homeless Population and Current Service Capacity the 16,700 Section 8 certificates and vouchers (68 %). Most of this housing is found in Oakland. The remaining subsidized housing is distributed among Mid, South, and East County, with most being located in Hayward and Mid County. Most of the remaining Section 8 is found in Mid County as well. The current supply of subsidized housing is far outweighed by the need for affordable housing among lower income renter households. According to 1990 census dara, there were over 86,000 households in this group who are cost burdened; that is, paying more than 30 percent of their incomes on housing costs. While most households in this category are in North County, over 18,000 households are in Mid County, and some 13,000 households in South and East Counties. The available supply of housing is not meeting all, or even most, of this need for affordable housing. Only in a number of cities is the available supply meeting housing need greater than just 50 percent, namely Oakland, Union City, Livermore, and Pleasanton. Generally, in every city and County sub-region, the number of households whose affordable housing needs continue to be unmet is still very large, with only 36,500 subsidized rental units and over 86,000 cost burdened households. The most common form of permanent housing is the unsubsidized housing that is available in the rental market. The Association of Bay Area Governments (ABAG) has found that Alameda County has a shortage of more than 12,000 housing units affordable to people with incomes at 50 percent of median income (currently $21,050 for a household of one, $30,050 for a four person household) and 8,000 low-income units affordable to people with incomes at 80 percent of median income. ABAG made its Bay Area determinations based on five factors: market demand for housing, employment opportunities, availability of suitable sites and public facilities, commuting patterns, and type and tenure of housing. Overall ABAG's Alameda County projection for lower income housing is significantly lower than the 86,500 cost burdened renter households in Alameda, most likely because of the limits imposed by the various factors that ABAG takes into account for its projections. While many fonnerly homeless people are able to find _housing through the market, this housing is often too expensive and cr~tes a burden on the household that puts them at risk: of repeated homeless. In addition, in some parts of the county, much of the lower rent housing is in neighborhoods which are considered by many to be unsafe. In Alameda County, approximately 54,000 very-low income households pay more than 50 percent of their income as rent. Even market rate housing will see a shortage in the Bay Area according to ABAG projections in 1995. ABAG states that by the year 2010, based upon population projections and housing growth, there will be a shortage of 4,340 units for households in North County, and a shortage of 2,050 in South County. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 35 Chapter 3: Homeless Population and Current Service Capacity . Housing Need met through Current Supply of Subsidized Housing by County Sub-region for Alameda County Lower Income Percent of need Vacancy Number of Number of Renter met through Rates for all assisted. low Section 8 Households with assisted and Housing. income units Cerrs/V ouchers cost burden Section 8 Jan. I. 1996 -, ; (Note 1) (Note 1) (Note 2) bousing (Note 3) (Note 4) North County Alameda 534 1.305 4.851 27% 5.02 Albany 16 16 1.417 2% 3.7 Berkeley 1.292 1.816 9.757 24% 4.99 " Emeryville 261 65 800 29% 11.35 Oakland 11.589 8.220 37.564 35% 6.61 Piedmont 0 0 83 0% nla Subtotal 13,692 11,422 54,472 32% nia Mid County Hayward 1.447 1.870 7.494 31 % 4,97 ,- San Leandro 413 696 4.019 22% 3.51 Castro Valley 114 nla 2.241 nla nla " San Lorenzo 165 nla 636 nJa nla '. ~ Other Unincorporated (Note 5) 2.549 226 13% : 4.252 3.77 . Subtotal 2,549 2,792 18,642 22% nia .' South County : Fremont 1.102 1.055 5,984 26% 3.53 ,,' >. Newark 200 199 1.406 22% 2.19 ., . Union City 365 578 1.654- 36% 3.43 ,. Subtotal 1,667 1,832 9,044 27% nla East County - Dublin 186 18 766 21% 2.74 " Livermore 728 575 2.209 37% 3.94 " ". Pleasanton 1.005 66 1.367 44% 4,51 Other Unincorporated 0 nla nla nJa nia , ' Subtotal 1,919 659 4.342 37% nla TOTAL 19,827 16,705 86,500 30%, 4.88 .- AJlUIICda Coomy Housing .aDd Couununity Development Departmc:m. April 1997 Note I: A1llmeda Coumy lDvemory of Subsidized Renla.I Housing. April 1997 " Note 2: Households at less than 80% of Oakland MSA median family income ofS47,516spenc:ling 30% or more on housing costs; .. 1990 U.s. Census. STF3 Note 3: Assisted and Section 8 housiDg as ~ of sum of assillled and Section 8 housing and low iDcome tenter households spending 30% or more on housirJg costS. - Note 4: Vacancy TaleS provided by C.alifOmia Dcpanmem ofFUJSDCe. hport E-S. 1996 Not" 5: ..Other UDiDcorporatcdw inchJdc:s AahIand.. Chenyland., Fairview,.aDd TeZDainiDg UDiDcotpor.aIcd atea$; Section 81ODl1 is for all . ;: llDiDcorporaIcd areas, Petcen1 of met need is for allllDiDcorporaIcd atea$. ',' -- .. .. . ' , -,' Alameda County-Wide Homeless Continuum of Care Plan: April 1997 36 . .".. ." Chapter 3: Homeless Population and Current Service Capacity ABAG Housing Needs Determinations, 1988-1995 By County Sub-region for Alameda County Housing Units Needed by Income Level Total Projected Need Very Low Income Need North County Alameda 2,854 Albany 86 Berkeley 2,030 Emeryville 765 Oakland 8,874 Piedmont 29 Subtotal 14,638 . Mid County Hayward 8,734 San Leandro 2,425 Unincorporated (Note) 2,890 Subtotal 14,049 South County Fremont 8,151 Newark 1~856 Union City 1~956 Subtotal 11,963 East County Dublin 3,391 Livermore 2,539 Pleasanton 3,547 Subtotal 9,477 TOTAL 50,127 . 714 23 _n 609 199 2,662 6 4,213 Subtotal Very Low and Low Income ~' - 1,228 ;- 38, - '-954:' - -c__- _33:r _-?-,-~ ') --~-:--4~I~'~ '_' '::';~~c,~~~jti~ . -' . -=-.:.- . :'._-.~-. -:- ,.:_';:~:":-:~~,; ": ___d . .__ ." . =__"-=. . _..-=___-,..._.... 0-.-':"".:= -..~=-=._..-.-..". .. - .- -. .. --.. -- ....- n. "__",", . _;." . __.:_"__..;..J_,::":..:::-.-:-_,"-=.- . -- ---- .. .. - -...... - ." .--, "=:-:-..:---. . .~.:--=::-:":"'::.:-' ,~. ~'.'=-=:": :::=_" ":=~'::ic':..: .;.:.. ." , ..- .. """'3- 381' -'-- 2 096 - ~__o,_~_-J,~n''''" ., u.. .. .. . .... ., --. .. - -- .. , -- .:'~.:~._:::.-:-.: ':"""-=-::"- "'.. _.=':~~- 606 -" --:-_cc", ''-~-lO-";Ol-8--''~ . --.. ..-- -- . - -"2~::,,'~~C:', .-" -'<_ :.",,: 694 ~;~~,~~~~:;\.-"-: l;~~f 3,396 ~?Z~ ~_c,>3!;7~: 1.,793 371 430 2,594 678 559 745 1,982 12,185 ~~~~!~~~ Note: ABAG NEEDS delPT'lT11nlltioru; Dot broken out within unincoxporated areas; ABAG unincorpoxated project needs shown under Mid County for purposes of table. Source: ABAG Housing Needs l)et(-nnlnllrions, September 1988; .A111mM8 County Housing and Community Development Depanmeot., May 1997 Alameda County-Wide Homeless Continuum of Care Plan: April 1997 37 Chapter 3: Homeless Population and Current Service Capacity Conclusion Homeless people and their families come from allover the county and represent a wide variety of backgrounds and needs. Services for homeless people are grossly inadequate to meet the current need across the entire continuum of services and in all regions of the County. Projected increases in the numbers of people at risk of homelessness from cuts to AFDC. Food Stamps, General Assistance and changes in 5SI eligibility criteria will funher tax the homeless services system. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 38 . ;. .-- '. ,- ~i ." :-: ~ ': . . " -:: ,.- .' ;: :..-, -.:- .., '.- . Chapter 3: Homeless Population and Current Service Capacity Sbelter Beds in Alameda County by Target Population Shelters/Men BEFHP Berkeley. 60 Harrison House Berkeley 30 Allied Fellowship Oakland 30 CHASS Beds Peniel Mission Oa.kland 30 Oakland Homeless Proj Oakland 24 Mentally disabled First Step Oa.kland 18 AIcoholJ drug Midway Sbelter Alameda. 6 also used for boys 12 yrs + in families at shelter Human Owreac.h Agency Hayward 18 sober S6 Co Homeless Proj Hayward 20 Mentally disabled only Seventh Step Hayward 14 CHASS beds Second Chance Newark 6 Tri-city Homeless/Sunri<;e Fremont 16 Subtotal 272 Shelters/Women Harrison House Berkeley 15 BEFHP Berkeley '" Women's Refuge Oakland '" DV A Safe Place Oa.kland '" DV . Casa. Vincentia Oakland 7 Pregnant.. 18-25 Oakland Homeless Proj Oakland 12 Mentally disabled FirstSrep Oakland 6 AlcoholJdrug Midway Shelter Alameda '" will take kids with moms (or dads in single men beds ) San Leandro Shelter San Leandro '" will take kids with moms Sister Me Home San Leandro '" DV, will take kids with moms ESP Hayward '" will take kids with moms So Co Homeless Proj Hayward 10 Mentally disabled only Second Olance Newark 10 SAVE Fremont '" DV, will mke kids with moms Tri-City Homeless Fremont 16 AA.SRA Fremont 6 DV (East Indian) Shepherd's Gme Livermore '" will take kids with moms Tri-Valley Haven Livermore '" DV Subtotal 82 Shelters/Single Adults/either sex East Oak Com Proj Oakland' 70 20 for HIV +, the 20 can also hold family members Subtotal 70 . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 39 " 0", , ,00 Chapter 3: Homeless Population and Current Service Capacity .', Sbelters/Families Women with kids or single women BEFHP Berkeley Women's Refuge Oakland A Safe Place Oakland San Leandro Shelter San Leandro Sister Me Home San Leandro ESP Hayward SAVE Fremont The Center Livermore Tri~Va1ley Haven Livermore Shepherd's Gate Livermore Subtotal Adults (eitber sex or both parents) with kids Harrison House Berkeley Salvation Army Oakland East Oak Com Proj Oakland Midway Shelter Alameda FESCO Second Chance Tri-City Homeless Subtotal Hayward Newark Fremont Subtotal! Families Est. Total 834'beds 40 30 20 30 9 40 30 15 30 16 260 25 53 * 24 24 14 10 150 410 will take kids with moms DV. kids with moms DV. kids with moms will take kids with moms DV. will take kids with moms will take kids wirh moms nv. kids with moms will also take single women DV. kids with moms will take kids wirh moms -., '.' beds for HIV + can also take family members will take kids with moms (or dads in single men beds) ... ,.' .. >I< indicates that beds have been counted under another category source: Alameda County HCn 4/97. ESN 7/96 '. ".' ;!; .:.. '.- :.: ,,- , , ,-. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 40 ,~' : .' -..' ....;.-.... .." .." .- .... ';.- .' ., . Chapter 3: Homeless Population and Current Service Capacity Transitional Housing Units in Alameda County by Target Population Men Andre House Oakland 6 3-6 months Genesic; Project Oakland 40 single men. youth. HIV +. up to 2 years Hazard-Ashley House Oakland 4 clean/sober w/HIV. up to 2 years Mary Anne Wright Fdn Oakland 20 6 months Second Life Oakland 26 ADD. min. 102 mos, up to 12 months + Allied Fellowship Oakland 23 Parollees MiChael Dorsey Rehab Crr Oakland 22 ADD. vets Subtotal 141 Women Women's Refuge Berkeley 12 DV. will take kids with moms. 6 months Elizabeth House Oakland 12 single women and kids with moms. 18 months Fresh Stan Oakland 14 4 total families. single women and kidc; with moms. 12 months Gilead Group Oakland 12 4 total families. single women & kidc; with moms. 18 months Matilda Cleveland Hse Oakland 44- Preg. Women. women w/kids. 12 months Images on the Rise Oakland 45 9 months. single women & women w/kids(45 women + 10 kids) WINGS Hayward 15* DV. will take kids with moms. 18 months . Subtotal 154 Single Adults/either sex Berkeley Drop In Crr. Berkeley 8 Mentally disabled, up to 2 years Berk. Ecnm~iC".Jl1 Olap. Berkeley 7 up to 18 months Bonita House Berkeley 19 dual diagnosed. up to 18 months ...~ VeteI3D's AssisL Crr Berkeley 9 6 months - AMASSI Oakland 10* Singles & on t families w/HIV. 18 months Oakland CaIhoIic Worker Oakland 10 immigrants. 2 months Operation Dignity Oakland 61 vererans Walker House Oakland 6 lllV+ Rosa Parks Oakland 22 6=HIV+. 16 = MI Pacheco Coun Unincorp. 18 10 units. some can be shared. mentally disabled. Hayward 18 months Meekland Ave. Unincorp. 8 AOD Hayward Subtotal 178 . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 41 Chapter 3: Homeless Population and Current Service Capacity e Families Berk Emerg Food & Hsg Berkeley 12 Single women with kid.., up to 2 years McKinley House Berkeley 7* 24- 35 people JDaX. 18 months Dignity Housing West Oakland 7* East Oak Com Proj Oakland 6* Henry Robinson MSC Oakland 60 18 months Amandla Family Center Oakland 24 Women with Kids, at risk for substance abuse Laulima House Oakland 5 HIV + single women and women with kid.. OUI House Oakland ? AOD women wlkids McKinney Linkages So Co 70* Rental Assistance and services, up to 2 years Bluebell Ave. Livermore 7 FESCO Hayward 4 Adult(s) wlkids Tri-city FrelNewark 9 Subtotal 211 y outb Canaan Place Berkeley 10 up to 2 years YC-EOCP Oakland 8 YC-BOSS Berkeley 11 YC-AMASSI Oakland 8 gay/lesbian including HIV + Y C -Casa Vincentia Oakland 2 Pregnant/parenting girls Subtotal 39 Est. Total 723 Plus BOSS Transitions (ISO, County-wide, singles and families) and BOSS Housing Stabilization (25. county- wide. 9 for women and kids. 16 for mentally ill) = 898 e: * units some of which are 2-3 bedroom so kids don't take up these slots but would be in addition to these. Source: Alameda County HCD 2/97, ESN 7/96 " " e:.: Alameda County-Wide Homeless Continuum of Care Plan: April 1997 42 " :~: " .; . Chapter 3: Homeless Population and Current Service Capacity Homeless Multi-Service Centers in Alameda COUDty BOSS South County Homeless Project Hayward Berk. Emergency Food & Housing Proj Berkeley Berkeley Drop-In Center Berkeley Berkeley Multi-Agency Service Berkeley (MASC) Women's Daytime Drop-In Center Berkeley A Friendly Place Oakland Fred Finch Youth Center Oakland Henry Robinson Multi-Service Crr. Oakland . Oakland Independence Support Ctt. Oakland Source: Homebase. ESN 1996 Resource Guide. Mobile Senices.and Street-based Outreach Programs Health Care for the Homeless County-wide CODDnunity Crisis Response Team County-wide Cily of Berkeley Homeless Outreach Team Berkeley Building Opportunities for Self-Sufficiency CODDnunity Organizing Team (BOSS COT) Primarily Berkeley and Oakland - Fred Finch youth Center Primarily Oakland . Mentally Disabled Homeless People. Daytime drop in. weekdays. Women. Men. chi.1dren, Day time and evening drop in Social Center (2 different siteS), weekdays. Day time. Past or current mental health patienLS or at risk of becoming mental health patient. weekdays. Daytime. Homeless Individuals and Families. weekdays. Daytime. weekdays + Saturdays. Women and children. Homeless women. Daytime, weekdays. Afternoons. M- Thurs. Runaway and homeless youth. Homeless families and children. Me.wally disabled. dually diagnosed homeless and those at risk. M-W. Fridays, daytime. Health care, food, transportation. housing assistance, mcdica.1 and dental services Mental health services on an on-ca1l basis to people in crisis, shelter and treatment referrals Referrals and assistance obtaining services and sheher Referrals to services and community orfanmnf activities Outreach to rnnawayand homeless youth Alameda County-Wide Homeless Continuum of Care Plan: April 1997 43 Chapter 3: Homeless Population and Current Service Capacity . Food Programs In Alameda County Soup Kitcheos Berkeley McGee Ave. Baptist Church South Berkeley Community Church 51. Paul AME Church Berkeley Emergency Food Project Food Not Bombs (serves in parks) Dorothy Day House (serves in parks) Food for Life (serves in parks) Oakland Faith Tabernacle of Praise M1. Sinai Missionary Baptist Church Center of Hope Fisher Memorial Church Christ Christian Fellowship Church MOUDt Olive M.B.C. Peniel Mission Salvation Army - Oakland Beth Eden Baptist Church Taylor Memorial Baptist ChurchITask Force Center Street Missionary Baptist Church Greater Cooper AME Church 51. Andrews/St. Joseph Soup Kitchen New Hope Baptist Church Bethany Baptist Church Downs Memorial United Methodist Church Olivet Instinuional M.B. Church Pilgrim. Rest Benevolent Society St. Vincent De Paul Dining Room Friendship Missionary Baptist Church Cornerstone Baptist Church Young Voice Mission , . Hayward Salvation Army - Hayward Full Gospel Mission Ministries Fremont Centerville Church Livermore Open Bean Ki1chen Source: Alameda COUDty Community Food Bank 3/27/97 Alameda County-Wide Homeless Continuum of Care Plan: April 1997 44 . . Chapter 3: Homeless Population and Current Service Capacity . . Food Pantries in Alameda County Alameda American Red Cross Alameda Emergency Food Bank Berkeley Berkeley Food Pantry Ephesian COGle (Love in Action) Salvation Army - Berkeley Market SL S.D.A. Church New Light Baptist Church Swat Sangan Association Grace Baptist Church Emeryville Emeryville Community Action Program Oakland Amazing Grace Outreaeh Victory Ow:reach Church - Oakland StarS of Joy Missionary Baptist Church Fruitvale Christian Church The Bible's Way Church of God in Christ Faith Tabemacle of Praise Bethe,l Assembly of God Shiloh Mercy Ministries Paradise Baptist Church/Columbia Garden ML Sinai Missionary Baptist Church Community Reformed Church Amos Temple On:istian Methodist Episcopal East Oakland Multi-Purpose Center Unity True Holiness COGlC Elmhurst Food Pantry Elmhurst Presbyterian Church East Oakland SDA Church Our Redeemer Lutheran Church Center of Hope WJDgs of Love Marana1ha Ministries FlSber Memorial Church . Canaan Christian Covenant Baptist Church Christ Christian Fellowship Church Sequoyah Community Church Gospel Missionary Baptist Church Good Samaritm Rome MOlDlt Olive M.B.C. SL James Episcopal Church Harbor House Love Temple Missionary Baptist Church Zion's Tabernacle Church of God in Christ Alameda County-Wide Homeless Continuum of Care Plan: April 1997 45 Chapter 3: Homeless Population and Current Service Capacity . Food Pantries in Alameda County (continued) Oakland (continued) Lake Merritt United Methodist Church Dorcas Society #72 Jubilee West Inc. Taylor Memorial ChurcbJTask Force The D&N Institute Catholic Charities of the East Bay/ESP Outreach Prayer Band New Hope Baptist Church Project Open Hand Food Bank Andre House Downs Memorial United Methodist Church Sl Augustine Episcopal Church Telegraph Community Center Beebe Memorial C.M.E. Church St. Mary"s Community Center Hayward Salvation Army-Hayward Calvary Baptist Church South Hayward Parish Elmhurst Baptist Church Hayward Sevemh Day Adventist Church Glad Tidings Church of God in Chri'it Full Gospel Mission Ministries ; .. J- Fremont Tri-City VollD1teers . .'. f: l' " ~:. Newark Salvation Army-Newark Viola Blythe Community Service Center , [- ~-~~ '. t{: Livermore Family Crisis Center .' .' ~~: ,-, .- Source: AI"mf'(fa County Community Food Bank, 3/27/97 ~:.. ."." . . ,10.;. ,,- , ' Alameda County-Wide Homeless Continuum of Care Plan: April 1997 46 .,:, ,.' '.' .' . Chapter 3: Homeless Population and Current Service Capacity Employment Services and Job Training Programs for Homeless People Building Opportunities for Self-Sufficiency (BOSS) Berkeley. Oakland. Hayward Job development services and micro-enterprise Housing/Jobs Linages Program Mid. South and East County Employment counseling and placement assistance for recipients of uansitional housing assistance Jobs Consortium Berkeley and Oakland Full service employment naining and job development program for homeless and disabled people . . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 47 Chapter 3: Homeless Population and Current Service Capacity . [Blank Page] . ::- Alameda County-Wide Homeless Continuum of Care Plan: April 1997 48 . ,.- '.. . CHAPTER 4 Analysis of Current Funding of the Continuum . '~ U I would not have become homeless if I had been able to afford to pay my rent. .. ' Homeless mother of 3, Tri-Cities, 1996 . Chapter 4: Analysis of Current Funding of the Continuum . ANALYSIS OF CURRENT FUNDING OF THE CONTINUUM Introduction This section of the Plan details the analysis and findings from an unprecedented effon to link services planning to funding. As Alameda County's homeless service providers face continued funding cutbacks from all levels of governments, the Working Group detennined that it is important to obtain a clear understanding of all current funding patterns in tenns of both sources and uses by local governments and providers. Thus, as part of the planning process, the Working Group contracted with BAE, a consulting finn specializing in affordable housing and homeless services financial analysis, to compile an extensive database of all flows of funds into the County for the most recent fiscal year. The database created for this Plan presents a comprehensive report of current spending for direct homeless services, and can be sorted by any number of data fields to analyze those spending patterns. The database could also be used for the following purposes (not conducted as part of the Plan): . · Enables analysis of current funding gaps in the County system by program category, target population, geographic areas, and other criteria · Enables estimation of impacts of decreases in funding to providers, care categories, and/or target populations if assumptions are made regarding cuts in various funding programs · Enables preparation of a regional "budget" of discretionary spending so that funds can be reallocated to best meet care needs or regional "fair share" goals Methodology to Compile and Code Data To organize the collection and compilation of data, the Alameda County Continuum of Care fonned a Financial Data Subcommittee to direct the consultant's effort. This subcommittee met with BAE four times during Summer and Fall, 1996 to discuss the database structure and the financial data collection process. These meetings produced a framework for data collection which targeted collection of all "source" public agency and nonprofit funders (e.g., federal, state, and local governments as well as large locally active foundations). The framework also called for collecting "user" budgets from all County-based homeless service providers, in order to double-check the flow of funds from the source funders as well as to identify other sources of funds. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 49 . . Chapter 4: Analysis of Current Funding of the Continuum The Alameda County Housing and Community Development Deparnnent managed the collection of both "source" funder budgets/performance reports and service provider budgets. with assistance provided by BAE. The "source" funder budgets/performance reports were individually requested, and all requests were eventually responded to. For the service providers, the data collection proved more difficult. Two mailings requesting budgets and/or budget information were sent to a list of more than 120 service providers in Alameda County during late summer, 1996. The list of these providers was supplied by Eden J & R. which maintains a database of all homeless service providers and their services for referral purposes. The mailings generated a very low response rate. A more direct approach was then implemented with BAE preparing a standardized budget matrix which was provided to the County Housing and Community Development Deparnnent for distribution to various jurisdictional agencies for subsequent direct distribution to the service providers. Additional announcements were also included in County mailings to request service provider cooperation in this effon and were made at ESN meetings. . Data was collected and organized by the concept of a "program", which was defined as an identifiable effort to provide a defined service to a specific population(s). In most cases, budget data for fiscal year 1995-96 were used, but in some instances, data were collected for most recent available fiscal year (certain jurisdictions had not completed FY budgets or are on a different budgeting/reporting cycle). A total of 39 data sources were used to compile the database; including nine City and County budgets, funding data from major foundations, perfonnance reports for federal anrl'state programs, and data from a limited number of County-based service providers. '. The resulting database contains a total of 344 program records, with each including the following fields (if data were available): . Dollar amount . Administering Agency . Program Name . Program Location . Continuum of Care Category - categorized as prevention, outreach, emergency, support, transition, permanent and, planning/administration (See below for definitions of what is included in these categories.) . Program Category - categorized as health, housing, food, mental health, transportation/childcare, support services, advocacy, substance abuse, and vocational/educational . . Target Population - categorized as all, all adults, solo women, children and youth, families with children, solo men, women and children, and elderly . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 50 Chapter 4: Analysis of Current Funding of the Continuum e · Special Needs - categorized as people with mental disabilities; alcohol/other drug abusers: dually diagnosed; victims of domestic violence; persons living with AIDS/HIV related diseases; veterans; formerly incarcerated: people with physical disabilities; immigrants/refugees/non-English speakers; pregnant; all · Primary and Secondary Areas Served . Last Funding Year · Source of Data (e.g.. name of document or verbal conversation) Deimition of Continuum of Care categories for the imancial database: Prevention includes all programs targeted at people at risk of homelessness, including emergency assistance and eviction prevention. Outreach includes programs that specifically target homeless people in the streets, parks and other public places not suited for habitation who are not linked to services. Emergency includes operating costs for emergency shelter beds, short-term hotel and motel vouchers and support services provided in direct connection with emergency shelters and vouchers. . e Support includes support services that span the continuum but are not linked " specifically to housing.and can be delivered at any or various points of a persons homelessness~' These include food programs not attached to shelter, job training and employment services, life skills counseling, child care, transportation, advocacy, legal assistance. health care and other supportive services. Transition includes rental assistance expenses, operating costs and support services linked specifically to transitional housing programs. The Housing Jobs/Linkages program and the Transitions Project are counted in this category. ., Pennanent includes rental assistance, operating costs and support services linked to permanent housing for people who are formerly homeless. All Shelter Plus Care dollars are included in this category. Planning! Adminid'ration includes .services that support the network of homeless providers, such as ESN, Coordinet. and Eqen 1& R. This area does not include non-profit or local government administrative costs for homeless services. e.. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 51 ..'~ ,- . Chapter 4: Analysis of Current Funding of the Continuum Data was coded per the above fields and entered into the database by BAE. Printouts of the database sorted by jurisdiction and by program category were then supplied to members of the Financial Data Subcommittee for their review and correction. Revisions and corrections were made to the data, and re-sorted data was supplied to other working subcommittees for planning purposes. Database Limitations ~ Data collected include only those services which are "core'" homeless services. Core services target only the homeless or the vast majority homeless. Ancillary services which target a low- income population and may incidentally include a portion of the homeless population are not included in the data base. Cash assistance such as GA and AFDC is not included in this analysis. The distinction between core and ancillary services is a particularly important consideration for health care services in the County: homeless people typically use the same County services (such as Highland Hospital) as low income people. These providers are not included in the database unless they offer core programs targeting only homeless people. . Also excluded from the database are expenditures for capital improvements and development of homeless targeted housing. The information in the database focuses on the funding provided for services and operating expenses for the County's homeless services and housing, rather than one-time capital expenditures. The database shows the cost of providing ongoing services and targeted rental assistance to homeless people in the County, but excludes funds' for construction or rehabilitation. In terms of total dollars 'spent, the majority of funding information was collected from funding sources. Due to a limited response rate from funding recipients (the service providers) in the County, detail at the level of the target -population and special needs categories was difficult to obtain. Total funding doIlars, funding source, administering agency, location of programs, continuum and program categories were obtained with a higher level of accuracy. However, the lack of response from providers means that funds from private sources, such as smaller foundations and individual donors, are underestimated. Financial information for homeless services funded by the V.A. and Ryan White CARE Act funding was not provided, and therefore not included in the database. As a result, funds targeting veterans and people with HIV / AIDS may be undercounted. Financial information from service providers did not always make a distinction between the agency administering the funds and the actual funding source. For example; a service provider budget might list the County as a funding source when the County is actually administering federal or state funds. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 52 Chapter 4: Analysis of Current Funding of the Continuum . Summary of Overall Homeless Service Funding in Alameda County for Fiscal Year 1995/96 The following highlights key findings from the analysis of current homeless services spending in Alameda County, and graphical representations are shown on the following pages: · A total of $20,376,605 was estimated to be spent on core homeless services in Alameda County by public and major private funding sources in FY 1995/96. · Most expenditures on homeless services in Alameda County originated from federal sources (approximately 53 percent), followed by the County (contributing 26 percent). Cities account for 11 percent of expenditures; private sources, 7 percent; and the State less than 2 percent (see Chart 1). . Along the Continuum of Care, the bulk of funding was expended on emergency and support homeless services (approximately 33 percent and 32 percent, respectively). The remainder was distributed among the permanent (20 percent) and transition (12 percent) service categories, with prevention, outreach and planning/administration each comprising less than 1 percent of total expenditures (Chart 2). · Fifty-seven percent of homeless service funds in the County flowed into housing progrClJlls (emergency, supportive, transitional or permanent.) Vocational/educational programs' receive 13 percent; followed by support services (childca.re, transportation, coun~ling) at 12 percent; food, 9 percent; health, 4 percent; and mental health, substance abuse and advocacy services each received only approximately 1 percent of total funding (Chart 3). . The majority of core homeless service funding (67 percent) flowed into the North County area. Mid County receives 12 percent; South County, 8 percent; East County, 5 percent; and 8 percent of funds were not described geographically by the source information ('Unknown' category.) (See Chart 4) In keeping with the high concentration of funding in the North County area, Berkeley and Oakland providers received more funding (66 percent of the total) than other municipalities, followed by Hayward at 9 percent (Chart 5). Summary of Homeless Services Funding by County Subarea The following highlights key findings for subregions within the County when considered across the Continuum of Care: Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 53 . Chapter 4: Analysis of Current Funding of the Continuum . North County. The highest concentration of Nonh County's $13,542.195 in homeless funds fell in the Support category of the Continuum (approximately $5,200,000). The Emergency category also received a high level of funding ($4,500,000), as did the Permanent category with $3,000,000 (Shelter Plus Care funds). On the other hand. the areas of Prevention, Outreach, Transition and Planning/ Administration received very linle funding (Chart 6). . Mid County. The vast majority of the $2,483,547 in homeless expenditures were spent on Emergency services (approximately $1,400,0(0). The Permanent category represented nearly $500,000 in funds, while Support and Transition accounted for approximately $200,000 and $300,000, respectively. Prevention (eviction prevention subsidies) accounted for $49,000. Very little funding was allocated to Planning/Administration, while none was directed towards Outreach (Chart 7). . South County. Funds in the South County area totaled $1,684,663 and fell within the categories of Emergency ($460,000), Support ($299,000), Transition ($517,000), and Permanent ($410,000). The categories of Prevention, Outreach and Planning/Administration received no funds for homeless services (Chart 8). . . East County. Like the South County area, East County (totaling $979,341) had no funds within the Prevention, Outreach and Planning! Administration categories. The majority- of expenditures flow into the Transition category ($367,000), followed by Emergency ($342,000), then Permanent and Support ($196,000 and $74,000, respectively) (Chart 9). . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 54 Chapter 4: Analysis of Current Funding of the Continuum r-.. 0 _U"l MU"l r-..-o or-.. ~ '<t" ~ -:.. -.:t-~ ON-o-.:t-U"l-o 1""'Ir-.."0.__ ~ M O~ r:.. '<t" - - U"l~ - " -- . o.__-o_Z N.,M ::> NO. >- ...J - W 0;>- -~<.~ .Z~~<Z >-:J~<>~ t:OuJ~~Z UUu....V'Ic..::l &I'l o -oi .. "0 r--. M 0" N iA- ,,:j ~ o I- . w ~~ >~ 0::(0 0- z ~ 0 w De;::: I-~Zc:t:! <(CX):::S:::o ~ 'z CJ')~=> f::~ U~ .... ..... .... >- ..... C :::::J 0 U ns ""0 (1) E m - < C ~~ . <t- U> ;2:0 I- 0> :J~ 0:: CJ O~ < .... U :::::J :I: 0 0 en - - .- - en c - "'C C :s u.. U> en (1) Ci) E ....J 0 <(~ :I: c:::o W~ ON WIO U. 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J. __ __ _ . . ...........~~ ~~ ~~~~--- -- -- -- ~--.- ~-------~- ------ l.HOddnS A:::>N39H3W3 H::>'v'3H.LOO NOIJ.N3I\3Hd 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 0 ci ci ci ci ci c:i c:i ci c:i 0 0 0 0 0 0 0 0 ~ 0 0 0 0 0 0 0 0 0 0 0 0 0 0 ci ci 0 1.0 0 l() 0 l() 0 1.0 ~ M M N N ~ ~ ~ ~ ~ ~ ~ tI'7 tI'7 tI'7 Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 63 . ~ 0 l>ll CI.I ..... "' . v -c 0 -= "' v ..2 c =: 0 c ,:.t: C ~':J CI.I .c ..... 0 ..... ..E ~ b c ':J 8 ~ ..... ..E ... "'C C a . ... ... cv Qj E 0 .s:. ..5 0- I.I'l . co ..0 co ..0 - - - CI.I ..... 0 Z . Chapter 5: 1997 Plan Priorities . . SUMMARY OF 1997 PLAN PRIORITIES This Plan is a Five-Year Plan to address homelessness. Many of the goals in the Plan are long- range and will change the way in which services are delivered to homeless individuals and families. Because the current environment is changing rapidly, and needs are projected to increase with the implementation of welfare reform, the goals of the Plan will need to be revisited frequently and updated to reflect changing realities. The First Year goals set a priority for how limited resources, both fiscal and human, should be directed at the start of Plan implementation. In carrying out the priorities of the Plan it is critical that we establish new and support existing appropriate and lasting parmerships. These include parttlerships among funders, public and private, as well as among service providers and community-based organizations. Parttlerships are key to taking advantage of limited resources and appropriate opportunities. These can occur both in program areas (such as MODs between providers offering complimentary services) and in cost-saving administrative areas (such as bulk ordering of supplies). Recommendations in the Plan are presented in five. chapters: . HousingfI'ransitional Housing/Shelter. This chapter outlines the needs and makes recommendations along the entire continuum of housing options, from homeless prevention, to emergency shelter, transitional housing, permanent housing, and permanent supported housing. . .-. ,'. . Income and Employment. This chapter outlines recommendations that will assist homeless people to gain incomes that can sustain them and prevent reoccurring homelessness. .' .'- . Support Services. This chapter recommends priority actions for strengthening the services and support system for homeless people and expanding their access to needed services, such as food, counseling, transportation, and child care. -- ,'. . Integrated Health Care. This chapter contains recommendations to improve the delivery of health services to homeless people, with a special focus on disability, mental health, and alcohol and other drug issues, and the issues raised by attempts to address co-existing health needs within the current service system. . Plan Administration. This chapter describes activities necessary to ensure the implementation of the Plan and of maintaining and strengthening the county-wide continuum to support homeless people in meeting their needs. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 65 Chapter 5: 1997 Plan Priorities e This first year summary brings together the recommendations of all five of the topic-specific chapters to establish overall Plan priorities for the first year of implementation. Given that, it is important to recognize that successful plan implementation is a combination of good planning and seizing opportunities as they arise. As we work together to implement this Plan, we must be flexible and adapt annual objectives to opportunities that come along. The closure and conversion of military bases in Alameda County is one such time-limited opportunity. Other examples include the availability of funding sources with specific funding targets, or increased political suppon for one piece of the continuum at any given time. The priorities in each section and the overall Plan priorities were determined by balancing recommendations from the working committees and the Continuum of Care Working Group; views expressed in the homeless surveys and in public comment settings; and current opportunities. Each year the Continuum of Care Council, recommended in the Plan Administration chapter below, will review the progress on achieving the goals of the Plan and create an annual list of priorities to take into account pr()gress, changed realities, and new opportunities. Some priorities are county-wide (e.g. systems changes in health care) while some focus on specific geographic subregions of the county and/or subpopulations (e.g. multiply diagnosed single individuals in East County). Some of the goals identified in the first year will take more than one year to achieve. In those cases, the intent is to begin work on the action step~" or, at a minimum, to explore feasibility in greater depth during the first year. e., ': .' Structure of Goals and Actions The goals of the Plan fall into four main categories: . Maintenance of current capacity . Improvement/strengthening . Expansion . Advocacy Alameda County-Wide Homeless Continuum of Care Plan: April 1997 66 e ~ II ' . CHAPTER 5 Summary of 1997 Plan Priorities . <<(1 need) a landlord to open their hean so that 1 can get in a place to live before my -Section 8 runs out. .. Homeless mother of 2 in Livennore, 1996 . Chapter 4: Analysis of Current Funding of the Continuum . (Blank Page] . Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 64 . . Chapter 5: 1997 Plan Priorities . . SUMMARY OF 1997 PLAN PRIORITIES This Plan is a Five-Year Plan to address homelessness. Many of the goals in the Plan are long- range and will change the way in which services are delivered to homeless individuals and families. Because the current environment is changing rapidly, and needs are projected to increase with the implementation of welfare reform, the goals of the Plan will need to be revisited frequently and updated to reflect changing realities. The First Year goals set a priority for how limited resources, both fiscal and human, should be directed at the start of Plan implementation. In carrying out the priorities of the Plan it is critical that we establish new and support existing appropriate and lasting partnerships. These include partnerships among funders, public and private, as well as among service providers and community-based organizations. Partnerships are key to taking advantage of limited resources and appropriate opportunities. These can occur both in program areas (such as MODs between providers offering complimentary services) and in cost-saving administrative areas (such as bulk ordering of supplies). Recommendations in the Plan are presented in five. chapters: . Housingffransitional Housing/Shelter. This chapter outlines the needs and makes recommendations along the entire continuum of housing options, from homeless prevention, to emergency shelter, transitional housing, permanent housing, and permanent supponed housing. . . Income and Employment. This chapter outlines recommendations that will assist homeless people to gain incomes that can sustain them and prevent reoccurring homelessness. . Support Services. This chapter recommends priority actions for strengthening the services and support system for homeless people and expanding their access to needed services, such as food, counseling, transportation, and child care. . Integrated Health Care. This chapter contains recommendations to improve the delivery of health services to homeless people, with a special focus on disability, mental health, and alcohol and other drug issues, and the issues raised by attempts to address co-existing health needs within the current service system. . Plan Administration. This chapter describes activities necessary to ensure the implementation of the Plan and of maintaining and strengthening the county-wide continuum to support homeless people in meeting their needs. Alameda County.Wide Homeless Continuum of Care Plan: April 1997 65 Chapter 5: 1997 Plan Priorities . This first year summary brings together the recommendations of all five of the topic-specific chapters to establish overall Plan priorities for the first year of implementation. Given that. it is important to recognize that successful plan implementation is a combination of good planning and seizing opponunities as they arise. As we work together to implement this Plan, we must be flexible and adapt annual objectives to opportunities that come along. The closure and conversion of military bases in Alameda County is one such time-limited opportunity. Other examples include the availability of funding sources with specific funding targets, or increased political suppon for one piece of the continuum at any given time. The priorities in each section and the overall Plan priorities were determined by balancing recommendations from the working committees and the Continuum of Care Working Group; views expressed in the homeless surveys and in public comment settings; and current opportunities. Each year the Continuum of Care Council, recommended in the Plan Administration chapter below, will review the progress on achieving the goals of the Plan and create an annual list of priorities to take into account progress, changed realities, and new opportunities. Some priorities are county-wide (e.g. systems changes in health care) while some focus on specific geographic subregions of the county andlor subpopulations (e.g. multiply diagnosed single individuals in East County). Some of the goals identified in the first year will take . more than one year to achieve. In those cases, the intent is to begin work on the action step~ or, at a minimum, to explore feasibility in greater depth during the first year. Structure of Goals and Actions The goals of the Plan fall into four main categories: . Maintenance. of current capacity . Improvement/strengthening . Expansion . Advocacy Alameda County-Wide Homeless Continuum of Care Plan: April 1997 66 . . Chapter 5: 1997 Plan Priorities Maintenance of Current Capacity: A clear priority throughout the county is the maintenance of the current capacity of the system. This means that the current number of shelter beds, permanent supported housing units, residential treannent beds, multi-service centers etc. must be maintained. Creating new capacity will not result in a net increase if at the same time we are losing capacity elsewhere. This does not necessarily mean supporting all of the same providers to provide the exact same services in their current locations. Services which cannot meet minimum standards with training and technical assistance once those standards have been set, should be replaced. Services may be able to be delivered in a more cost effective, yet still effective, manner or may be better suited to a different location. What this priority does mean, however, is that as grant terms expire, funding is lost, or other challenges arise, we commit to preserving the ability, at a minimum, of serving the same number of people that are currently served. The priorities pulled out for the first implementation year assume maintenance of effort under a variety of programs that are not homeless specific, such as fair housing and tenant/landlord counseling and development of permanently affordable rental housing targeted to very low- income people. . Improvement/Strengthening: These recommendations address the issues related to improving and strengthening current providers in the homeless continuum of care, and improving the -. system itself. In some cases, panicularly the area of health care, these recommendations have to do with reorienting and redirecting existing services in a more effective way to meet the needs of homeless people. Included under this recommendation area is the comminnent to increase involvement of services consumers and housing assistance recipients in the planning and iIrlplementation of all activities contemplated by the Plan. _ ExpansionlNew Program Creation: Recommendations for the expansion of the current system are intended to fill critical gaps in the continuum and serve those who are underserved. The planners recognize that expansion efforts must be carefully targeted as we face reductions in funding and support. Nevertheless, certain areas of the Continuum are so underserved that expansion must be considered to meet the growing need. This is particularly critical to consider when special or time-limited opportunities to expand the .service or housing base emerge. Advocacy: Recommendations under advocacy are both part of supporting priorities under the above categories (such as advocacy for sufficient funding to maintain current capacity) or actions in.and of themselves, such as advocacy work undertaken to increase community understanding of homelessness and support of .programs and housing to assist homeless people. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 67 Chapter 5: 1997 Plan Priorities e Housing/Transitional Housing/Shelter Year One Goals . . . Maintain the current capacity of the system: Review funding streams of shelters, transitional housing, and penn anent supported housing annually to pinpoint expiring federal grants and assist in planning to fill projected service gaps. Future expiration of Shelter Plus Care grants is of panicular concern due to the high numbers of people served under these grants and the long-tenn needs of their target populations. ." Expand prevention activities: Expand existing programs providing shon-tenn rental assistance, rental guarantee, move-in costs, and housing scholarships, to homeless and very low income people. Expand the number of shelter beds/transitional housing units for particular subpopulations/in particular geographic subregions of the county. A high priority is the development of shelter beds/transitional housing in South and/or East County which are targeted for families, the mentally ill, AOD or dually diagnosed individuals. Depending on what other opportunities arise the following are additional year one. priorities: e::' Shelter Beds n. - . ... In North County, priorities for new shelter beds include youth, mentally disabled, alcohol and other drugs, and dually diagnosed. ... In Mid County, priorities for new shelter beds include youth, alcohol and other drugs, and dually diagnosed. ... In South County, priorities for new shelter beds include small shelter/transitional housing project(s) for families, mentally disabled, alcohol/other drug, and dually diagnosed. ... In East County, priorities for new shelter beds include small shelter/transitional housing project(s) for mentally disabled. alcohollother.drug, and dually diagnosed. ... In all areas of the County. shelter beds and halfway houses are needed to house those leaving jailor prison so that they do not end up on the streets. ".:- . ~ . .,- :. .w: Alameda County-Wide Homeless Continuum of Care Plan: April 1997 68 .':: :~<~. -:~:; ':,."-' . Chapter 5: 1997 Plan Priorities Transitional Housin~ . . .. In North County, new transitional housing priorities include programs targeted to veterans, and mentally ill, alcohol and other drugs, and dually diagnosed. .. In Mid County, new transitional housing priorities include single adults of both sexes and possibly youth. .. In South County, new transitional housing priorities include families with children, mentally disabled, alcohol and other drugs, and dually diagnosed. possibly combined with emergency shelter opportunities for the same target population. .. In East County, new transitional housing priorities include mentally ill, alcohol and other drugs, and dually diagnosed, possibly combined with emergency shelter opponunities for the same target population. Expand the number of units of permanent supported housing for particular subpopulations/in particular geographic subregions of the county. A high priority under this expansion area is for additional units in North County for the mentally ill, AOD, and/or dually diagnosed populations. Depending on what othef opportunities arise the following are priorities: .. In Mid County, new supported housing priorities include youth. In South County, new supported housing priorities include mentally ill, alcohol and other drugs, and dually diagnosed. In East County, new supported housing priorities include mentally ill, alcohol and other drugs, and dually diagnosed. -. .. .. Incomes and Employment Goals . . . Maintain existing homeless enterprises established to train and employ homeless people. Support them by providing sole source local government contracts fOf goods .and services they provide. Expand and improve existing homeless targeted workforce development efforts. Increase existing homeless work force development efforts, and ensure they are funded to provide a full range of needed services, including: outreach, vocational counseling and assessment, a range of work skills training and education, work readiness, a range of internship and apprenticeship opponunities, work culture orientation, literacy training, resume preparation, job search and placement support, Job Club activities, and follow-up to track job retention. Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 69 Chapter 5: 1997 Plan Priorities . · Advocate to ensure that Self-Sufficiency Centers established under Alameda County Welfare reform effort, PIC One-Stop Care Centers and other County training/placement programs provide information and referrals, job listings and resume services in a manner that meets homeless peoples needs. · Advocate for lengthened training time for those on GA and T ANF SO that they can realistically achieve work readiness and employment goals. · Explore the benerrt and feasibility of required homeless hiring targets or preferences in awarding contracts to contractors, service providers and housing operators that employ homeless and formerly homeless people. Support Services Goals . Maintain and improve existing multiservice centers. Expand resources for a package of basic services. Ideally, all of the following services would be available to homeless people in, near, or through each multiservice center: .. Showers and restrooms .. Mail and messages .. Phone, individual voicemail, and other telecommunications .. Haircuts .. Clothing .. Furnirore & other housewares .. Client education .. Legal assistance .. Storage of personal items .. Links to health care .. Personal assistant services for disabled people .. Crisis counseling .. Recovery and mental illness counseling services .. Information .and referral .. Access to respite services .. Reading material . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 70 ..-- ': -'" --....- . Chapter 5: 1997 Plan Priorities . Establish new multiservice centers. Establish at least two new multiservice centers outside of Oakland and Berkeley. Each new center should provide daytime shelter, be open at least 9:00 a.m. to 5:00 p.m., Monday through Friday, and to the extent possible, provide the minimum package of services listed above. Establishment of these Multiservice Centers should be coordinated as appropriate with the Self-Sufficiency Centers, PIC One-Stop Centers, Family Resources Centers and other programs which provide multiple services to low-income people. Ideally, these centers should be housed at the same locations and should share administration and services whenever possible. . Expand homeless people's access to government food programs. Expand homeless people's access to existing government subsidized food programs, including Food Stamps, WlC, School Breakfast and Lunch, Summer Food. Child Care Food, Senior Congregate and Home Delivered Meals, and free commodities programs. Encourage all providers to refer homeless people to all food programs at their first point of contaCt with the homeless service delivery system. Provide training and technical assistance materials to providers in all parts of the county on food program eligibility criteria and how and where to apply. . . Expand availability of subsidized child care. Provide more free or low cost quality child care in coordination with the housing, vocational, and service objectives of homeless caregivers. The goal is to provide all homeless families who need it with child care, especially those enrolled in case management. . Maintain and expand access to affordable transportation. Support existing agency programs that provide transit passes or tokens to clients in support of service plan objectives. Provide education and informational materials to homeless people and services providers regarding eligibility for discount passes, bus tickets and parattansit services to ensure they are utilized by those eligible. Explore establishing a county-wide program to provide free or reduced cost transit passes to homeless people. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 71 Chapter 5: 1997 Plan Priorities . Integrated Health Care Priorities . Maintain and support existing crisis management, outreach and intervention which provide mobile health services and referrals at parks and homeless service sites all over the county and pays health providers to treat homeless people they refer. . Maintain and Support the existing 24 bour, county-wide Alcohol and Drug crisis hotline and Publicize its availability county-wide. . Establish at least one new multidisciplinary health team for underserved areas of the county. Specific locations will be determined in the planning process. Each team will include a mental health technician, AOD specialist, health coordinator and peer (homeless or formerly homeless) outreach worker, providing care to homeless people in an integrated "whole person" way. Ties with off-site non-profit providers will be established to provide a broader range of support services to clients than the teams themselves provide. The teams will move from site to site on a rotating basis, although specific teams may be based at particular sites. . Expand the number of AOD pre treatment, detox, outpatient, short-term residential, and long-term residential treatment slots. Special priority should-be given to" increasing beds for dually diagnosed homeless people and programs that accommodate single parents with children. ACCess to beds should be flexible without regard to geography. . Plan Ailmini~tration Priorities . Establish a Continuum of Care Council. Establish a county-wide Continuum of Care Council as a focal point for county-wide inrerjurisdictional coordination to accomplish the five-year Homeless Continuum of Care Plan. The County should provide staffing to the Council during the first year of Plan Implementation, during which alternative means of funding and staffing should be explored. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 72 . . Chapter 5: 1997 Plan Priorities . Coordinate and streamline the funding process. Streamline the funding process to achieve Savings and efficiencies for'the Continuum of Care. Currently agencies must spend significant amounts of time preparing funding applications for different sources in order to apply on the required fonns and applications. ... Coordinate funding streams: Coordinate funders and providers around Continuum of Care objectives. Create a rationale distribution of resources: identify relationships between providers and funders (including jurisdictions) that are rational and complementary and broker these relationships if they do not already exist. ... ' Coordinate application fonns: Explore creating a single "core" application form, requesting uniform information. Funders could add to this "core" as needed. The core application would ease the administrative burden on agencies and facilitate unifonn data reponing. ... Coordinate McKinney applications: Build on current efforts between the jurisdictions to coordinate federal McKinney homeless funding applications. Ensure that Continuum of Care priorities are reflected in these applications each year. Use this common process for other federal funding applications. Explore creation of a single county Consonium for McKinney funding. . . Begin to establish minimum standards of care applicable to all Continuum of Care providers. Standards are needed to enhance the value for homeless people of services, shelter, and housing provided. All standards will be developed through a community-wide, consensus-building process with strong participation by homeless people, and build upon existing minimum standards in use in the county. If it is not feasible to draft standards of care for the entire continuum in the first year, a high priority is to establish minimum standards of care for all shelter providers regarding' such topics as grievances. mutual rights and responsibilities. client panicip~tion and empowerment. privacy, and health and safety. . Encourage new partnerships and collaborations among providers. Explore jointly the benefits of consolidating certain common functions of related agencies. including bulk purchasing of supplies and food and shared bookkeeping and other administrative activities . Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 73 Chapter 5: 1997 Plan Priorities . Develop an integrated management information system. Develop a county-wide, integrated management information system (MIS) to improve service delivery by enhancing communication between Continuum of Care agencies, jurisdictions, and homeless people. The MIS should build on existing systems in the county and feed into the Bay Area regional MIS being developed under the Regional Innovative Homelessness Initiative. In the first year, review and improve existing data collection instruments, develop minimum MIS standards applicable to all Continuum of Care agencies, develop minimum standards for protection of the privacy and confidentiality of clients, and conduct an inventory of all providers current capacity to meet all minimum standards and system requirements to identify any training or resources needed to fill the gaps. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 74 . '-". ,.- ..,,; , " ~::~ ,", .... \".' ... ". ..... : I&~ _: -. , '.- -.' ...- , .- .'-:::' -." .... nO' . . CHAPTER 6 Housing/Transitional Housing/Shelter . "l need housing ofmy own and. help with the deposit. .. Homeless motherof2 in (FESCOJ, 1996 . Chapter 6: Housing and Shelter . HOUSING/TRANSITIONAL HOUSING/SHELTER Introduction The need for and supply of affordable shelter and housing are not fixed. They are constantly evolving, impacted by changes in the economy, in income support programs, and in the social fabric. This section outlines current needs and resources, but we need to constantly monitor and ensure that our priorities and actions reflect these changes. For most people, housing is typically the largest single expense in the household budget. Federal, state, and local housing programs frequently require that low-income households should pay no more than 30 percent of their gross income toward housing costs. Often, poor households in unsubsidized units spend 50 to 75 percent of their incomes on housing alone -- a crisis situation for these households where the dire choice is between paying for shelter, paying the heating bill, or buying food and medicines for the family. An intimate relationship therefore exists between incomes and housing in the lives of poor people in Alameda County and elsewhere. The higher housing costs rise, or the more income supports and job opportunities for poor people are cut, the less disposable income poor households have for other life purposes, including education, food, health care, and retirement savings. Low-income, working families may be one pink slip away from being able to keep their current housing situation. If they lose their housing, they may lose their social networks through relocation, face strained relations due to doubling up or the psychological problems that all too often result from the mental stress of unemployment and homelessness. . Even when housing is available and a household can afford the rent payment, there are barriers which make it difficult for the household to obtain and maintain the housing. The move-in costs of first and last month's rent and security deposit are a formidable barrier to poor households that have difficulty making ends meet each month. Once in housing. any crisis, such as job loss, health emergency, or alcohol or drug relapse, can cause the household to begin the spiral back into homelessness. The county housing system faces a crossroads. The perceived and documented need for expanding the supply of affordable housing throughout Alameda County has never been greater. Yet the passage of federal welfare reform, calling for dramatic and far-reaching funding reductions in income suppon programs for poor people, people with physical and mental disabilities, and immigrants threatens to unleash a tidal wave of newly impoverished households that could overwhelm the Continuum of Care system just as preparation of comprehensive improvements to the system is undertaken. As noted in the Income and Employment section of this plan, creating the jobs to replace this lost income will be difficult at best in today's economy. Alameda COlDlty-Wide Homeless Cominuwn of Care Plan: April 1997 75 . . Chapter 6: Housing and Shelter Other uncertainties for housing and homeless programs abound, including: . No growth or declines in CDBG and HOME; . Cuts to Section 8 vouchers and certificates; . Cumulative effects of conversion of private sector rental units to market-rate housing: . Cumulative effects of no new affordable public housing unit construction in nearly a generation; . Potential termination of project-based Section 8 housing subsidies, and its local impact around Alameda County; . Substantial uncertainties about the details of block granting of McKinney Homeless Assistance Act program funds, with possible. significant reductions in funding for jurisdictions which have had competitive success under past funding methods; . Uncenain prospects for future housing development resources under McKinney block granting; and, . California Tax Credit Allocation Committee changes that have resulted in less tax credit funding for Bay Area housing developments. . The Alameda County Continuum of Care Plan seeks to confront the swelling ranks of homeless people and families with a strong comminnent to marshal all of our forces, to make every possible effon to meet the need, to preventing new waves of homelessness, and to ensure a long-term increase in the supply of affordable housing throughout the county. Recommendations Housingrrransitional Housing/Shelter recommendations are grouped under the following tOpICS: . . . . . . Prevention Activities and Short-Term Rental Assistance Shelter Transitional Housing Permanent Affordable Housing Permanent Supponed Housing Neighborhood and Community . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 76 Chapter 6: Housing and Shelter . First Year Goals · Maintain the current capacity of the system: Review funding streams of shelters, transitional housing, and permanent supported housing annually to pinpoint expiring federal grants and assist in planning to fill projected service gaps. Future expiration of Shelter Plus Care grants is of particular concern due to the high numbers of people served under these grants and the long-term needs of their target populations. · Expand Prevention Activities: Expand existing programs providing short-term rental assistance, rental guarantee, move-in costs, and "housing scholarships", to homeless and very low income people. . Expand the number of shelter beds/transitional housing units for partiCUlar subpopulations/in particular geographic subregions oftbe county. A high priority is the development of shelter beds/transitional housing in South and/or East County which are targeted for families of the mentally disabled, AOD or dually diagnosed individuals. All general shelters should review their programs for how they can better serve people with HIVand other disabilities and veterans. . Expand the number of units of permanent supported housing for particular subpopulations/in particular geographic subregions of the county. A high prioritY under this expansion area is for additional units in North County for the mentally ill, AOD. and/or dually diagnosed populations. -- .:,-:- Five- Year Strategies and Action Steps Topic 1 Prevention Activities & Short~ Term Rental Assistance .. '., '. . ..". Prevention activities target help to those who are currently housed but are facing a crises which, without assistance, may lead to the household imminently becoming homeless. As shown in Chapter 4, current invesmem in prevention efforts constitutes less than one percent of funds spent on homeless services. An increase in prevention effort:s may save money from more costly programs needed once a household has become homeless, and will save individuals and families from going through the pain and dislocation resulting from an episode of homelessness. --- -- " Alameda Counry- Wide Homeless Continuum of Care Plan: April 1997 77 .--: . Chapter 6: Housing and Shelter The activities to prevent additional homelessness should include: . Efforts that increase the capacity of existing services to prevent homelessness in the County, focusing on two aspects: .. ways in which infonnation about prevention services is readily and effectively accessible to people facing a housing crisis; and .. ways in which infonnation about prevention services is readily and effectively accessible to other agencies active in case management along the continuum. . Advocacy at other levels of government to increase the availability of homelessness prevention services in California; and . Maximum available investment of financial resources in the prevention of homelessness by providing short-tenn rental and utility assistance. Short-tenn rental assistance activities should use flexible approaches to providing assiStance to those at risk of eviction for demonstrably economic reasons. They should target the financial assistance to a variety of special needs populations~ For those hardest to house, assistance should be linked either with training in independent living skills or arranged through a payee service so that even people who are hard to house can at least avoid eviction due to nonpayment of rent. . . Expand homelessness prevention efforts. . -. Action Steps ... Maintain and expand existing programs providing at -risk people with shon-tenn rental assistance, rental guarantee, move-in costs, and "housing scholarships'" which provide a break on rent for a specified period of time while panicipants go to school or get job training. Consider the creation of a revolving Homeless Prevention and Housing Placement Fund to provide grantslloans to prevent displacement and to assist displaced households to move into housing. Maintain and expand eviction-related legal services such as eviction defense and mediation cases. Maintain, expand, and support and enhance existing efforts to counsel and educate tenants and landlords about available rental assistance, rights and responsibilities, and fair housing laws. Train staff to monitor people coming out of institutions, such as jails, mental institutions, hospitals, juvenile detention, and foster care, and refer them to housing, services, and sources of income. .. .. .. Alameda County-Wide Homeless Continuwn of Care Plan: April 1997 78 .; - . Chapter 6: Housing and Shelter . Topic 2 ~ Maintain and expand programs to make housing grants to cover very low- income people's rent they are staying at residential treatment sites for drug and/or alcohol addiction. Shelter Emergency shelter is a critical component in the continuum of care and there will probably always be some level of need for shelter services. Different shelter agencies approach the provision of shelter differently, based on the capacity of the agency providing services, its philosophical ideas regarding need, and/or federally/state/Iocally-defined requirements for target population. Shelters are the least regulated in terms of level of care, service package, facility types, and staff capacity, etc. The absence of standards of care has resulted in great variety in QUality and effectiveness of shelter services in both meeting the minimum needs of homeless people and in assisting them in moving on to more stable living. . Maintain the existing supply of shelter bed capacity and improve the existing shelter system. Action S~ps . ~ Review funding streams annually to pinpoint expiring federal grants ~d assist in planning to fill projected service gaps. . Establish community-developed minimum standards of care for all shelter providers regarding such topics as grievances, mutual rights and responsibilities, client panicipation and empowerment, privacy, and health and safety . Expand resources for shelters to meet minimum standards and provide an appropriate mix of in-house case management, support services, and community building services. Develop training and technical assistance materials to assist shelters in meeting the minimum standards and to strengthen the programmatic, administrative, and financial capacity of shelters to operate more efficiently and better serve homeless people. ~ ... .. . To the extent resources allow, expand the supply of sheher beds according to geographic and target population need. Alameda ColDlty- Wide Homeless Continuum of Care Plan: April 1997 79 e: . Chapter 6: Housing and Shelter From Chapter 3 of this plan, it is estimated that families make up between 30-49% of the homeless population. Fony-nine percent of the shelter beds in the county serve families. These beds are distributed across the county in roughly equivalent proponions to the estimated homeless population, though there is a smaller ratio in North County and a higher ratio in South and East. From Chapter 3 of this Plan, it is estimated that 38-48% of the county's homeless population have alcohol or other drug problems and 22-42 % have moderate to severe mental health problems. In addition, there is a high percentage of these people who are dealing with both alcohol/other drug problems and some form of mental iIIness (19-40% of total homeless). HIV infection is estimated at 15-25 % of the total homeless adult population. For women, domestic violence is a major cause of homelessness, affecting 22-60% of homeless women. Veterans make up approximately 34% of the homeless population (primarily male veterans). While many of the .. general" or un-targeted shelter beds can and do serve portions of these subpopulations, in many cases people are more comfortable or more willing to get services from shelters that are targeting people with their specific needs. Many general shelters also find themselves unable to deal with the complex needs of some subpopulations, such as those dually diagnosed with both mental illness and alcohol or other drug problems, and those released from -prison with no where to go. Targeted beds for people with one or more special needs or disabilities are in panicularly shon supply outside of Berkeley, Oakland and Hayward. . . Action Steps .. In North County, priorities for new shelter beds include youth, mentally ill, alcohol and other drugs, and dually diagnosed. In Mid County, priorities for new shelter beds include youth, alcohol and other drugs, and dually diagnosed. In South County, priorities for new shelter beds include small shelter/transitional housing project(s) for families with children, mentally ill, IDcohollother drug, and dually diagnosed. In East County, priorities for new shelter beds include small shelter/transitional housing project(s) for mentally iII. alcohol/other drug. and dually diagnosed. All general purpose shelters should review their programs for how they can bener serve people with HIV and veterans. with possible expansions to these target groups. Increase the supply of emergency motel and hotel vouchers available in all communities. Make at least some available to persons released from prison for use while qualifying for shelter or rehab programs. Advocate for a State winter armory shelter program. .. .. .. .. -.. .. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 80 Chapter 6: Housing and Shelter . Topic 3 Transitional Housing Transitional housing is key for many homeless people to get back on their feet and end the cycle of homelessness. Transitional housing provides individuals and families with a time- limited (usually 12-24 months) living situation or subsidy and accompanying support services to assist the household to reach self-sufficiency. Transitional housing with support services can be provided in two different ways: Site-based transitional affordable housing with on-site (and sometimes additional off-site) services, and transitional rental assistance to people in market housing accompanied by service coordination and off-site services. Site-based transitional housing has the potential benefits of more intensive service suppon program and strong community-building. It has the downside that residents must then locate affordable permanent housing, and disrupt their service and community connections when they move. Transitional rental assistance has the benefits of not dislocating people after the transitional period is up (assuming they can then afford to pay the rent on their own) and so providing for increased continuity. Both forms of transitional housing can be effective and it may be that the different forms are most helpful to different types of homeless people, depending on their service needs and ease of transitioning to self-sufficiency. Chapter 3 of this plan contain several tables which outline the available transitional housing in the county, by subpopulation and geography. These tables show a shortage of transitional housing throughout the county, especially for families and people with multiple diagnoses, -- with an acute shortage of all types of transitional housing beds in South County. With welfare reform potentially increasing the number of homeless families, app~opriate transitional housing will be even more critical. Chapter 4 indicates that only 12 % of homeless funds in the continuum now go to suppon transitional housing and transitional services. e.. . Support and improve the existing transitional housing system. Action Steps _.- ... Maintain the existing supply of transitional housing. Annually monitor expiration of federal grants ,and plan to fiU projected gaps in service as needed. As pan of better connecting points along the continuum, create a systematic form of referral to transitional housing to ensure vacancies are filled quickly, the system is used to maximum capacity, and that people are directed to the most appropriate housing available. Create a system to follow-up and support program graduates to ensure they retain permanent housing. ... .. Alameda County-Wule Homeless Continuum of Care Plan: April 1997 81 .:::. -- ". -" &"... . ~ . Chapter 6: Housing and Shelter ... Establish community-developed transitional housing standards of care specific to each service population, on program struCUlre and rules, including grievances. mutual rights and responsibilities, client panicipation and empowerment, privacy, and health and safety. ... Develop training and technical assistance materials to strengthen the programmatic, administrative, and financial capacity of transitional housing to better serve homeless people and to meet minimum standards. ... Create additional mobile multi-disciplinary teams to provide increased service levels at site-based transitional housing programs and to provide services where concentrations of non-site based transitional housing clients are located. (These could build off of or be separate from existing mobile teams or new mobile teams called for in the health chapter of this Plan.) . Expand the supply of transitional housing according to geographic and target population needs while taking advantage of time-limited opportunities. '" . As a system, new opportunities should focus on providing transitional services and transitional rental subsidies in permanent housing to avoid the problem of there being no permanent affordable housing to move into from transitional housing sires. This could be partially accomplished through the creation and strengthening/expansion of mobile, multi-disciplinary teams for services. This ieam could also serve as a homeless prevention mechanism by providing a minimal level of services permanently available so that people are already connected to services to help them weather crises and remain housed. The teams are also seen as a way of strengthening the service package of existing site-based transitional housing providers. More site-based transitional housing opportunities are also needed. Action Steps ... Create additional portable, transitional rental assistance and accompanying case management and suppon service programs. ... Create more site-based transitional housing for underserved sub-populations and where needed geographically for particular sub-populations that can especially benefit from intensive services and community building, 'such as survivors of domestic violence, those with substantial mental health or drug/alcohol abuse problems, dually diagnosed people, and parolees. An emphasis on site-based programs also may be necessary in those areas of the county where market rents make rental assistance programs less effective. .. Take advantage of time-limited opportunities afforded by military base closures and other surplus properties to develop transitional housing. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 82 Chapter 6: Housing and Shelter . . Topic 4 .. In Nonh County, new transitional housing priorities include programs targeted to veterans, and mentally ill, alcohol and other drugs, and dually diagnosed. In Mid County, new transitional housing priorities include single adults of both sexes and possibly youth. In South County, new transitional housing priorities include families with children, mentally ill, alcohol and other drugs, and dually diagnosed, possibly combined with emergency shelter opportunities for the same target population. In East County, new transitional housing priorities include mentally ill, alcohol and other drugs, and dually diagnosed, possibly combined with emergency shelter opportunities for the same target population. Convene county jurisdictions by subregion to identify funding sources and hold joint RFPs for nonprofits to develop regional serving transitional housing programs. .. .. .. .. Expand support services available in transitional housing. Action Steps .. Increase and stabilize funding for suppon services in transitional housing; tap into the mobile multidisciplinary teams described under Permanent Supported Housing below to expand services available. ./, Pennanent Affordable Housing The availability of permanently affordable housing is, arguably, the most critical step in the continuum of care system. Without housing that remains available and affordable to lower income households - regardless of the other components of care that may be needed to assist in the on-going stabilization of the homeless or at-risk household -- the cycle of homelessness may continue to repeat. Affordable housing traditionally means that a household pays no more than 30% of adjusted gross income on housing costs (e.g. rent, utilities, etc.). As previous smdies have shown, many households - especially those with the very lowest income levels - pay excessive proportions of their incomes for rent and related housing costs. Some households who become homeless, may be able to secure non-subsidized, market-rate housing by paying overburdensome rents; however, this living simation often becomes too financially difficult and lends itself to creating households at risk of becoming homeless again. By stabilizing the housing costs to a household with limited income, their vulnerability to shon-term crises or housing market forces is greatly reduced and their ability to provide for other basic necessities (e.g. food, health care, etc.) is greatly improved. . . ~:~ ~~~ ":: ::": . . '. Alameda C01Dlty- Wide Homeless Continumn of Care Plan: April 1997 83 ....: .- . 0" ~~. . Chapter 6: Housing and Shelter Affordable housing is in short supply throughout the county. as demonstrated in Chapter 3. However, very high cost housing markets reduce the supply of affordable housing further and make rental assistance programs a more limited alternative. Increases in housing costs often occur when the economy is stronger. Rents went down somewhat in the early '90s with the recession and had made Section 8 and other assistance programs more desirable to many landlords. These trends have started to reverse and rents are going up while vacancy rates are decreasing again. South County, in close proximity to the Silicon Valley. faces an extremely 'high rental market, and some landlords that had previously accepted Section 8 are no longer willing to do so because of the limitations placed on the rents they can charge under that program . The need for long-term, subsidized rents becomes even more critical in light of recent cuts in existing income support programs and the looming crisis posed by the passage of the 1996 Welfare Reform Law. Given the restructuring of entitlement programs as we have understood them and, in some cases, the denial of such benefits to persons who have historically been eligible to receive such income suppon, a larger segment of the low income population will become homeless for the first time. . The development of affordable housing is a long-term process and fraught with difficulty on a number of levels. Aside from difficulty in finding suitable land and overcoming neighborhood barriers which often arise in the siting of these developments, a major obstacle has been the- lack of financing available to create projects serving very low and extremely low income households. In recent years, the federal and state programs previously available to finance the development of affordable housing have become more difficult to access (e.g. Low Income Housing Tax Credit Program) or have run out of money (e.g. State of California Rental Housing Construction program and/or Housing Rehabilitation Program, etc.) With the prospect of new State housing programs looking highly unlikely, the need for an additional source of development financing becomes even more imponant. The Low Income Housing Tax Credit (LIHTC) program has recently been the primary resource for funding new affordable housing development in California. Recent changes to the Qualified Allocation Plan (QAP) have shifted the emphasis away from urban/suburban areas characteristic of most of Alameda County . As, a result of changes in the QAP, the majority of tax credits in the last two funding cycles have gone to projects in rural areas (where development costs are relatively low) and in the Los Angeles area (where emergency earthquake relief funding has boosted the local share funds). A coordinated, multi-jurisdictional advocacy effort is needed in order to change the QAP so that projects in Alameda County have a fair chance of obtaining furore tax credits to develop or rehabilitate affordable housing. . Alameda County-Wide Homeless Cominuum of Care Phn: April 1997 84 Chapter 6: Housing and Shelter . There have similarly been recent sweeping changes in the funding of various federal and state programs which serve the homeless either directly or indirectly. The jurisdictions in Alameda County must work together to advocate in favor of continued funding of important programs and against cuts to federal and state programs which address homelessness and affordable housing. At the local and sub-regional levels, a cooperative effon is also needed to coordinate the timing of funding cycles to facilitate the funding of local projects and maximize leveraging of funds from a variety of sources. EffortS to promote awareness of the issue of homelessness and improve public perceptions of homeless and affordable housing projects will help remove impediments and create an environment where program success is enhanced. Strengthening and building the capacity of existing nonprofit organizations is critical to the success of future funding initiatives leading to the development of more permanent affordable housing. It has long been recognized that nonprofits build some of the best affordable housing in the Bay Area. But this is not an easy task, and affordable housing development requires highly skilled and dedicated people. This is true of staff, as well of the people who sit on the organizations' governing board. Building capacity means providing training in matters related to housing finance, land use law, architecture, construction, and public policy. It means developing the skills to work with individuals, neighborhood groups and institutions that will be affected by future development. It also means securing the funding necessary to develop decent wage and benefit packages and the technical suppon and equipment necessary to maximize efficiency and streamline the development process. .. e. . Maintain and improve the quality of and access to the existing supply of housing affordable to the lowest income residents. Action Steps .. Explore establishment of a voluntary direct rent payment program, whereby public benefits recipients can choose to have a ponion of their monthly check paid as rent directly to their landlord. This type of program provides landlords with greater security that they will receive rents on time and can be linked to stabilizing rent levels, and to health and safety monitoring of participating units. Develop rental guarantee programs through which service provider agencies can assist homeless people with sufficient income to rent housing without need of a subsidy, but with poor credit or rental histories, or with felony convictions which make it difficult for them to get a lease. .. Alameda County-Wide Homeless Cominuwn of Care Plan: April 1997 85 ..:. : . Chapter 6: Housing and Shelter . . Work with Housing Authorities to explore methods to maintain the existing supply of Section 8 and the existing number of public housing units for homeless and very low income people and for people in danger of losing benefits as a result of welfare reform. Consider waiting list set-asides or preferences for homeless and very low income people, maintaining existing Public Housing, implementing one-for-one replacement, and increasing stocks targeted only to homeless or very low income people. Include one-for-one replacement rules in local Housing Elements, applicable when affordable housing is demolished. Suppon advocacy efforts at the federal level for increased funding for Public Housing and Section 8 subsidized housing, against demolition without replacement of public housing, for homeless and very low income preferences, and for increased stocks targeted only to very low income people. Track expiring rent and/or use restrictions in existing affordable housing developments, identify potential "opt out" projects and work to ensure continued provision of lower rent units. Establish a capacity building network among county nonprofit affordable housing developers to provide training and technical assistance materials to strengthen their programmatic, administrative, and financial ability to maintain and improve existing buildings and build new ones. -- Determine the impacts of reductions in income suppon programs on low- income housing (and panicularly SRO) rent levels, vacancy rates and long-term feasibility and work to minimize negative impacts. - -. . . . . .. . Expand the supply of housing affordable to the lowest income residents. . Action Steps . Support existing Affordable Housing Trust Funds and explore creation of a county-wide fund and/or funds in jurisdictions which do not currently have them. The Affordable Housing Trust Fund(s) should have dedicated source(s) of funding, Give priority for funding to providers of existing and developers of new homeless transitional housing, homeless permanent supported housing, and affordable housing targeted to homeless and the lowest income residents. . Suppon efforts to take advantage of time-limited opportunities afforded by military base closures and other surplus propenies to conven vacant housing units to permanent, affordable Dousing. Alameda CoUDty- Wide Homeless Continuum of Care Plan: April 1997 86 Chapter 6: Housing and Shelter . Permanent supported housing is intended for populations expected to need relatively intensive services for an extended period of time or permanently, as opposed to independent permanent housing which can be linked to suppon services through I&R, low intensity referral, and .- community building activities. Permanent supported housing is a critical piece of a continuum of care that can effectively address and, ultimately, end homelessness. While a large segment of the homeless population can achieve stability and permanent housing through a combination of emergency and transitional programs with affordable permanent housing, there is also a segment of the homeless and near-homeless populations that faces significant ongoing challenges in remaining housed. Topic 5 .. Support advocacy efforts at the state and federal level for expansion of the federal low income housing tax credit; and at the state level for expanding the state low income housing tax credit and shifting its emphasis from rural to urban and suburban housing development, and for increasing funding for state housing programs. Review and revise local Housing Elements to enhance compliance with state-mandated affordable housing requirements. Also, review and revise zoning ordinances, permit processes, and other requirements to eliminate obstacles to and reduce costs for building affordable housing. Suppon the development of mixed-use and affordable housing for very low income and homeless people in transit-based housing and urban villages which link housing to public transportation and access to services. Support, utilize, and expand community acceptance building programs to increase public support for siting of housing for homeless and low-income households. .. .. .. Pennanent Supported Housing .'. '. . .. '. .' The value of linking services to permanent affordable housing to ensure that individuals and families remain housed is widely recognized. Linldng needed services to affordable housing can provide some benefit to most low-income households and the level of service provided in supportive housing programs can vary significantly, ranging from limited information and referral, to child care and resident activities programming, to ongoing on-sire case management and daily personal care. The most critical role for permanent supportive housing in the continuum of care is to serve those individuals and households that face the greatest barriers to remaining housed. Some ofethe groups we have identified as benefiting most from permanent supported housing are as follows: Alameda ColDlty- W1de Homeless Continuum of Care Plan: April 1997 87 e:::: . ..." . Chapter 6: Housing and Shelter . Individuals with mental disabilities; . Chronically ill individuals, including those with HIV / AIDS; . Individuals with chronic alcohol and drug problems; . Multiply diagnosed individuals; and . Frail elderly individuals. There are a variety of models for providing permanent supported housing. Some models are "project-based'" with services provided at a specific housing complex or linked to that site via transportation services. Other models are service-provider based and link services to existing permanent housing programs throughout the community. A mixed population approach offers opportunities to better serve some populations, but is often hard to fund due to the requirements and expectation of funding programs. It is important to encourage a variety of models and to ensure that supported housing is sited in a variety of neighborhoods throughout the community. . The greatest challenges to expanding the supply of permanent supported housing are 1) the lack of long-term, stable funding for the services component of supported housing, 2) the need for stronger links between affordable housing providers and programs and service providers, and 3) insufficient existing housing funding for new housing affordable to households at 35 % of area median income or below. Within Alameda County, people with psychiatric disabilities are frequently among those individuals who are homeless or at risk of being homeless. Without a home, people with severe psychiatric disabilities are more likely to be re-hospita1~d and/or incarcerated and housed in living situations against the person's ownwishes. This results in the cycle of streets to hospitals/jails to board and care and back to the streets. In addition, those severely mentally ill individuals whose communities are in the East and South areas have almost no supported or supervised housing options if family members can no longer provide housing. ~~ The lack of permanent supportive housing options has resulted in "tracking'" people with severe mental illness into institutional settings. The result has been an over use of primary and .acute medical and psychiaoic facilities for emergencies and more. frequent and longer stays in long-term care facilities. OJ As with transitional housing, permanent supponive housing can be site-based or long-term rental assistance with accompanying case management and support services. e Alameda County-Wide Homeless Continuum of Care Plan: April 1997 88 Chapter 6: Housing and Shelter .: · Support and improve the existing permanent supported housing system. . .. Topic 6 Action Steps .. Maintain the existing supply of permanent supported housing. Annually monitor expiration of federal grants and plan to fill projected gaps in service as needed. Future expiration of Shelter Plus Care grants is of panicular concern due to the high numbers of people served under these grants and the long-term needs of their target populations. Support collaborative efforts among providers to develop long-term sources of funding, such as MediCal and other managed care sources, for suppon services. Establish mobile multidisciplinary teams where needed in the county, to travel from building to building providing a range of suppon services, such health, substance abuse, and mental heath treatment, vocational, housing placement, peer suppon, and child care. (For details on planning and implementation, see the Health Chapter recommendation for multidisciplinary health teams.) to .. Expand the supply of additional pennanent supported housing for underserved sub-populations and where needed geographically. Action Steps .... ." to In North County, new supported housing priorities include programs'targeted to mentally ill, alcohol and other drugs, and dually diagnosed. In Mid County, new supported housing priorities include youth. In South County, new supported housing priorities include mentally ill, alcohol and other drugs, and dually diagnosed. In East County, new supported housing priorities include mentally ill, alcohol and other drugs, and dually diagnosed. Within the subgeographic and homeless population targets above, provide a variety of different supported housing models and options to meet the care needs and preferences of all homeless people who need supported housing, from lightly supported to 24-hour care and from group living to supervised board and care. Ensure that the severely mentally ill can receive appropriate care without leaving their own community, and that those with AIDS can receive appropriate care without leaving the county. Suppon efforts to take advantage of time-limited opportunities afforded by military base closures and other surplus properties to conven appropriate vacant housing units to pennanent, supportive housing. .... ," ...: .. - - .. '.... ,. ,.' .' , , .. ... ....: '. ' .. .. . '.~ . Neighborhood and Community e:;: ',' Alameda County-Wide Homeless ContinUlDD. of Care Plan: April 1997 89 ~ r -, .' _ r' &. __ _ . -., .' -".... . . Chapter 6: Housing and Shelter . Strengthen the community's understanding of homeless people and support for homeless housing and services. Action Steps . Support existing efforts to build the capacity of homeless housing and service developers to achieve siting, government approvals, and neighborhood acceptance of new developments. . Suppon and/or develop a public education campaign to improve public understanding of homelessness and the need for affordable housing and servIces. . Continue to serve elected officials by testifying, arranging site visits, and providing written infonnation about homelessness and affordable housing and service needs. . . Alameda County-Wide Homeless Conrlnuwn of Care Plan: April 1997 90 . CHAPTER 7 Income and Employment .~ 4lI'm looking for work, educationalopponunines, housing and dental care. I'm working very hard and. under a lot of pressure. ," Homeless in Berkeley, 1996 ," . . Chapter 7: Income . . INCOMES AND EMPLOYMENT Introduction Incomes for most homeless people and those at risk of homelessness are usually woefully inadequate for meeting basic needs, especially housing. Whether from work or public benefits, the income of poor people has not kept pace with the cost of living for the past twO decades. As a result, the ability to remain housed for poor households has been significantly undermined. For example, to make a one-bedroom apartment affordable according to HUD standards at the average rent in Alameda County of $651 per month, a person would need to earn a full time hourly wage of $12.51 per hour, or three minimum wage jobs. As many as 120.000 Alameda County households survive on less than the equivalent of 50% of the area median income; of those 66,000 households are at only 30% of area median income. For people in the county who are working at low paid jobs, unemployed, or living on public benefits, it is very difficult to remain housed. Reducing homelessness in this environment requires assisting those who are homeless or at risk of homelessness to access jobs with wages that pay enough to cover real living costs. This is panicularly difficult in an economic environment characterized by restructuring, "downsizing, ~ and teChnological change. In order to compete in today's evolving job market. many homeless people need job training or re-training, followed by aggressive placement into "living wage~ jobs, sometimes created specifically for them. Moreover, due to their: unique circumstances training and placement for homeless people must also be matched by basic services such as appropriate clothing and literacy training, as well as more intensive services such as child care, ongoing job mentorship, counseling and substance abuse treannent. Homeless families not only needjob assistance for the adult wage earner(s) but for the family members as well as the households transitions to work and its demands. Perhaps the most critical matching need is housing; it is difficult to imagine successfully completing job training while living on the street. ,. One of the myths that continues to exist regarding homeless people and those on welfare is that they do not want to work. Studies suggest the opposite: Most homeless people wish to work, and despite the difficulty of holding downii.'jobwith no home, many do. According to HomeBase's 1994 repon, Homelessness in the Bay Area, 14-22% of homeless people in the Bay Area work. This number is similar to the U.S. Conference of Mayors finding in 1996 that 19% of homeless people in America's cities work. Lack of adequate income to pay rent from a job was the reported cause of homelessness for 22 % of ESN survey respondents in 1994. -: -: Alameda COl.Dlty-WJde Homeless Continuwn of Care Plan: April 1997 91 ., .- Chapter 7: Income . Workforce development. job creation and placement are all the more critical given welfare reforms now taking place. Key public benefits serving needy people in Alameda County are Temporary Assistance to Needy Families (TANF) and General Assistance (GA). TANF is for families only and is also time restricted, barring receipt for more than two consecutive years for most families and with a life-time five year limit. In 1996, the T ANF benefit was cut to $594 per month for a family of four. The General Assistance benefit available to single adults was recently reduced to $221 per month. As of March 1996, there were a total of 113,057 Alameda County residents receiving TANF or GA, including 68,040 children. While the full impact of T ANF changes is not yet certain, many recipients, including large numbers of immigrants, will have their benefits either reduced, time limited, or eliminated. Simultaneously, GA benefits are being reduced to three months out of the year for those not in approved job training, placement, or work activities. Persons unable to work due to disability may receive Supplemental Security income (SSI). However, with the elimination of substance abuse as a basis for receiving SSI, as many as 2,6(X) county residents have already lost that benefit. .' .. . ~: With such major reductions to public benefits, Alameda County homelessness threatens to increase unless people really can get trained for, and employed in, good jobs. At the same time, significant numbers of those who cannot work or find a job will need to continue to receive or obtain income supports at a level high enough to survive. The following lays out a plan to begin to achieve these goals. ." .... .' r:: Recommendations Incomes and Employment recommendations are grouped under the following topics: . Income Supports . Workforce Development . Hiring Incentives and Job Creation . Economic Development .". ..:: First Year Goals . Maintain existing bomeless enterprises established to train and employ homeless people. .Support .them by providing appropriate sole source local government contracts for goods and services they provide. Alameda County-Wide Homeless Continuwn of Care Plan: April 1997 92 e::. ".' ........:: ':', , . ...... -I -I' Chapter 7: Income . Expand and improve existing homeless targeted work force development efforts. Increase existing homeless work force development efforts, and ensure they are funded to provide a full range of needed services, including: outreach, vocational counseling and assessment, a range of work skills training and education, work readiness. a range of internship and apprenticeship opportunities, work culture orientation, literacy training, resume preparation, job search and placement support, Job Club activities, and follow-up to track job retention. This could include establishing one or more new or branch homeless work force development programs in Mid and/or South County. and underserved North County areas such as West and East Oakland ideally in coordination with Welfare Reform Plans Self-Sufficiency Centers. . Advocate to ensure that Self-Sufficiency Centers established under Alameda County Welfare reform effort, PICOne-Stop Care Centers and other County training/placement programs provide infOlmation and referrals, job listings and resume services in a manner that meets homeless peoples needs. . Advocate for lengthened training time for those on GA and TANF so that they can realistically achieve work readiness and employment goals. . Explore the henein J1Dd feasibility of required homeless hiring targets or preferences in awarding contracts to contractors, service providers and housing- operators that employ homeless and formerly homeless people. Five Year Strategies Topic 1 Income Supports Inadequate income to meet basic needs, especially housing, is a leading cause of homelessness, and places many households at risk of becoming homeless. Income adequacy for all homeless people, therefore, is a primary goal for this plan. For most people this income must come from employment, and the majority of the recommendations in this section are intended to promote employment. But a large portion of the homeless population must rely on income supports at some time to meet their basic needs. For some who are homeless due to job loss, family break-up or other temporary :setback, these income supports are a temporary measure to sustain them through t:r31lSition and into employment again. For others who cannot work, or whose employment income is inadequate to meet family needs, income supports are a permanent pan of life. Alameda County-WIde Homeless Conrlnuwn of Care Plan: April 1997 93 Chapter 7: Income , Currently, the income support system for homeless people is inadequate and many kinds of support are difficult to obtain. In today's budget climate, however, it is unlikely that income supports will be increased or expanded. Therefore, these recommendation are limited to maintaining existing suppon levels and improving access for homeless people. · Maintain a minimum level of income supports for those who need it. . Action Steps .. Maintain GA monthly grants whenever possible and ensure people unable to work are not cut off; .. Ensure that GA recipients who are found to be employable but with significant barriers to work, including homelessness, language difficulties, addiction issues, etc. are given adequate time and support to stabilize their living situation and to train in areas of deficiency before being expected to work or being cut off assistance. .. Consider establishing a pool of funding to provide in-kind aid, such as hotel and food vouchers, for unemployed residents Dot qualified for any other benefits .. Advocate at the state level to maintain current T ANF benefit levels and eligibility criteria. .'. Strengthen efforts to increase homeless people's access to income from public benefits and ability to manage them effectively. ~. - \ Action Steps .. Fund legal services to help more homeless people apply for 5S!. Evaluate all GA cases for potential SSI eligibility~ and help those deemed eligible to apply. Expand efforts to help those terminated from SSI due to a substance abuse disability, to reapply under a different category. Conduct benefits clinics on a regular basis at homeless service sites in each subgeographic part of the county. Expand e~isting volunteer pools of students and pro bono lawyers providing public benefits application help to homeless people. Link these volunteers to the regular benefits clinics in each sub pan of the county. Provide training and technical assistance materials available to all homeless service case managers on how to assist clients to apply for 55!. Include materials on how to evaluate a client's potential for V A benefits and help the client apply for those .benefits. Provide more representative payees in homeless service agencies to receive client's public benefits checks.and to help the client save and spend wisely. .,;. ... .. ... .. Alameda Coumy-Wu:le Homeless Continuum of Care Plan: April 1997 94 ~.,. .... . Chapter 7: Income ... Establish a volunteer pool of tax preparers and business students to help homeless people apply for current and past federal Earned Income Tax Credits (EITC). Provide training and technical assistance materials to homeless service agency case managers on how to help clients apply for the EITC. Suppon organizations serving homeless people that are developing or have developed a process to provide Individual Development Accounts, which encourage savings and asset building by homeless people, and provide limited matching funds. ... Topic 2 Workforce Development . Participation in the workforce is the primary way in which homeless people, and those at risk of homelessness, can gain income and reduce their risk of repeated homelessness. But many homeless people lack the skills or work experience needed to acquire and retain jobs. Obtaining these skills while coping with the added daily obstacles of being without a place to live is extremely difficult. In addition, many homeless people have significant other barriers to work, including addiction and recovery issues; low levels of literacy; mental or physical disabilities; lack of transponation; unfamiliarity with workplace rules of conduct; and abusive family situations. Most workforce development programs are unequipped to handle the additional needs of homeless individuals and families. The Continuum must provide opportunities for homeless people to obtain the skins, experience and assistance they need te>- enter the workforce, and the suppon to remain in a job. . Strengthen and .expand efforts 10 prepare homeJ~ people to enter the workforce. -- Action Stfl'S to Increase existing homeless work force development efforts, and ensure they are well funded to expand a whole range of needed services, including: outreach. vocational counseling and assessment, anmge of work skins training and education, work readiness, a range of internship and apprenticeship opportunities, work culture orientation, literacy training, resume preparation, job search and placement suppbn, Job Club activities, and follow-up to traCk job retention. This could include establishing one of more new or branch homeless work force development programs in Mid and/or SOUthCOUDty and underserved areas of North County, such as West and East Oakland. . Alameda County-Wide Homeless Conrinuum of Care Plan: April 1997 95 Chapter 7: Income . .. Ensure that Self-Sufficiency Centers established under Alameda County Welfare reform efforts, PIC One-Stop Centers and other County training/placement programs provide information and referrals, job listings, resume services and linkages to life skills support and basic education in a manner that meets homeless peoples needs. Encourage private sector businesses to train and employ homeless people, including providing technical assistance and placement services. Some hotels have been successful in operating training programs as pan of homeless hiring programs. Work with area hospitals and community colleges to establish a medical professions training and placement program, serving homeless people and those leaving welfare. Encourage area universities, community colleges, and schools to design programs tieing homeless adult education and training programs with life skills training and service provided by homeless service providers. Programs with expenise and experience in addressing the needs of homeless persons seeking training should parmer and provide technical assistance in designing these programs. Create incentives or provide training to health organizations to employ homeless and formerly homeless people to conduct outreach and peer counseling on alcohol and drug, mental heaJth~ lllV/AIDS :and other issues. Advocate changes to JTP A program requirements and guidelines that block homeless access to ITP A programs. Barriers include lack of emphasis on funding basic supports, such as housing and food, and enrollment guidelines which discourage homeless people from filling many slots. Advocate for lengthened training time for those on GA or T ANF so they can realistically achieve work readiness and employment goals .. .. .. .. .. . .. .. . Expand provision of the support services that homeless people need to effectively beneirt from work force preparation activities. Action Steps .. Increase funding to existing homeless work force developers to match training and placement with a range of needed suppon services for homeless people, including: transportation, child care, food, mental health and substance abuse treatment and counseling, shelter and housing referrals and placement, phones, voicemail.mail box, identification, clothing, and tools. . Alameda Co1Dlty-W1de Homeless Continuum of Care Plan: April 1997 96 "".' ".."." .". "'. .'", . Chapter 7: Income . . .. Work with county operated and funded programs including GAIN, Cal-Learn. Refuge Employment Services (RES) and Targeted Assistance Program (TAP) which are not targeted exclusively to homeless people to provide a similar range of support services to homeless clients coupled with training and placement activities. Ensure that no homeless person is cut off of T ANF or GA without receiving needed suppon services matched to their training and placement activities. Topic 3 Hiring Incentives and Job Creation Even with skills and support, homeless people must compere with others in need for a limited pool of jobs. In order to increase the jobs available to homeless persons, hiring homeless and formerly homeless workers must be made attractive to existing employers, and ultimately, new jobs must be developed. The current welfare reform implementation debate includes a great deal of discussion on the value of incentives and set-asides in the private labor market for low- income people losing benefits. Homeless people should be included, and given special consideration in these programs. This Plan also looks to public and non-profit sector jobs as other avenues for homeless employment. . Advocate for the adoption by public, private, and nonprof"It employers of homeless and welfare-to-work hiring targets or preferences 1md rlI'St source hiring agreements. Action Steps .... Provide training and technical assistance, coordinated with HUD, to assist all affected contraCtors to comply with Section 3 of the HUn Act, which requires all contractors on certain federally-funded construction sires to make training and jobs available to homeless and very low income people. Mount a public educa.tio~ campaign to publicizing the employment needs of homeless people, and encouraging the voluntary adoption by all private and nonprofit employers of a homeless hiring target. The campaign should educate employers about federal and state tax breaks available for hiring homeless and very low income people. Hold periodic homeless job fairs in each pan of the county to increase employment of homeless people, and to help employers meet their homeless hiring targets. Ensure homeless people have information about, and transportation to, existing job fairs. Expand homeless union membership by encouraging trade union outreach to homeless people. .. .. . Alameda Co1.Dlty-Wide Homeless Cominuwn of Care Plan: April 1997 97 Chapter 7: Income . ... Facilitate hiring relationships between major county employers and nonprofirs training and placing homeless people. ... Begin a dialogue with the Alameda County Economic Development Alliance, local chambers of commerce and others regarding strengthening links to employers. ... Explore the feasibility and desirability of requiring homeless, formerly homeless and welfare recipient hiring targets for businesses, contractors and non-profits doing business with localities or provide bidding preferences to contractors, service providers and housing operators who hire homeless. formerly homeless and welfare recipients. ... Advocate for the inclusion of homeless people losing benefits in incentive programs developed as part of welfare reform at the federal, state and local level. ... Advocate at the state and federal levels for increased tax breaks for businesses that train and hire homeless people. . Establish public works projects to employ homeless people and those leaving welfare. Action Ste.ps . ... Explore with localities and unions the establishment of local public works projects as a last resort source of jobs for homeless people and those leaving welfare. Activities could include street and public building construction and repair. public space clean up. and community cultural work, such as painting murals. ... Advocate at the state level for a homeless training and hiring requirement for all major state public works projects in the region, such as bridge construction and repair and highway construction. Alameda COlmty-Wide Homeless Continuum of Care Plan: April 1997 98 . . Chapter 7: Income . . Topic 4 Economic Development In addition to hiring incentives and public sector jobs, new jobs for homeless people can be created through the development of microenterprises and small b~sinesses. Some of the enterprises may be associated with existing service or housing agencies, acting as a for profit wing of the agency which benefits both agency and homeless or formerly homeless employees and operators. Others may be developed independently by groups of homeless entrepreneurs with assistance from agencies or start-up funding. Some organizations have already established fledgling operations which are providing services in the community. These efforts require consistent nurturing in the start-up phase and may require ongoing support from outside, but the benefits of employment, training, and self-sufficiency are often worth the continued assistance. . Expand the number of livable wage jobs for homeless people through for profit homeless enterprises. Action Steps .. Maintain existing nonprofit based and independent homeless enterprises established to train and employ homeless people. Support them by providing sole source local government contracts for goods and services they produce'-- Establish a homeless enterprise task force with members from nonprofits, local government, business and banks, unions, and homeless people, as a forum for expanding existing businesses, identifying new business opportunities, developing startup funding, and for dissemination of training and technical assistance materials for those who want to start new homeless enterprises. Fund programs that provide technical assistance, loans or grants, and other activities which encourage and facilitate entrepreneurship among homeless people, as well as non-profit sponsored micro-enterprises. This may include supponing non profits to serve as small business incubators and helping groups of homeless people start self-managed savings "'banks" or pools, through which they make. interest-bearing loans to support each others' micro enterprises. .. .. Alameda County-Wide Homeless Continuwn of Care Plan: April 1997 99 ."" . Chapter 7: Income . [Blank Page] . Alameda County-WIde Homeless Continuum of Care Plan: April 1997 100 e:: .-._'" ." . CHAPTER 8 Support Services . ~ (I need) a stronger sUPPOl1 system of Jri-ends and empowering agencies. .. Woman homeless in Hayward, 1996 . Chapter 8: Support Services . SUPPORT SERVICES Introduction Homeless persons, while obviously homeless, tend to be scrutinized with more emphasis on the "homeless" and less on the "person". Like anyone else, they exist in a multiplicity of roles: custOmer, citizen, constituent, sibling, parent, extended family member, student. spouse, life partner, employee, and many others. Often the stigma and trauma of homelessness and the existing stratifications in our society can strip away many of the rights and privileges inherent in those roles of people. Suppon services for homeless people are a very wide range of activities which are essential to the maximum potential of self-reliance and stability. These support services seek to restore those avenues of suppon, interdependence. personal advocacy, basic needs, and self-confidence that are present for the vast majority of society through the multiple roles in life, but which are eroded away for homeless people. Support services run the gamut from things such as transponation, care for children and other dependents, to literacy education, legal services, counsel,ing, and clothing. Those without a regular residence lack critical services such as meals, phone service, showers, and Storage for their belongings. Without these and other essential services, no one can be successful at maintaining employment and self-sufficiency. As welfare reform efforts limit the ability of all but the most severely disabled to rely on income suppons such as Social Security and T ANF, support services become all the more essential in assisting homeless and formerly homeless people to cope with and obtain even minimal sustenance needs. . . This Section focuses on five categories of support services: transponation; child and dependent care; minimal needs; life skills; and, food and nutrition. Other equally important support services such as professional mental health counseling and medical services addressed in the Integrated Health Care Chapter following this one. Although the availability of services varies throughout the geographic areas of the county, they are consistently not available in sufficient supply to met the needs of the county's homeless and other low income families. The recommendations and actions steps in th,is Section seek to maintain and improve the existing services network while working to address the gaps in suppon services. In all suppon service areas, efforts should be made to expand, leverage and coordinate the use of volunteers. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 101 . . Chapter 8: Support Services Recommendations . . Support Services recommendations are grouped under the following topics: . Minimal Needs . Transportation . Food and Nutrition . Child and Dependent Care . Counseling and Life Skills Support Activities First Year Goals . Maintain and improve existing multiservice centers. Expand resources for a package of basic services. . Establish new multiservice centers. Establish at least two new multiservice centers outside of Oakland and Berkeley. Each new center should provide daytime shelter, be open at least 9:00 a.m. to 5:00 p.m., Monday through Friday, and to the extent possible, provide the minimum package of services listed below. Establishment of these Multiservice Centers should be coordinated as appropriate with the Self- Sufficiency Centers, PIC One-Stop Centers, Family Resources Centers and other programs which provide multiple services to low-income people. Ideally, these centers should be housed at the same locations and should share administration and Services whenever possible. . Expand homeless people's access to government food programs. Expand homeless people's access to existing government subsidized food programs, including Food Stamps, WIC, School Breakfast and Lunch, Summer Food, Child Care Food, Senior Congregate and Home Delivered Meals, and free commodities programs. Encourage all providers to refer homeless people to all food programs at their first point of contact with the homeless service delivery system. Provide training and technical assistance materials to providers in all pans of the county on food program eligibility criteria and how and where to apply. . Expand availability of subsidized child care. Provide more free or low cost quality child care in coordination with meeting the housing, vocational, and service objectives of homeless families. The goal is to provide all homeless families who need it with child care, especially those enrolled in case m;m::!eement. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 102 Chapter 8: Support Services . . Maintain and expand access to affordable transportation. Support existing agency programs that provide transit passes or tokens to clients in support of service plan objectives. Provide education and informational materials to homeless people and services providers regarding eligibility for discount passes, bus tickets and paratransit services to ensure they are utilized by those eligible. Explore establishing a county-wide program to provide free or reduced cost transit passes to homeless people. Five Year Strategies Topic 1 Minimal Needs Access to the things that are necessary for basic survival is something that most of us rake for granted. These basic needs are met through our access to variety of services, goods and features of our homes which go unnoticed by most of us, including receiving mail, having a phone, bathing, grooming and obtaining information. For homeless persons, meeting these basic needs can be a difficult and disheanening process and can also be very time consuming. In fact, one study found that homeless individuals spend 37.5 hours per week simply obtaining the things they need (HomeBase, 1995). Moreover, the resources necessary to access services, jobs and housing are often unavailable to homeless people, thus making it very difficult to exit homelessness. . · Maintain and improve existing multiservice centers. Support and improve existing multiservice centers that provide a range of basic services for homeless people and a place for daytime respite (sometimes called a "'day shelter"). Action Steps .. Maintain existing multiservice center and county-wide phone line service. Expand resources for a package of basic services. Ideally, all of the following services would be available to homeless people in, near, or through each IIlultiservice center: · Showers and restrooms · Mail and messages · Phone, individual voicemail, and other telecommunications · Haircuts · Clothing · Furniture & other house wares · Client education · Legal assistance · Storage of personal items · Links to health care and other service needs .:, .. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 103 . Chapter 8: Support Services . Personal assistant services for disabled people . Crisis counseling . Recovery and mental illness counseling services . Information and referral · Access to respite services .. Reading material · Suppon groups . . . Expand service through the creation of new multiservice centers. Establish new multiservice centers available to all homeless populations in underserved parts of the county. Each new center should provide daytime shelter, be open at least 9:00 a.m. to 5:00 p.m., Monday through Friday, and to the extent possible, provide the minimum package of services listed above. Establishment of these multiservice centers should be coordinated as appropriate with the establishment of the Self-Sufficiency Centers proposed to be established under the Alameda County welfare reform plan, PIC One- Stop Centers, Family Resource Centers, and other similarly configured programs that provide a variety of supports to low-income people. Ideally, these centers should be housed at the same locations and should share administration and services whenever possible. Action Steps .. Complete conversion of Building 101 at Alameda Naval Air Station into a comprehensive multiservice center, in accordance with the homeless plan for that closed military base. To the extent resources allow it and in coordination with the establishment of Welfare Reform Self-Sufficiency Centers, establish 4 additional multiservice centers .available to all homeless populations according to the priorities listed. . Mid County - Full Service Center . South County - Full Service Center .. East County - Small/part-time Center .. Nonh County - Weekend Center Increase links between services situated near each other so that they become de facto multiservice centers. Consider siting -any new services near such service dusters to facilitate homeless access. Where services are clustered in one area. consider establishing a daytime respite space with ties to the services in the area. "- . . Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 104 Chapter 8: Support Services . Topic 2 Transportation The ability to get from one place to another when needed is a basic need for everyone. In the Bay Area, transportation is a regional issue, of concern to everyone who commutes to work or school. A sophisticated local and regional transportation infrastructure has been developed over the years, including local streets, regional highways, local bus systems and paratransit systems. and regional transit systems such as the Bay Area Rapid Transit (BART) system and the CalTrain. Connecting these systems to travel from one point to another is at times challenging to anyone. For the homeless, transportation is complicated by their lack of vehicles (many homeless do not have operating vehicles), or the lack of reliability of their vehicles, and their lack of funds for the fares on the public transit system. Other complicating issues such as fear of the transit system or illiteracy can make the task of crossing town impossible. As a result, homeless people often spend hours walking to get around. Since transportation is a basic need for everyone, a fairly well developed system exists to serve all members of the public. This plan emphasizes the use and enhancement of this system rather than any effon to duplicate the existing system. Affordability is the primary barrier to the homeless making full use of the system. .... :. · Maintain and expand access to affordable transportation. Provide affordable transportation to homeless people to further their service, vocational, and housing goals. Action Steps .. Suppon existing agency programs that provide transit passes or tokens to clients in support of service plan objectives. Generate a portable, easy-to-use, comprehensive transit guide which keys homeless service sites such as shelters, employment centers, and multi-service centers. Provide education and informational materials to homeless people and service providers regarding eligibility of discount passes, bus tickets and paratransit services to ensure they are utilized by those eligible. ... ... Alameda County-Wide Homeless Continuum of Care Plan: April 1997 105 ." .. . Chapter 8: Support Services . . .. Establish a county-wide program to provide free or reduced cost transit passes to homeless people. Recruit transit agencies for free or reduced cost transportation, and consider the bulk discount purchase of passes and tokens. Distribute the passes through case managers at homeless service sites in each subregion of the county. The goal should be to provide subsidized transportation for all homeless people seeking housing, receiving mental health, substance abuse, and health treaonent, or engaged in vocational activities. Interface with existing paratransit to be sure that disabled and elderly homeless people and their housing services sites are being served. Ensure that school buses are serving homeless housing and service sites. .. Topic 3 Food and Nutrition Good nutrition is essential for physical and mental well-being. Eating well helps our bodies achieve maximum potential, influencing our ability to successfully learn, work, and avoid illness. Diet is panicularly important during pregnancy and early childhood, which are critical times of growth and development. Homeless and low income people are at great risk for developing nutrition-related diseases, including diabetes, cancer, and hean disease. A nutritionally adequate diet helps prevent these diseases as well as minimize their impact if they develop. Food is a basic need which must be met before people are able to lead healthy, productive lives. Therefore, it is a fundamental part of a Continuum of Care. With the gaps in the current safety net, thousands of individuals regularly rely on soup kitchens, food pantries, and shelters for a significant amount of their monthly food supply. The availability of these private food assistance programs varies throughout the county. Very few programs are open weekends or evenings. Currently, these programs distribute over 240,()(X) meals per month. Staffed primarily by volunteers and dependent upon donations, most programs are operating near capacity. Cuts in Food Stamps to many welfare recipients and immigrants as a result of welfare reform is likely to increase the demand for food. Through cooperation between food providers and partnerships for new resources, some expansion of service will be possible. ~ The ideal is for homeless people and those at risk of homelessness to be able to purchase and prepare their own food. Therefore, it is important that healthy foods are available in all neighborhoods at reasonable prices and that people know how to eat well. Learning to effectively manage one's food dollars fosters self-sufficiency through the immediate pleasure of a delicious meal and the knowledge that one is taking care of one's health. Shelters and other residential programs provide a unique opportunity to offer nutrition education and to promote good nutrition through the examples of the meals they serve. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 106 Chapter 8: Support Services . . Expand homeless people's access to and utilization of government food programs. Expand homeless people's access to existing government subsidized food programs. including Food Stamps, WIC, School Breakfast and Lunch, Summer Food, Child Care Food, Senior Congregate and Home Delivered Meals, and free commodities programs. Action Steps · Encourage all providers to refer homeless people to all food programs at their first point of contact with the homeless service delivery system. Provide training and technical assistance materials to providers in all parts of the county on food program eligibility criteria and how and where to apply. · Request the WIC Outreach Unit to visit and enroll people at any site where ten or more potential clients gather. . Maintain and expand free meal services. Suppon and expand free dining room. food voucher, and grocery programs. Expand coverage to ensure that free food is available in all regions of the county, three meals a day, seven days a week. Action Steps . Maintain all existing free dining rooms, food voucher , and grocery prograrn.s. To the extent resources allow it, establish three additional free dining rooms according to the priorities listed. · Priority 1 Mid County · Priority 2 South County · Priority 3 East County Fund at least one dining room in each region of the county to provide three meals per day on Saturdays and Sundays. Increase funding for vouchers usable for food on weekends. Provide education and technical assistance materials to restaurants, hotels, and food seIIers on how to donate left over and surplus food to free food sites. Investigate the availability of kitchen facilities at SRO and other sites where homeless people live. Increase availability where possible. Explore developing a network spread throughout the community of small food banks or pantries, perhaps sraned or staffed by homeless people themselves. Encourage restaurants closing or upgrading and people leaving the area to donate cooking utensils, pots, dishes and silverware for distribution to households in need. . . . . . . . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 107 . . Chapter 8: Support Services . Improve the quality of food and service delivered at current sites. Improve the nutritional and sanitary quality of food and service delivered at free dining rooms. shelters, and housing sites. Action Steps ~ Establish recommended food and sanitation guidelines for all providers. reflecting U.S. dietary guidelines, the Food Pyramid, and established sanitary standards. Vegetarian and culturally-appropriate options should be provided. Provide training and technical assistance materials on implementing the guidelines. Topic 4 Child and Dependent Care . Many types of people have dependent care needs, but those of homeless people are panicularly acute. For example. lack of affordable child care financially burdens a middle class family. but it may force a homeless parent to choose between leaving their children unattended in public and accepting a job or training that could lead out of homelessness. We are all concerned about the education of our children, but the problem is worse for homeless children, who often have no place to do homework and arrive at school (if at all) tired and hungry after a night in a shelter. The issues covered by this topic-child care, parent assistance, education, and foster care and youth-are not unique to homeless people, but are the concerns of ,brOader constituencies and mainstream systems of care. An example is the county-wide Child Care Coordinating Council, now working to expand low income child care JiSSistance in light of welfare reform. The goal of this plan section is not to recreate those systems. but to make sure they effectively serve homeless people and address homeless people's needs. ". . Expand availability of subsidized child care. Provide more free or low cost quality child care in coordination with meeting the housing. vocational, and service objectives of homeless families. The goal is to provide all homeless families who need it with child care. especially those enrolled in case management. Action Steps ~ Negotiate homeless child "set asides" with major child care providers, Head Stan, and government-funded preschools. Link these slots to vocational and other case management programs. . Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 108 Chapter 8: Support Services . . ... Fund shelters, multiservice centers. employment programs. and larger affordable housing sites in all parts of the county to provide on-site child care. Encourage on-site mutual caregivers support, including baby sitting. mothers' groups, and play groups. ... Support the creation of child .care centers in new affordable housing developments and in areas where significant affordable housing development is occurring, such as military base closures and transit-based mixed-use developments. ... Ensure that all families cut off of welfare receive transitional child care. ... Advocate at the state level for increased child care subsidies as part of welfare reform. ... Provide training and technical assistance materials to providers serving homeless children to enhance their understanding of the special needs of homeless children. Strengthen and expand public school programs serving homeless students. Strengthen and expand existing public school and community efforts toward recognizing the educational rights and needs of homeless children, removing barriers to their educational success, and ensuring that school provides a nunuring environment away from the rigors of homelessness. . Action S~ps ... Support existing County and school district programs working to meet the needs of homeless children. Convene a county-wide collaborative of Alameda County Office of Education representatives, school district personnel, homeless service providers, and . children's advocates, to develop a pilot training program open to administrators, teachers, homeless service providers, and homeless people. Four training sessions will be provided, one in each sub part of the COUnty. The curriculum will be adaptable for later annual administrator/teaCher in-service training. The curriculum will cover: · The experience of homeless children · Services available in the community to help homeless children · Strategies to support academic progress and to alleviate peer stigma · Legal rights of homeless children to remain in a school after moving out of the district and for prompt transfer of all records after switchingCschools Organize volunteer tutor programs targeted. to homeless children. Recruit volunteers through libraries, coUeges, and universities. ... ... Alameda County-Wide Homeless Continuum of Care Plan: April 1997 109 . - '" .-. . . Chapter 8: Suppon Services ~ Coordinated with the transportation recommendations above, provide free transit passes to all older students and ensure that school buses serve all younger children at homeless service and housing sites. ~ Give waiting list priority to homeless children for the County extended care program available from 7:30 a.m. to 5:30 p.m.~ weekdays. Topic S Counseling and Life Skills Support Activities For many people, the life skills needed to be successful and happy are learned in childhood from parents and other family members. For those from dysfunctional family backgrounds, or those without families, these skills were never learned. For others recovering from mental illness or alcohol and other drug addiction, skills once learned have long been lost and need to be re-learned. Resources to teach these skills to adults are limited, however. . Life skills range from basic literacy training, to prejob training skills such as how to get along with other people and how to present oneself, to how to maintain housing and be a good neighbor. Without these skills, it is not possible for a homeless family or individual to become self sufficient through employment, or to obtain and maintain even the most basic housing. These skills are the foundation on which the other aspects of self sufficiency and independence are built, not an optional supplement to other services or housing. Life skills training needs to be integrated at every level of service along the Continuum of Care, and elevated to commonplace so as to remove the additional stigma of needing interpersonal support and life skills training. . Maintain and expand counseling and life skills support activities. Support and expand counseling and life skills support activities needed by homeless people to help themselves overcome personal crises and life issues that often contribute to, perpetuate, or result from homelessness. Action Steps ~ Case management/service coordination Maintain existing homeless service programs that provide needed activities, such as the following: . Peer counseling, information, and referral . 24-hour peer crisis counseling . Family counseling . Child-focused counseling including play and art therapy . Parenting classes . Suppon groups and 12-step groups . Money management and budget counseling . Civic rights and responsibilities ... . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 110 Chapter 8: Support Services . .. · Re-entry services · Client education and adult literacy · Spiritual nurturing · Domestic violence assistance · Respite care · Client organizing and advocacy work To the extent resources allow it, fund proposals to expand counseling and life skills activities, in conjunction with the establishment/maintenance of multi- service centers, shelters and transitional housing. Support efforts among peers and providers now counseling homeless people to build cooperative networks among themselves. Establish volunteer pools of students and professionals to provide free counseling for mental health, family and marital issues, domestic violence, money management, child development, addiction, and other issues. Provide training and teChnical assistance materials to homeless service agency front-line staff to enhance their sensitivity to clients in crisis. The training should also cover issues of culture, diversity, gender, sexual harassment, and disabilities .. .. .. .;, .- . ' ,. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 111 .. ...... , . ;:. ".", . ~ .- :~r. . Chapter 8: Support Services [Blank Page] . . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 112 . CHAPTER 9 Integrated Health Care .-:: -- " -- ,', "Mental health care would have prevented me from becoming homeless. '" Man homeless in Oakland, 1996 .,-. :, . Chapter 9: Integrated Health Care INTEGRATED HEALTH CARE . . Introduction A significant ponion of the Alameda County homeless population suffers from health, mental health, or alcohol and drug (AOD) problems, or some combination of these problems. The numbers increase significantly among chronically homeless people who are often the hardest to serve. Homeless people with one disability are also at greater risk for developing other disabilities than their housed counterpans. Homeless people with disabilities face great obstacles to having their housing and service needs met. They are often subject to misunderstandings about their disabilities and symptoms. Housing providers may fail to recognize their capacity to live in non-institutionalized housing or the level or improvement in health, mental health or recovery which may be possible from stabilized housing. Suppon services to make independent living possible are often limited, based on geography and community attitudes. A primary reason these problems persist is the lack of integration of consumers and residents in the planning and delivery of health care and housing-based services. People who are homeless or at risk of homelessness generally receive health treatment through the public system of care. Within Alameda County~ these services are largely provided by"the County Health Care for the Homeless Program, and services of the Alameda County Health Care Service Agency and Berkeley Depamnent of Health Services, both of which have sub-depamnents responsible for the different service/disability categories. Homeless people and those at risk of homelessness are currently receiving different treaUllent within many, and in some cases, most of these sub-departments. Many homeless people are dually or triply diagnosed with physical health, mental health, and AOD problems. These problems should be recognized and treated holistically~ but often are not because the systems that provide services to them often operate autonomously. Inter-system communication tends to focus on identifying a primary diagnosis solely to establish fiscal responsibility. Obtaining all of these services from multiple, uncoordinated service systems is extremely difficult. As a result, homeless people tend only to access these and other health services when their need becomes acute, requiring the most expensive treaUllent. Improving the delivery of health services to homeless people, will both reduce the numbers of people who continue to cycle through periods of homelessness and reduce the high cost of acute medical, in-patient substance abuse, and psychiatric treatment. Alameda County.Wide Homeless Continuum of Care Plan: April 1 997 '13 Chapter 9: Integrated Health Care . Recommendations . Integrated Health Care/Mental Health/Alcohol and Other Drug recommendations are grouped into the foUowing topics: .. Outreach and Access to a Full Range of Care .. Prevention and Early Intervention. First Year Goals . Maintain and support existing crisis management, outreach and intervention programs which provide mobile health services and referrals at parks and homeless service sites all over the county and pays health providers to treat homeless people they refer. . Maintain and support the existing 24 hour, county-wide Alcohol and Drug crisis hotline and publicize its availability county-wide. . Establish at least one new multidisciplinary health team for underserved parts of the county. Specific locations will be determined in the planning process. Each team will include a mental health technician, AOD specialist, health coordinator and peer (homeless or formerly homeless) outreach worker, providing care to homeless peopie in an integrated "whole person" way. Ties with off-site providers will be established to provide a broader range of suppon services to clients than the teams themselves provide. The teams will move from site to site on a rotating basis, although specific teams may be based at particular sites. .' '.' .. .':: ~ ".: . Expand the number of AOD pre treatment, detox, outpatient, short-term residential, and long-term residential treatment slots. Special priority should be given to increasing beds for dually diagnosed homeless people and programs that accommodate single parents with children. Access to beds should be flexible without regard to what area of the county the homeless person is coming from when possible. ," -:--. ,', '. , ' .' Alameda County-Wide Homeless Continuum of Care Plan: April 1997 114 .". ", . Chapter 9: Integrated Health Care Five Year Strategies Topic 1 Outreach and Access to a Full Range of Care A key barrier to homeless people's access to health care of all types is the inability of the public health system to treat symptoms and problems related to co-existing disabilities. or to address the particular needs of homeless people. This inability is supported and maintained by departmental policies and funding streams which are based upon primary diagnoses rather than a whole person perspective. As a result, providers in these departments lack the knowledge and skills to address problems outside of their primary scope of practice, forcing homeless people with few resources to go from program to program to access a range of needed services. Many cannot do so, so they wait until their need become acute and then use the most costly transportation (ambulance) to travel to the most costly service sites (emergency rooms). . Misconceptions and lack of information specific to disabilities can frame health policy, program development, and direct service attitudes. Because health systems are founded on medical models of treannent, where treatment providers are the experts, paternalistic perceptions still dominate. Thus, independent housing options for people with disabilities related to health, mental health and/or drug and alcohol problems are often viewed as unrealistic. Service and suppon dollars are directed toward more traditional single disability options and those choosing non-treatment-oriented housing options are forced to do so with._ little or no suppon. People with coexisting problems must travel from provider to provider to receive services as well as communicate and coordinate their own services and treatment. Currently, many homeless people with disabilities receive their primary care and services through the high cost acute medical or psychiatric treannent sites. Addressing presenting problems and overall health care issues holistically can potentially decrease the use of acute services as primary care sites, and thus reduce costs. Because integration of professional disciplines affects the labor force and changes the conditions of work, organized labor input is essential in the planning stages. Following is a plan to provide outreach to people with multiple health care needs and integrate these services. . Alameda CountY-Wide Homeless Continuum of Care Plan: April 1997 115 Chapter 9: Integrated Health Care · Improve and Strengthen the delivery of services through new Multidisciplinary Health Teams Building on existing models underway, establish at least three Multidisciplinary Health Teams for underserved parts of the county. Specific locations will be determined in the planning process based on geographic needs. Each team will include a mental health clinician, AOD specialist, health coordinator, nurse practitioner, and peer (homeless or formerly homeless) outreach worker, providing care ro homeless people in an integrated, "whole person" way. Ties with non-profit health. mental health. and substance abuse providers linked to County service providers will be established to provide a broader range of services to clients than the teams themselves can provide. The teams will be able to provide services and follow-up for varied lengths of time, based on ability to link and transition clients appropriately to other services. The teams will move from site to site on a rotating basis, although specific teams may be based at panicular sires. Action Stej)s .. Within three months of Plan adoption, identify strategic staff from each health department, the City of Berkeley, non-profit agencies and labor unions to function as an implementation planning team on all recommendations related: to multidisciplinary planning and ~e development of inter-departmental protocols. Begin identifying individuals who are frequent users of acute and emergency services in each disability category and a means to calculate interdepartmental service use by these individuals and invite at least ten consumers to participate in planning who represent this population with special needs. Within 15 months of Plan implementation, identify staff for a minimum of three teams for underserved parts of the county. Prior to team implementation at ]8 months, multidisciplinary teams will have identified and established initial linkages with local providers in the following areas: · Disability symptom management education and support · Harm reduction education and suppon · Pre-natal and ob-gyn services · AOD treattnent and intervention · Community integration and education · Peer suppon and community building · Vocational services · Psychiatric treattnent services and/or mental health counseling · Dental care · Podiatry care ,. ,. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 116 . . . . Chapter 9: Integrated Health Care · Physical therapy · Alternatives to western medicine ~ Prior to team implementation at 18 months, establish a referral process and protocols for connecting the frequent users identified to the geographically appropriate team. Have signed MOD's among the organizations/departments panicipating in each of the teams. MOD's should include the administrative and clinical authority of each collaborative parmer organization/agency. clinical and fiscal accountability and the process' by which differences will be resolved as well as defining specific contributions w the collaborative. During this time, set priorities so that the teams have reasonable caseload sizes. Establish an evaluative measure as part of quality assurance which would include a consumer survey. .. After implementation at 18 months. assign a primary provider to all homeless people entering the health system, and assess each person for multidisciplinary team assignment. ~ At all stages, include labor representatives in all health services planning. . Maintain and increase homeless people's access to existing public health facilities. . Action Steps .. Suppon existing crisis management, outreach and intervention programs, which provide mobile health and mental health services and referrals at parks and homeless service sites allover the county and which subcontraCt with health providers to treat homeless people they refer. . Expand the capacity w serve more geographic regions where homeless people reside. .. Establish homeless set asides and waiting list priorities for publicly funded mental health and AOD treatment slots, with a goal of treatment on demand for those personally commined to treatment. Ensure that homeless people are not denied services for reasons relating to homeless status or co-existing disabilities. ... Expand the number of AOD pre treatment, detox, outpatient, short-term residential, and long-term residential treattnent slots. Special priority should be given to increasing beds for dually diagnosed homeless people and programs that accommodate single parents with children. Coordinate these services with court referrals. Access to beds should be flexible without regard to wbat area of the county the homeless person is coming from, when possible. .. Conduct an assessment of all public and publicly funded health programs with a goal of improving homeless "access by making recommendations in the following areas: . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 117 -- Chapter 9: Integrated Health Care . · Expanding clinical coverage geographically. · Eliminating system-wide and agency-specific policies and procedures that deter homeless people. · Ensuring each homeless person has a primary provider and that information is centralized with that provider. · Redirecting resources from programs serving few homeless people to those serving many. · Requiring consumers to panicipate and help evaluate services that are County-funded or contracted by the County. · Expand the provision of health, mental health and ADD services where homeless and formerly homeless people receive housing and other services Action Steps .. Suppon programs that provide an array of services to homeless people in housing which have been proven to be cost effective and successful at ending the cycle of homelessness. .. Advocate for public policy and funding changes that integrate and streamline public resources for these services. Topic 2 Prevention and Early Intervention . Homelessness and disability are often a vicious circle. An acute mental health episode or medical crisis may lead to homelessness. Homelessness may heighten, or bring on mental illness, increase the likelihood of developing substance addiction, or expose people to greater risks of HIV and other health risks. Substance abuse may lead to loss of housing due to lack of income to suppon the addiction and remain housed, or Jack of interest in remaining housed. But homelessness may also lead to substance abuse, as homeless people attempt to self- medicate and escape the difficulties of homelessness. Early intervention can slow or prevent that progression. This not only can reduce costs to the health care system, but to the homeless service system as well. Early intervention may be intended to prevent homelessness among those with disabilities or in treatment, or to prevent the development or worsening of disabilities and medical issues among those who are homeless. .. Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 118 ... .,; ,'. . Chapter 9: Integrated Health Care . Prevent those in treatment and formerly homeless people with disabilities from losing their housing. . Action Steps ... Provide health, mental health, and AOD-related training and short-term financial help to current and new board and care providers providing short-term care for those who need episodic home health suppon. Advocate with legislators, MediCal, and managed care policy makers to include home health attendant care as an option and alternative care to more expensive alternatives. Develop coordinating mechanisms, such as MODs, between health agencies serving those at risk homelessness to cover such things as In Home Support Services and attendant care. Provide staff to monitor youths with disabilities "aging auf" of children's health care system to ensure that they receive housing, services, and appropriate care from the adult system. Suppon existing criminal justice diversion programs which divert individuals whose core problem is mental health or substance abuse from the justice system to outreach, assessment and treatment programs. ... ... ... ... . Maintain and expand early intervention to .prevent the worsening of disabilities for homeless people. . -- Action Steps ... Provide prevention and early intervention efforts to prevent worsening of people's disabilities, which can lead to loss of housing and high treatment costs. Funding should address the need for: episodic long-term (over one month) treatment, additional temporary and on-going support services, and a comprehensive prevention strategy to prevent and reduce AOD problems among homeless people and those at risk of homelessness. Pay special attention to decreasing the number of adolescents and young adults with disabilities who become homeless. Maintain.and support the existing 24 hour~ county-wide AOD crisis hotline and publicize its availability county-wide. Identify high risk settings.and target groups where harm reduction strategies may be beneficial. Encourage entry into treatment by providing trained, peer- based counseling and other supportive services supporting reductions in alcohol or drug use as pan of a gradual recovery process leading to rehabilitation. ... ... Alameda County-Wide Homeless Continuum of Care Plan: April 1997 119 Chapter 9: Integrated Health Care .. Include HIV prevention and education services as part of housing programs for homeless people, and ensure that settings with large numbers of HIV positive residents provide access to primary HIV care and updated information on treatment. Establish intermediate-level care options where homeless people and people at risk of becoming homeless due to illness can recover from serious illness and those with communicable diseases can recuperate, receive medical treatment and coordination of community housing and support services. ... Alameda County-Wide Homeless Continuum of Care Plan: April 1997 120 . .;.: . ' .' ... A:: .., .,. . CHAPTER 10 Plan Administration . g(l need) bus passes, a nice education -- with a good paying job. .. Pregnant mother of 1 child., homeless in Hayward after living there for 23 years, 1996 . ". ". Chapter 10: Plan Administration PLAN ADMINISTRATION Introduction Other chapters of this plan have described steps needed to create new housing, provide more and bener services, appropriately deliver health care, and assist homeless people in obtaining jobs and other income. This chapter describes objectives and activities necessary to ensure the implementation of this plan and the creation of a strong, comprehensive county-wide system to address the needs of homeless people. The Continuum of Care Working Group, in developing this plan, has committed itself to ensure that the plan is implemented, and that it is continually being revisited and revised. Without structures in place to carry out the work envisioned in the plan. the document wiJI not lead to concrete action and will not effect the changes envisioned. For this reason. this chapter contains recommendations to create bodies and policies that can forward the goals of the plan and increase the resources and information available to all panicipants in the homeless continuum of care. There are already a number of successful collaborations in Alameda County which have been connected to the process of creating this plan and which form the beginnings of the infrastructure needed to continue collaboration around the continuum of care. These include the Emergency Services Network of Alameda County, which is a community-based advocacy and coordination group county wide for emergency food and shelter providers and East Bay Housing Organizations which is a coordination and advocacy collaboration for nonprofit housing developers in the East Bay. In addition, the Technical Advisory Committee of the Alameda County HOME consortium brings together jurisdictional representatives from all of the jurisdictions in the county except Oakland and Berkeley to coordinate HOME funding and other low-income housing efforts in their jurisdictions. The local FEMAboard and the Associated Community Action Programs are also multi-jurisdictional entities which prepare plans and coordinate funding for low-income and/or homeless services in the county. These plus other groups and organizations are key players in the county's system of collaboration and should be called upon and integrated into structures needed for the plan to be implemented. Recommendations The recommendations in this section cover four topic areas: . Plan Governance and Implementation . Strengthening the Continuum · Long-term Financial Resource Development . Data Collection, Evaluation, and Management Information Systems Alameda County-Wide Homeless Continuwn of Care Plan: April 1997 121 . . e:' .-. . -.- -.... . Chapter 10: Plan Administration First Year Goals . . . Establish a Continuum of Care Council. Establish a county-wide Continuum of Care Council as a focal point for county-wide inter jurisdictional coordination to accomplish the five-year Homeless Continuum of Care Plan. The County should provide staffing to the Council during the first year of plan implementation, during which time alternative means of funding and staffing should be explored. . Coordinate and streamline the funding process. Streamline the funding process to achieve savings and efficiencies for the continuum of care. Currently agencies must spend significant amounts of time preparing funding applications for different sources in order to apply on the required forms and applications. Most of the applications are ask for primarily the same information, but in different formats. . Begin to establish minimum standards of care. Begin the process to establish community-developed, county-wide minimum standards of care applicable to all Continuum of Care providers. Standards are needed to enhance the value for homeless people of services, shelter, and housing provided. All standards will be developed through a community-wide, consensus..:building process with strong participation by homeless people, and build upon existing minimum standards in use in the county. If the committee determines that it is not feasible to draft standards of care for the entire ~continuum in the first year, a high priority is to establish minimum standards of care for all 'shelter providers regarding such topics as grievances, mutual rights and responsibilities, client participation and empowerment, privacy. and health and safety. . Encourage new partnerships and collaborations among providers. Explore jointly the benefits of consolidating cenain common functions of related agencies, including bulk purchasing of supplies and food and shared bookkeeping and other administrative activities. . Develop JUl integrated management information system. Develop a county-wide, integrated management information system (MIS) to improve service delivery by enhancing communication between Continuum of Care agencies, jurisdictions, and homeless people. The MIS should build on existing systems in the county and feed into the Bay Area regional MIS being developed. under the Regional Innovative Homelessness Initiative. In the first year. review and improve existing data collection instruments, develop minimum MIS -standards applicable to all Continuum of Care Agencies, develop minimum standards for protection of the privacy and confidentiality of clients, and conduct an inventory of all providers current capacity to meet all minimum standards and system requirements to identify any training or resources needed to fill the gaps. A19ml"lja Coumy-WIde Homeless Continuum of Care Plan: April 1997 122 Chapter 10: Plan Administration . Five Year Strategies Topic 1 Plan Governance and Implementation Without structures in place and people to carry out the work, the plan cannot be implemented. Adoption of the plan by the panicipating jurisdictions will establish commitment to the plan's goals and objectives, but a designated group of people with appropriate support are needed to coordinate and carry out the recommendations for the plan to be a success. These recommendations build on the work to date to develop this plan. . Establish a Continuum of Care Council. Establish a county-wide Continuum of Care Council representing all areas of the county as a focal point for county-wide inter jurisdictional coordination to accomplish the five-year Homeless Continuum of Care Plan. Structure of the Council The Council will be roughly similar to the composition of the Working Group which created this plan. It will be composed of 45 total members from the following interested sectors: the County, cities,. nonprofit homeless service providers and advocates, affordable housing developers, homeless and formerly homeless people, funders, faith community, banks, corporations, organized labor, public health care, major public hospital, public schools; universities, and community colleges. To the extent possible, the interests of all homeless populations should be represented, including men, women, families, youth, the elderly, veterans, victims of domestic violence, and those with problems of alcohol and drugs, mental illness, HN / AIDS, other health problems, or dual diagnoses. Conflict of interest provisions will be developed acceptable to all jurisdictions. . .. " . The Council will meet regularly and an Executive Committee will handle Council business as needed between Council meetings. The Council will establish working committees, open to non-Council experts and interested panies to address the work areas identified in the plan. Examples of working committees which will be . establish include committees on standards of care, management information systems, the formation of interdisciplinary health teams, a micro-enterprise group, etc. Alameda County~Wide Homeless Continuum of Care Plan: April 1997 123 .'. ;.' . -- .......-- . Chapter 10: Plan Administration Role of the Council ... ... . ... . ... . ... . ... . The primary purpose of the Council will be to facilitate coordination among Alameda County jurisdictions and agencies to accomplish the five-year goals of the plan. Within this overall purpose, the Council will have the following roles: Each year, adopt and facilitate implementation of an annual work plan. Assess service data, plan progress, unrnet needs, and political and economic trends. Evaluate and update the Continuum of Care Plan as needed. Obtain approval of the annual work plan from each jurisdiction and the community . Serve as a resource for jurisdictions and funders by providing program information and recommendations as requested or needed. Assist in coordination of local Continuum of Care Plans as requested by those jurisdictions. Develop increased resources for the Continuum of Care and provide guidance for allocating these increased resources. Evaluate the work of the Council and the Council staff and explore funding alternatives for the Council's work. Educate the community about homelessness. Staffin2 for the Council -- A full-time Continuum of Care Coordinator should serve as staff to the Council and to facilitate implementation of the Plan. The Coordinator position is needed to drive the substantial task of county-wide continuum of care building beyond that which volunteer efforts could achieve. During the plan adoption and first year implementation period the staff should be provided by the County. During this time, the Council will undertake explorations of other funding sources for staffing in future years, as well as explore locating the Council and Council staff at an appropriate non-governmental agency. Coordinator tasks will include: ... Convening the Council and providing administrative, policy, and technical .suppon. Supporting the Executive and working committees. Coordinating continuum of care providers. Preparing drafts of the annual work plan and any needed Continuum of Care Plan revisions. Implementing standards of care and program evaluation. ... .. ... ... Alameda County-Wide Homeless Continuwn of Care Plan: April 1997 124 Chapter 10: Plan Administration . ~ Interfacing with the Board of Supervisors, city councils, mayors, and other elected and appointed officials. ~ Interfacing with other task forces, coalitions, and local Continuum of Care implementation bOdies. ~ Supervising resource development. Topic 2 Strengthening the Continuum Improving and strengthening the services and housing for homeless people is a key recommendation in every area of this plan. Developing a fully functioning continuum that can move people out of homelessness must include agreement on standards for services provided that create parity of services across providers and areas of the county. Successful transition from homelessness should not depend on luck or access to specific high quality services while others receive a lesser quality of care for equivalent needs. Likewise, the service and housing system must treat the recipients of these services with respect and dignity and provide means of grievance and redress where practices are inadequate or faulty. · Establish minimum standards of care. Establish community-developed, county-wide minimum standards of care applicable to all continuum of care providers. Standards are needed to enhance the value for homeless people of services, shelter, and housing provided. All standards will be developed through a community-wide, consensus-building process with strong participation by homeless people, and build upon existing minimum standards in use in the county. . Topics Covered Topics should include the following, although the community may identify others: ~ Minimum staffing and program strucUlre Staff training and development Agency development and self-evaluation Cost-effectiveness Service quantity and quality Case management and referral capability Health, safety, and accessibility Grievance procedures Mutual rights and responsibilities Privacy and confidentiality Client participation and empowerment .. ~ .. . . . ~ . . . . Alameda County-Wide Homeless Continuwn of Care Plan: April 1997 125 . Chapter 10: Plan Administration Phased In Implementation Year 1 Year 2 . Year 3 Year 4 Year 5 . The Council will establish a minimum standard and program evaluation comminee to coordinate a series of community meetings. These meetings will serve to: . Collect and synthesize minimum standards, such as those used by Traveler's Aid, Catholic Charities, and AIDS housing providers. . Prepare a first draft of standards for community comment. . Prepare a revised draft based on comments. . Receive further input. . Finalize the draft for Council approval. Disseminate the standards to all providers and commence an interim period of voluntary compliance. Organize staff training and technical assistance in each subregion on the standards and how to comply. Determine additional funds needed for compliance and pJan to raising these. Commence a period of mandatory compliance for any new programs and expansions of existing programs. Funding jurisdictions will determine the method for requiring compliance (e.g., funding contracts require it). Require compliance by all Continuum of Care providers in the county. Funding jurisdictions determine the method to achieve compliance. . Develop and carry out a survey on usage and effectiveness of minimum standards for use by jurisdictions in evaluating performance of the program and participating agencies. Alameda County- WJde Homeless Continuum of Care Plan: April 1997 126 Chapter 10: Plan Administration . . Establish a process to enhance treatment of homeless people and to mediate grievances. . . Establish a process to monitor and enhance treatment of homeless people and to mediate grievances brought by homeless people. Involve homeless people in the development of this process. This should include developing methods to ensure that homeless people: .. Are not punished for behavior, such as sleeping in public, they cannot avoid on account of their homelessness. Are not treated differently or unfairly simply because of their impoverished, unkempt, or homeless appearance. Do not have their property confiscated or discarded when they have nowhere but public places or homeless service agencies to store it. Are able to make their individual and collective views and needs known to the public. .. .. .. The Continuum of Care Council subcommittee focusing on this issues should: ... Review any laws, ordinances, programs, policies, or procedures brought to its attention to determine their consistency with the rights and dignity of. . homeless people, and make recommendations to jurisdictions for change if needed. Receive grievances by homeless people about unfair treatment, and consider the need for an ombudsperson to mediate conflicts and investigate allegations. . ... Encourage new partnerships and collaborations among providers .~ :- ".. Action St~ps .... Provide information to the community about successful models of collaboration and encourage cross provider technical assistance. Explore jointly the benefits of consolidating'cenain common functions of related agencies, including bulk purchasing of supplies and food, and shared bookkeeping and other administrative activities ... Strengthen the bonds and links along the continuum ... Develop methods, such as focus groups with consumers, to test the links along the continuum and determine where gaps exist. .:':":" Alameda County-Wille Homeless Continuwn of Care Plan: April 1997 127 . Chapter 10: Plan Administration ... Facilitate dialogue on difficult issues that create tension within the continuum, such a regional disparities, differences between disciplines and competition between providers for specific suppopulations competing for the same dollars. Topic 3 Long-Term Financial Resource Development Lack of long-term funding is perhaps the greatest barrier to achievement of a comprehensive continuum of care for preventing, reducing, and eventually eliminating homelessness in Alameda County. The current service delivery system is stretched very thin; virtually every provider faces growing demand that far outstrips the services they are able to provide with their current limited resources. This situation may grow worse over the five years of this plan, with possible increased homelessness resulting from benefits cuts to immigrants and welfare reeipients, decreases in Section 8 and public housing available to very low income people, and potential reductions in federal funding to Alameda County for homeless programs. Service delivery efforts are also hampered by a funding system that requires providers to spend an inordinate amount of time raising money, and which makes the survival of many programs uncertain year after year. . With these thoughts in mind, it is important that jurisdictions not merely react to external changes to the financing and demand for homeless services, but take proactive steps to anain financial stability for the continuum of care, and achieve greater efficiency by streamlining the funding process to the extent possible. The continuum of care must assure that the" needs of homeless people are addressed as efficiently, specifically., and thoroughly as possible through a system of service providers with adequate funding to do the job. The following set of recommendations provides a long-tenn inter-jurisdictional strategy for enhancing current hornelessness resources in the county and helping finance the goals of this plan in the next five years and -beyond. . Expand resources through the work of a full-time Continuum of Care Development Director. Once the Council has become fully established, if funding is available, hire a full-time Continuum of Care Development Director to generate greater continuum of care resources through new fundraising and coordination of existing fundraising. The position will be under the Council and repon to the Continuum of Care Coordinator. During the first year to two years of plan implementation, the Continuum of Care Coordinator will explore the feasibility of raising funds for this . Alameda Co1Dlty- Wide Homeless Cominuwn of Care Plan: April 1997 128 Chapter 10: Plan Administration . position and also explore with the Continuum of Care Council other methods for resource development. If funded and hired, the Development position will be evaluated after one year to determine if the amount raised justifies the cost. . Facilitate Multi-jurisdictional Funding of Regional Projects Action Steps · Identify projects with the potential to serve multiple cities or areas of the county and approach cities and other funders to jointly fund such projects. · Develop agreements around specific plan priorities among multiple funders and issue joint Requests for Proposals or Qualifications. · Explore the establishment of a multi jurisdictional Homeless Trust Fund, with dedicated sources of funding. A subcommittee of jurisdictions could explore possible sources of funding including bonds, assessments, "in lieu" fees, federal block grant funds, fundraising, and public donations. . Improve the funding process through coordination and streamlining Streamline the funding process to achieve savings and efficiencies for the Continuum of Care. Currently agencies must spend significant amounts of time : preparing funding applications for different sources in order to apply on the required forms and applications. Most of the applications are asking for primarily the same infonnation, but in different formats. . Action S~s ... Coordinate funding streams, funders, and providers around .continuum of care objectives. Create a rational distribution of resources: identify relationships between providers and funders (including jurisdictions) that are rational and complementary and broker these relationships if they do not already exist. Explore creating a single "'core'" application form, requesting uniform information. Punders could add to this "'core" as needed. The core application would ease the administrative burden on agencies and facilitate uniform data reporting. Involve private funders as wen a jurisdictional funders. ... A1Bmeda County-Wide Homeless Cominuwn of Care Plan: April 1997 129 .'. ".' ," ."0 . Chapter 10: Plan Administration ... Build on current efforts between the jurisdictions to coordinate federal McKinney homeless funding applications. Ensure that Continuum of Care Plan priorities are reflected in these applications each year. Use this common process for other federal funding applications. Explore creation of a single county consortium for McKinney funding. Topic 4 Data Collection, Evaluation and Management Information Systems . For the Continuum of Care to provide coordinated responses to the needs of the community. it is critical that serious attention be paid to data collection, outcomes measurement, and communication systems-all areas usually dealt with by management information systems (MIS). In addition, homeless people and case managers have a strong need for regularly updated, accurate, easy-to-access information about services and housing available. While some MIS capacity already exists in the county-especially in the area of information about services and housing--we still have few means to compare agencies' performance and to evaluate overall trends and needs affecting the system. Current effons under the HUD Regional Initiative can provide a starting place for Alameda County to move forward with developing improved data collection and information systems. An MIS development process under the Council will allow the necessary focused attention on these imponant issues. The outcome will be the creation of tools that can help us better target our resources on successful strategies for preventing, reducing, and eventually ending homelessness. . Improve service delivery and evaluation through an integrated management information system. . Develop a ,county-wide, integrated management information system to improve service delivery by enhancing communication between agencies, jurisdictions, and homeless people and making evaluation of system outcomes consistent and easier. The MIS should buila on existing systems in the county and feed into the Bay Area regional MIS being developed under the Regional Innovative Homelessness Initiative. Data on all areas of the continuum-housing, incomes and employment, support services, and health care-will collected and analyzed. Major goals for the system include: ... Improved information about available services and housing. ... Greater understanding of individual agency outcomes -and performance for use in reporting to funders and restructuring programs. ... Enhanced knowledge of system-wide trends, needs, .and outcomes, for use in directing overall resources. For example, ability to determine whether population groups that are overrepresented among the homeless population, such as veterans, Afriean-Americans and Native Americans, are served relative to their needs. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 130 Chapter 10: Plan Administration .. Heightened protection of privacy. .. Increased knowledge of who is homeless and what their needs are. Action Steps .. Establish an MIS committee under the Council to coordinate research and development of the MIS. The comminee will include these interested panies: local governments, nonprofit homeless service providers and advocates, homeless people, privacy advocates, business, academics. and MIS development experts. Develop minimum MIS standards applicable to all agencies within the continuum. Work with all sectors to reach agreement on minimum standards for the following: what data are to be collected, how they are to be collected, the outcomes and other indicators that must be measured, how information is to be communicated, to whom, and what equipment each agency needs to accomplish these actions. Begin this discussion by evaluating existing data collection tools used by a large number of agencies. Develop minimum standards for protection of the privacy and confidentiality of clients. Strong client input into design of these protections is critical to ensure all concerns are surfaced. Key issues include: what laws apply and how to comply with them; what consent forms and process are acceptabl~i what interagency MODs are needed if at all; who has access to what information; what computer protections, such as code words, should be used, and what training wiII staff need. Conduct an inventory of all providers current capacity to meet all minimum standards and system requirements. Identify any training or resources needed to fin the gaps. Obtain and distribute any equipment needed to fin gaps. Design and implement a training and technical assistance program to ensure a minimum level of MIS competency in all agencies. Each year, evaluate the performance of the MIS in meeting the needs of homeless people, agencies, and the continuum of care system as a whole. Survey providers and clients regarding system uses, performance, strengths, weaknesses, needs, and protection of privacy. Incorporate survey feedback into recommendations each year for MIS enhancements. .. .. .. .. .. Alameda Cotmty-Wlde Homeless ConDnuwn of Care Plan: April 1997 131 . . e.:: . Chapter 10: Plan Administration MIS TimeJine 3 Months After adoption of the plan and formation of the Council, MIS committee will be formed. 10 Months A preliminary report on current data collection. outcomes measurement. and communication within continuum of care agencies will be presented to the Council. 13 Months A draft of minimum MIS standards with recommendations will be circulated for feedback. 17 Months A revised draft based on feedback will be circulated. 19 Months A final draft will be presented to the Council for approval. 21 Months Orientation and training will be provided to agencies on the minimum system standards. Begin implementation of the standards concurrently. ~- 24 Months Evaluate and report on implementation progress to the Council and agencies. ,~- Alameda County-Wide Homeless Continuum of Care Plan: April 1997 132 -~ . ALAMEDA COUNTY-WIDE Appendix 1: Acknowledgments , - -~- ACKNOWLEDGMENTS AND PLANNING PARTICIPANTS The Continuum of Care planning process and the resulting plan are the result of the hard work of many people. Hundreds of community members contributed to the plan through their participation in the working group, topic or special committees, public forum, participation in the homeless survey and attendance at community and commission meetings. The creation of the work plan, facilitation of the planning process and development of the draft plan was done by HomeBase, a public law firm on homelessness. HomeBase has been at the forefront of homeless planning in the Bay Area and nationally for many years and HomeBase's extensive experience with homeless planning greatly benefitted the process. Staff at HomeBase who worked directly on this plan include Manha Fleetwood, Executive Director: Tony Gardner, Staff Attorney; Lynn Nesselbush, Assistant Director; Kathleen Jorgensen, Law Fellow; Cindy Okada, Aaron Passel, Erika Brown, Maxine Tift, Nasha Vida, Shannon Lucas, and Jeff Edwards. The analysis of homeless funding was done by Bay Area Economics, a consulting firm specializing in fiscal analysis. Staff from BAE that worked directly on this plan include Janet Smith-Heimer, senior analyst, and Joanna Davis. Much of the work in the overview of the homeless population and current service capacity - -comes from work previously done by Dr. Marjorie RobertSOn, Alcohol and Drug researcher, and Dede Leydorf, an intern with Alameda County Housing and Community Development during the summer of 1995, and from information collected by the Emergency Services Network. .~ Many plans and many collaborations have laid the groundwork for this effort. The number of people who have contributed to earlier efforts to address homelessness in this county are too numerous to mention. but failure to acknowledge their spirit in our work would be an oversight. Finally, this plan is dedicated to the tens of thousands of homeless people and their families who have struggled and continue to struggle in a system that is not always able to meet their T'It..o..o.".Irt n.......r1 +1...,...:,.., _1........._.... _..__~_11__ :__...JI~____....._ ....._ _ ....l 1 ", ~~. - . Appendix 1: Acknowledgments Plan Co-chairs Linda Gardner, Governmental Co-Chair Alameda County Housing and Community Development Department Loren Jones, Affected community Co-chair AIDS in Prison Project, Ryan White Planning Council Alvan Quamina, Service provider Co-chair AMASSI, Inc. WORKING COMMITTEE CO-CHAIRS Housin~rrransitional Housing/Shelter Linda Gardner, Governmental Co-chair, Alameda County Housing and Community Development Linda Griffin, Non-governmental co-chair, Building Opportunities for Self-sufficiency . Incomes and ~Employment Dorothy Chen, Governmental Co-chair, Alameda County Private Industry Council Alvan Quamina, Non-governmental Co-chair, AMASS! Support Services Kathie Barkow, Non-governmental Co-Chair, Traveler's Aid Amy Hodgen, Governmental Co-cbair, Alameda County Housing and Community Development Health/Mental Health/Substance Abuse Barbara Collins, Non-governmental Co-Chair, Corporation for Supponive Housing Phyliss Sakahara, Governmental Co-chair, Alameda County Behavioral Care Plan Administration Robert Barrer, Non-governmental Co-Chair, Building Opportunities for Self-Sufficiency Barbara Hempill, Governmental Co-chair, City of Livermore Human Services Agency . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 134 Appendix 1: Acknowledgments . Continuum of Care Working Group Gil Anderson, Alameda County Private Industry Council Ann Bauman, City of Hayward Community Planning and Economic Development Carol Beaver, City of Alameda Community Development Barbara Bernstein, Eden I&R, Inc., Hayward Laura Brown Women's Refuge, Oakland Nathaniel Brown, Fight of Faith Recovery Center, Oakland Lisa Brughera, Eden Housing, Hayward Duncan Buchanan, FESCO, Hayward Tonia Chapple, Oakland Unified School District boona cheema, Building Opportunities for Self-Sufficiency, Berkeley Dorothy Chen, Alameda County Private Industry Council/Associated Community Action Program Louis Chicoine, Tri-City Homeless Coalition, Fremont Terri Dunn, Community Organizing Team, Berkeley Scott Erickson, City of Pleasanton Housing Division Gregory Francis, Hayward G. G. Greenhouse, Health Care for the Homeless Program Barbara Hempill, City of Livermore Carla Javits, Corporation for Supportive Housing Greg Katz, Tri-City Health Center, Fremont Carol Lamont, City of Fremont Office of Housing Services Eric Landes-Brenman, City of Berkeley Health and Human Services Darien Louie, United Way of the Bay Area Kenneth Richardson, Catholic Charities of the East Bay Leslie Mikkelsen, Alameda County Community Food Bank Henry Mozell, City of Oakland Office of Health & Human Services Teri Piccolo, City of Berkeley Department of Housing Neusa Pollard, City of San Leandro Community Development David Pontecorvo, East Bay Community Foundation Bemida Reagan, Berkeley Community Law Center Henry Robinson, Oakland Lonnie Ross, Community Organizing Team, Berkeley Susan Shelton, City of Oakland Community and Economic Development Agency Suzanne Shenf"tl, City of Fremont Human Services Vem Smith, City of Union City Housing and Community Development Many Stenrud, Horizon Services Valerie Street, Alameda County Social Services James Thomas, Emergency Services Network Phyllis Sakahara, Alameda County Behavioral Care Harold Wilson, City of Oakland Private Industry Council .":" :~-. ..' - - .:~. : '.' Alameda County.Wide Homeless Continuum of Care Plan: April 1 997 135 .'- . Appendix 1: Acknowledgments CCWG Alternates . . Robert Barrer, Building Opportunities for Self-Sufficiency Jeff Brown, Alameda County Social-Services Bob Calkins, City of Fremont Community Development Department Cynthia Chimonyo /Mike Church, City of Oakland Office of Health & Human Services Mike Dunlap, Operating Engineers Ramie Dare, CREDO Housing Marian Gushiken, City of Hayward Mary Miller. Alameda County Private Industry Council! Associated Community Action Program Tim Stroshane, City of Berkeley Community Development Depanrnent Lee Williamson, Wesley United Methodist Church Alameda County-Wide Homeless Continuum of Care Plan: April 1997 136 Appendix 1: Acknowledgments . Planning Participants The following people participated in one of more of the working or special committee meetings, attended the Community-wide forum or otherwise provided input to the planning process. Yvonne Angel, Berkeley Emergency Food and Housing Project Javier Bardales, Alameda County Health Care for the Homeless Kathie Barkow, Traveler's Aid Robert Barrer, Building Opportunities for Self-Sufficiency Ann Bauman, City of Hayward Community Development Harold Bennet, South Berkeley Community Church Barbara Bernstein, Eden I&R John Brauer, Homeless Base Conversion CoJJaborative Valerie Brown-Troutt, Ark of Refuge Lisa Brughera, Eden Housing Duncan Buchanan, Family Emergency Shelter Coalition Winston Bunon, Building Opportunities for Self-Sufficiency Cynthia Chimonyo, City of Oakland Health and Human Services Ramie Dare, CREDO Housing Lazandra Dial, A Safe Place Teresa Driskin Judy Eliacher, Oakland Housing Authority Kate Emmanuel, Resources for Community Development Scon Erickson, City of Pleasanton Karen Euston, Oakland Housing Authority Katharine Gale, Alameda County Housing and Community Development Margherita Gudenzi, Volunteers of America Marian Gushiken, City of Hayward Chi Huynh, Catholic Charities of the East Bay Richard Jackson, Oakland Independent Suppon Center Loren Jones, AIDS in Prison Project Eric Landes-Brenman, City of Berkeley Health and Human Services Elizabeth Lang, Catholic Charities of the East Bay Chris Lau, Alameda County Social Services Sherry Manson, FESCO Board member Helen Meier, Tri-Valley Haven for Women Gooff Meredith, Emergency Services Network Jane Micallef, City of Berkeley Shelter Plus Care Leslie Mikklesen, Alameda County Community Food BanknSheldon Nelson, Ark of Refuge . ," ", " Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 137 .- . Appendix 1: Acknowledgments Chena No, Alameda County Health Care for the Homeless Ann Ostrander, City of Fremont Ted Piccolo, City of Berkeley Neusa Pollard, City of San Leandro David Pomecorvo, East Bay Community Foundation Maureen Power, San Leandro Shelter for Women and Children Wanda Remmers, Housing Rights Ruthie Green, Operation Dignity Phyllis Sakahara, Alameda County Behavioral Health Care Susan Shelton, City of Oakland Community and Economic Development Agency Suzanne Shenfil, City of Fremont Human Services Elie Shepardson, St. Mary's Center Jo Carroll Smith, West Oakland Health Council Vem Smith, City of Union City Valerie Street, Alameda County Social Services Agency Tim Stroshane, City of Berkeley Yvonne Swift, U.S. Department of Housing and Urban Development Nancy Thomas, Alameda County Network of Mental Health Clients Teresa Traynor, Berkeley Emergency Food and Housing Project Rae Vasconcellos Kim Watkins-Tartt, Oakland Homeless Families Program Hazel Weiss, Alameda County Shelter Plus Care Program Kun Weist, Housing Authority of Alameda County Susan Wemer, St. Mary's Center Riley Wilkerson, Eden I&R Vanessa White, Jobs for the Homeless Consonium Wendy Wolfe, Developmental Disabilities Board - Area 5 Mira Villasenor-Murphy, Emergency Shelter Program . . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 138 . Appendix 1: Acknowledgments Written Comments during public comment period received from: Alameda County Homeless Base Conversion Collaborative Kathie Barkow, Travelers Aid Ann Baumen, Hayward Carol Beaver, City of Alameda Barbara Bernstein, Eden I&R Duncan Buchanan, FESCa boona cheema, BOSS Michael Daniels, Jobs for the Homeless Consortium Louis Chicoine, Tri City Homeless Coalition Ramie Dare, CREDO Doug Ford, Human Relations Commission, Fremont Marianne Graham, City of Berkeley Luis Granados, United Indian Nations G.G. Greenhouse, Health Care for the Homeless Margherita Gudenzi, Volunteers of America Bay Area Barbara Hempill, City of Livermore Carla Javits, Corporation for Supportive Housing Carol Lamont, City of Fremont Eric Landes- Brenman, City of Berkeley Leslie Mikkelsen, Alameda County Food Bank Teri Piccolo, City of Berkeley Neusa PollarcL City of San Leandro Commissioner RajabaIIy, Human Relations Commission, Fremont Vem Smith, Union City Valerie Street, Social Services Agency Tim Stroshane, City of Berkeley e.. ,,' '.' ;..' ,.- ;, .-r' ,~:. Presentations on the Draft Plan made to: Alameda County Board of Supervisors Social Services Committee - March 24, 1997 City of Alameda Social Services Human Relations Commission - March 27, 1997 City of Berkeley Homeless Task Force - March 5, 1997 City of Fremont Human Relations Commission - March 17, 1997 City of Livermore Human Services Commission - March 11, 1997 City of Oakland Life EnricInnent Committee - March 11, 1997 City of San Leandro Human Resources Commission - March 26, 1997 Emergency Services Network of Alameda County - March 6, 1997 East Bay Housing Organizations - March 12, 1997 Sunrise Village Shelter, Fremont - March 26, 1997 .'.- Alameda County-Wide Homeless Continuum of Care Plan: April 1997 139 '.' . Appendix 1: Acknowledgments (Blank Page] . . Alameda CountY-Wide Homeless Continuum of Care Plan: April 1997 140 . APPENDIX 2 Homeless People Survey Instruments and Survey Results Summary .;:. ;... -What I need that I am not getting is bus tickets, transitional housing. and rental assistance. '" Homeless woman in Livermore, 1996 .. . . . SURVEY To try and serve you better. Alameda Coumy and its service providers wam to ask Yllu some questiolL'; about your situation. We do not ask your name or anything that identifies who. you are. Have you filled out this survey before'] Yes Are you: Female Male How old are you"! Are you a vetel""dn'] Are you disabled"! Yes _No If yes, what is your disabiliry'] .:-- Physical HIV AIDS Are you currently homeless'] No If yes, check your reason(s) why: _Escaping domestic violence _Family break-up _Earthquake destroyed my home Fire/other disaster destroyed my home -Unable to pay rent Evicted due to non-payment of rent _Discharged from ~l institution (please describe) Are you homeless with a spouse or life parmer? -,---Yes /lof Olildren with you seeking services_ /lof Olildren elsewhere In what ciry did you atte.nd: Elementary school? College.] _No (if Yes. plc:.as~ do lIot fill out again.) Yes No .' ... ",- _Mental Substance Abuse Other Yes Couldn'{ maintain my income or stay housed due to: _Job lost Mental illness - _Medical problems or medical costs _Alcohol or odler drug use Money managemem problems Temporary living SiruatiOll ended (Please explain) No Ages IIf Children Ages IIf Children High School? In the last six years. ill what city/cities have you resided? hI wbat ciry did you most recently become homeless~]: How long had you lived there? How long have you been homeless"! How many times have you been homeless'] Source(s) of Income ill the last 30 days: (Check all dlat apply) _E2med Income (Jol1) AFDcrr ANF -General Assistance (GA) == Unemploymem Compensation\SDI _Vocational Progrd.lnS If unemployed. are you seeking work: _Social Security _Food Stamps _Relatives/parolee/friend... _PanbandlinglVouchers _ Odter Sources of Income: (Please describe) SSI V A PetlSiOIl Selling C3.1lS == RetiremeiH Yes No How IOllg? Received , Waiting List In the Ia.~t mondl what services have you used? (Check as many as apply) Received .. Waiting LiSt Food/Hot Meals Healdl Care Job Help Showers Drop-in Center Alcohol/Drug Rehab Section 8 Pennanellt Housing In what cities do you use service dIe most'! (1) Shelter -Domestic' Violence Storage Tra.llSitional Housing Respite care Bus ticket Shelter PILL~ Care Rental Assistance (2) (3) In the last 7 days. bow did you mosdy get arowld? (aleck two 31lSwers only) _Walked _Caught the bus _Used cW scrip _Got a ride from friend or f31nily _Drove my own car _BART _Used a wbeelcha.ir/odler mobility device _Bus tickets _Bicycle _Cash _Scrip How did you pay for tbe fare for your las.t ride on Public TmlSi(! _Fast Pass Bus Tickets Wbat services do you need that you are not getting? What would have prevented you from becoming bomeless? How big an apartment/house do you need? _Studio _3 bdnn' _lbdnn _2Mnn 4+bdnn Where do you want to live? (List dlree choices) (1) (2) (3)) PLEASE RETURN SURVEY FORMS TO: EMERGENCY SERVICES NETWORK. P.O. BOX 12004. OAKLAND. CA 94604 TEL: (510)451-3138/ FAx: (510)451=3144 G:\HOMELESS\COFC\SURVEYS.KNG -". . " -, . . . . ENCUESTA Pan. mejorar nuestrO servicio para Usted, el Coudado de AJameda y sus provedores de: :o;c:rvicios quisierau pregwltarle algunas pregwltas con respectO a su situaci6n. No requirimos su nombre oi otro tipo de infonnaci6n que 10 identifique a usted. i,Ha llellado esta eucuesta autcrionnente: _5i _No (Si conll:Sb -Si-. favor de no llenar de nuevo) Es Usted: Mujer _Hombre i.Es usted veter.a.llo(a) de guerra.? _ 5i i, Cuantos aiios uene?_ i,Esra desabilitado(a)? 5i _No 5i conteSto si, i,cuAl es su desabilidad? No _Fisica HIV ~5IDA _Mental _ Abuso de 5ubsta.llcia ._OtTO i,Esra actualmente sin techo.! No _5i 5i COlllestO si, porfavor marque la raWll (las razones) porque: _Por escapar violencia domestica _ Rompimento de familia _ Terremoto destrui6 mi casa _Fueg%uo desasae destrui6 mi casa _No pude pagar mi retlta _ Despedido(a) por no pagar renta _Dado de alta de una instituci6n (porfavor des.criba.) ,Esra sill vivienda COil su esposo(a) 6 pareja? _5i Niimero de nmos que requierell servicios_ Nfunero de nifios en otrapane_ ,En que ciudad atendi6: EscueJa Elemental? Universidad? i.En los Ultimos sOs 3fios en cuiI(es) ciudad(es) ba vivido'] "En cui! ciudad recientemente se qued6 sin vivienda'! 1. CtWltO tiempo babia. vivido ahi? 1. CuantO riempo riene sin vivienda'! "CuAntaS veces se ba quedado sin vivientia? - No pude malllener illgresos 0 ma.lllellenne - bajo techo por causa de: Ptrdida de ttabajo - Eufennedad mental -Problema... m!dicos 6 gastoS medicos. _Alcohol U oao uso de drogas Problemas con elllUltlejo del dinero - Perdida ~de vivienda por caUsa de encarcelamiento _ Situaci61l tt:mpoml de vivienda se . tenni1l6 (porfavor explique) No Edades de los nulos_ Edades de los ninos_ Preparatoria? Fuente de Ingresos 1I10nctarios en los iiltunos 30 dias: (Marque (0005 los que aplicall) _ Illgresos ganados par trabajo AFOClTANF - Assistencia General (GA) ------- Compensaci6n de desemplc:o\SDI _______Programas Vocacionales Si esli desempleado(a), lesli husca.lldo trabajo'!: Segura SociaI == Eswnpillas de CQmid.ll Familiares/parejalami~o:; == Meudigando/fialldo Otra Fuente de Illeresos: - - (Porfavor describa) _SSI _______ PCIlsi61l V A Vcndiendo lat:!.s _ Retiro Sf No i,Por cuamo tiempo"!_ Ell el ultimo meso lcuAles servicios ha utilisado? (Marque todos los que aplican) .".Jo,..IfI Recibido ComidalComida Caliente Cuidado MMico Ayuda para trabajo Ducha . Centro de dia (Drop-in) Rehabilitaci6n de alcohol I droga Sccci6n 8 penna.lleme Viviellda List:!. de espera Recibido Coberrizo Violencia Domt$tica Ahnacetwniemo Viviellda de uansici611 Cuidado imennediario (Respite care) Shelter Plus Care Assistellcia para alquilar_ lEu cui.l ciudad usa los servicios la mayor pane? List:!. de espera (1) (2) (3) lEu los ultimos 7 dias. como fue que se ttanSPon6 la mayor pane? (Marque dos SOlameme) _ Caminalldo _______Elautobus ~ Vale para Taxi ~ Amistadeslfamiliares proveell tranSportaci6n _Mallejando mi prepio carro BART Silla de ruedas I ouo aparato para movilidad _ Boletos para autobus Bicicleta - _ Dillero ell efectivo lCllmo pago par.a el pasaje de su ultimo viaje en Transito Publico? Vale lCu3.les servicios necesita que no esra agarrando? lQue lo(a) bubier.a prevenido para no perder viviellda? _Pase rapido _______ Boletos para auto bus lQue tan grallde apanameDro/casa necesita'! Srudio 1 recima.ra 2 recfunara.s _3 reclmaras- 4+redmaras i,En d6nde Ie gustaria vivir?(Escoja tIts lugares) (1) (2) (3) PORFA VOR REGRESE LA ENCUEST A A: EMERGENCY SERVICES NETWORK P.O. BOX 12004. OAKLAND, CA 94604 TEL: (510)451-3 I 38/FAX: (510)451-3144 G:\HOME1..ESS\COFC\SURVEYS.KNG .. ~ ~. .::. '.. ':.' ',' " . . , :.' ,.... .';. '" ,. . ,'. " " .,:,;, :-~ .. . "' . . . In 1996; as part of the Continuum of Care planning process. a survey of people presently homeless was conducted at the following agencies to " provide demographic information about the homeless population receiving services in Alameda county. Catholic Charities. Oakland Emergency Shelter Program. Hayward Family Crisis Center. Hayward Family Emergency Shelter Coalition. Hayward Hnman Outreach, Hayward Oakland Home~ess Program. Oakland Oakland Independence Support Center, Oakland Operation Dignity. Oakland Shepard's Gate. Livermore Tri-City Homeless. Fremont Tri-Valley Haven for Women, Livermore .:~.!- The City of Berkeley carried out its own survey of 210 homeless people within its jurisdiction and results of that survey were analyzed as well. A copy of the survey form is included and following are the results. These results identify some of the primary gaps and needs from the perspective of those seeking services. Out of 156 (+198-Berkeley respondents) surveys. not. every respondent answered all the questions therefore the' numbers do not always add up. Number of respondents: 156 . Gender: Female Male 75 75 . Age ranges (8-17) (18-23) (24-49) (50+) 1 11 117 19 . . . Veterans: 29 . Disabled: ffi Type: Physica1- 32 HIV-2 AIDS-2 Mental- 33 Substance abuse - 12 Other-II "" .- · Cities resided'in last six years: Alameda Albany Berkeley Emeryv ille Oakland Hayward San Leandro Castro Valley Eden Township San Lorenzo Fremont Newark Union City Dublin 2 o 17 1 83 :r7 2 o o o 2J 10 9 2 Livermore Pleasanton Alameda Co. Contra Costa Co. Marin Co. Napa Co. Santa Clara Co.... ~ San Francisco" Co. San Mateo Co., Solano Co. Sonoma Co. CA, outside 9 County USA, outside CA outside USA . # of times moved to different city in 6 years before becoming homeless: no moves at least 2 moves at least 3 moves 4 or more moves 3) 00 54 .B · City in which most recently became Jwmeless: Alameda Albany Berkeley Emeryville Oakland Hayward San Leandro, Castro Valley Eden Township San Lorenzo Fremont Newark Union City Dublin Livermore Pleasanton Alameda Co. Contra Costa Co. Marin Co. Napa Co. Santa Clara Co. San Francisco Co. San Mateo Co. Solano Co. Sonoma Co. CA, outside.9 County USA, outside CA outside USA 2 o 4 o 49 25 3 1 o 1 13 4 3 o .. 6 4 1 24 o o 17 10 6 o o 2) 25 4 . .; 4 2 1 12 o o 1 6 2 o o 6 1 1 '.: .:- . . "Reasons respondents "are homeless: SUMMARY of data All homeless persons suroeyed were asked the following two questions: - Why are you currently homeless? - What would have prevented you from becoming homeless? Responses (including those from the Berkeley suroey respondents) to reasons for homelessness were divided into categories, seen in bold face below. The text following each category are summaries of the , corresponding answers to what would have prevented the homelessness. Unable to pay rent: Most answered that to have prevented '3l their homelessness, they would have needed more money, steady, better paying jobs, and/or access to more affordable housing, including help with 1st and last month's rent. Temporary living situation ended: Of those who became 72 homeless because a temporary living situation ended, most cited different specific preventions pertaining to: the lack of a roommate or a compatible one; no access to Section 8 . housing; bad credit; having been discharged from an institution; and the cessation of a live-in job. Job lost: Nearly a third of all responses to why people had. 56 become homeless involved the loss of a job. Most ideas in this category were straightforward: having had a job would have" -.- prevented homelessness. ~ Family Break-up: More familial support and understanding 43 would have prevented their homelessness. Escaping domestic violence: Most said having been single or -33 not having been with the man they had been with would have prevented homelessness. One said a shelter for battered women would have helped. Alcohol or other drugs: Of those who responded in iliis 3) category, a third said having had ajob would have prevented homelessness; another third said .cnot doing drugs" would have been the best preventio~ and two said they should not have abused alcohol. Evicted due to non-payment of rent: Answers to the 21 . prevention question in this category ranged from Dot having abused drugs to having had access to lower-cost housing and higher wages. ..- . - Mental illness: 21 Medical problems or medical costs: Money m:Rnffgement problems: Most cited having had ajob as the prevention technique needed. Discharged from an institution: Lost housing due to incarceration: Most felt having had ajob A A 9 would have prevented their homelessness; often the _,_h .' incarceration was the rea~on.for haying lost previous jobs. Fire/other disaster destroyed my house: . 66 people responded that they have between 1-7 children: (1 child) (2 children) (3 children) (4 children) (5 children) (6 children) (7 children) (unknown :#) 11 21 16 10 4 1 2 1 . Age range of respondent's children: (under 1 yr.) (1-2 yrs.) (3-4 yrs.) (5.7 yrs.) (8-12 yrs.) (13.16 yrsJ (17-22 Y1PJ (23-30 yrs.) (31-40 yrs.) 10 17 :rn 3) 49 25 15 7 2 . :# of respondents who attended high school: 00 . :# of resporu!ents who attended college: 78 . 21 21 " 9 6 .:' .' .' ,..;.:'-" - .'. .-', .. -'- . . . Average length of time in that city before homeless: (1-6 months) 23 (7-12 months) . 7 (12-24 months) 3 (3-5 years) 7 (5-10 years) 4 (>!O years) ~ ..Vo,..../fI . Average number of episodes of homelessness: (1 episode) fJl (2) 44 (3) 15 (4) 3 (5) 4 (6) 2 (7) . 2 (JO) 1 (J6) 1 (many) 2 . . Sources of income in the last 30 days: AFDC/TANF: 42 Food 8tamps: 38 881: 33 :.- Earned Income (Job): 3) General Assistance (GAJ: 23 Social Security: 13 Unemployment comp / SDI: 11 Relatives / partner / friends: 10 None: 7 Selling cans: 5 Panhandling / vouchers: 5 V A pension: 2 Retirement: 3 Child Support: 2 Vocational programs: 1 . Unemployed & seeking work: 79 Average length of time spent: (<1 month) 3 . (l-B months) 23 (2-5 years) 8 (>5 years) 1 . .; .- ,-. . Unemployed, not seeking work: :r7 . Services used in previous month: Received Wait List Shelter 86 4 Food/Hot Meals 76 Health Care ill 2 Showers 46 1 " .- Bus ticket 44 7 Job Help 32 4 Drop-in Center 2:} 1 Alcohol/ Drug Rehab Zl Transitional Hsg. 24 13 Section 8 Perm. Hsg. 21 13 Shelter Plus Care Rental Assistance 14 11 Domestic Violence 10 2 Respite care 10 3 Storage 8 4 . Cities in which services used most.~ Alameda 3 Livermore 17 Albany 0 Pleasanton '2, Berkeley 16 Alameda Co. 0 Emeryville 2 Contra Costa Co. 7 Oakland a; Marin Co. 0 Hayward 33 Napa Co. 0 San Leandro 2 Santa Clara Co. 2 Castro Valley 0 San Francisco Co; 9 Eden Township 0 San Mateo Co. 0 San Lorenzo 0 Solano Co. 0 Fremont 24 Sonoma Co. 0 Newark 7 CA, outside 9 County 2 Union City 0 USA, outside CA 0 Dublin 0 outside USA 0 ...: '.- .- '-. . Transportation used most in previo,us week: Walked: BART: Bus: Bus tickets: Drove own car: Ride from friend/family: Bicycle: Taxi scrip: 00 47 33 24 21 21 10 5 .... :;":"0 :-!'"" .~-: . . '.' . . . . "- . . ",-.';: .... - . - . '.' . ~. .' Wheelchair I mobility devf.ce: 1 . Method of payment for last ride on Public Transit: Bus Tickets: Cash: Scrip: Fast Pass: BART: " 56 52 7 Zl 2 ., . Serv,ices needed that not getting: Affordable housing: None: Transportation: Job search/training: Rental Asst.: Child care: Section 8: , Food: Shelter Plus Care: Medical: Legal: Dental: , Drug rehab: Transitional housing 25 21 17 14 11 10 9 6 5 5 .4 3 2 2 .' ,A'''''' .. 2 2 2 1 1 1 1 1 1 1 1 1 1 . Would have prevented from becoming homeless: see SUMMARY above . Size of apartment I house needed: , Studio: lbdrm: 2bdrm: 3bdrm: 4+bdrm: unsure: 86 1.27 128 61 9 2 Money: GA: Food stamps: Clothing: Storage: Furni ture: Structured social activities: Unempl. Comp.: GAIN: 881: HIV treatment & shelter: Education: ' Financial Assistance .;- · Three cities in which would like to live: Alameda Albany Berkeley Emeryville' Oakland Hayward San Leandro Castro Valley Eden Township San Lorenzo Fremont Newark Union City Dublin 6 o 35 1 ill 54 25 5 o 2 35 12 17 6 Livermore Pleasanton Alameda Co. Contra Costa Co. Marin Co. Napa Co. Santa Clara Co. ~ San Frandsco''t:o. San Mateo Co. Solano Co. Sonoma Co. CA, outside 9 County USA, outside CA outside USA . .. 17 13 4 10 1 o 7 8 2 2 o 9 7 · Size of units requested by jurisdiction selected above: COMPARISON of data Where I want to live studio lBR 2BR "3BR 4BR unsure Alameda 0 0 0 0 0 0 Albany 0 0 0 0 0 0 Berkeley 9 15 12' 4 0 0 EmeryvUle 0 0 1 0 0 0 Oakland 14 9A 16 7 2 2 Hayward 10 17 19 16 2 0 San Leandro 3 5 13 6 0 0 Castro, Valley 0 2 3 0 0 0 Eden Township 0 0 0 0 0 0 San Lorenzo 0 0 1 0 1 0 Fremont 7 16 17 5 0 0 Newark 2 3 4 3 0 0 Union City 2 6 9 3 1 0 Dublin 4 1 2 '0 0 0 Livermore . 6 2 8 4 0 0 Pleasanton 7 2 5 0 0 0 Alameda Co. 3 - 4 1 2 0 0 Contra Costa Co. 2 3 4 3 1 0 Marin Co. 0 1 0 0 0' 0 Napa Co. 0 0 0 0 0 0 Santa Clara Co. 1 2 2 1 0 0 San Francisco Co. 2 6 0 1 O' 0 San Mateo Co. 1 1 0 0 0 0 Solano Co. 0 0 2 0 0 0 Sonoma Co. 0 0 0 0 0 0 CA, outside 9 cty 5 :3 4 4 0 0 USA, outside CA 1 5 0 1 0 0 outside USA 0 2 0 0 1 0 unsure 6 8 5 1 1 .. 0 . - .. , .' ,-." .'- .... .,. . . . . People who want to live in the city they lived in at the time they became homeless: do do not 8S 3S . People who want to live in the city where they are receiving services: do do not 103 (generally same people & city-as above) 38 . People who are receiving services in the city they lived in at the time they became homeless: are are not 89 35 Appendix 2: Homeless Survey Alameda County-Wide Homeless Continuum of Care Plan: April 1997 154 ".,: --. . .:; " ,-- .,,:' . APPENDIX 3 Committee Guiding Principles . "'Abetter paying job and lower cost housing would have prevented me from becoming homeless. ~ . 49 year old male veteran, homeless in Hayward, 1996 Appendix 3: Committee Guiding Principles PRINCIPLES TO GUIDE THE CREATION AND IMPLEMENTATION OF A HOUSING AND TRANSITIONAL HOUSING SYSTEM IN ALAMEDA COUNTY 1997-2002 · The continuum of housing and service sYStems must meet the needs of all. · While serving all, the continuum of housing should place a priority on serving the hardest to serve and preventing homelessness among very low income people who could be helped with limited assistance. · The continuum of care must provide housing for those with substance abuse problems, the disabled, mentally iII, those coming out of prisons and other institutions, and those most critically in need. · The continuum should provide housing where it is needed, where the people who need it want to live, where jobs are available, and in healthy neighborhoods. . Providing housing requires overcoming barriers of affordability, and linking to needed services. . The continuum of housing must be linked, so no clients fall through the gaps and so that transitions from one pan of the continuum to another happen smoothly. . - Continuity must be assured to prevent repeat homelessness. . Housing provided under the continuum should be appropriate to the needs of the person served and fully integrated into the community. · Affordable housing in Alameda County must be provided at the changing income levels of poor people. · The continuum of housing and services needs to exist in all areas of the community where there is need, proportional to that need. . We should know what is available in the next five years at any point in time for all forms--of housing: where, what level, $ needed, for whom. Keep that information current and not just in a book somewhere. · The housing and service system needs to be changing to meet needs as they change. . The Continuum of Care should focus on prevention and long term strategies. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 155 . ,. ~: : ... " :.. '.. ". - - ." '. .~. ., .~< ....- - . Appendix 3: Committee Guiding Principles . Each point of the continuum should help people stabilize. Empower people around housing (make sure they know their rights), help build self-esteem (wean people away from just being receivers towards becoming responsible for their own welfare). teach people how to maintain their housing (keep units habitable and in good repair), teach people to take pride in their housing as one pan of the way to stay housed. . . Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 156 Appendix 3; Committee Guiding Principles . Incomes and Employment Committee Guiding Principles Full Employment · Alameda County and all jurisdictions in the county must foster relations with private sector that create jobs, job preparation, and job growth in order to ensure that sufficient jobs are created each year to provide full employment. · Preference for jobs created by all government dollars must be given to those in need. (like Section 3). · Poverty solutions must be holistic and integrated so that programs serving the same population don't undercut each other (e.g., OA reductions reducing public housing rent receipts), and the entire Continuum is linked. · The Continuum must provide opponunity for people to get skills that allow them to acquire and retain jobs, i.e., job training, adult literacy and educational credentials in appropriate setting. . The Continuum must link homeless employment activities with similar activities in the poorest neighborhoods, especially those producing the most homelessness. .'., Human Dignity · Income supports must be provided to those in need of resources to meet basic needs. · The public suppon system must subsidize wages up to the minimum level needed, Le., provide gap subsidies. . Local community support for families and individuals is necessary for them to get job opponunities in the economic region where they live. · Human potential must be maximized through economic opportunity. The skills and abilities of people should be emphasized, not their homeless status. · Plan recommendations must lead to Income Adequacy, with a goal of 100% of homelessness/at risk people receiving adequate income to meet their basic needs, including housing. -; Alameda County-Wide Homeless Continuum of Care Plan: April 1997 157 . . Appendix 3: Comminee Guiding Principles Role of Local Jurisdictions and Nonprorrts . Programs must include a mix of support services, training, placement, and employment that meets everyone's needs. . Programs must be client focused and customer driven. . We need multi-jurisdictional cooperation among counties and cities. . . Alameda CountY-Wide Homeless Continuum of Care Plan: April 1997 158 Appendix 3: Committee Guiding Principles . Support Services Committee Guiding Principles . The suppon services provided to homeless people throughout Alameda County are to be asset-based and client-driven: .. "Asset-based" requires reviewing strengths and abilities of people in need, and building a service plan that incorporates a client's capacity and proven abilities. .. "Client-driven It includes client participation in developing service plan and determining which services to consume, as well as participation in staffing, management, and governance of the agency. . Client organizing around food issues will be encouraged and client view and participation will be central to all action. . System values for the delivery of suppon service include: .. Recognizing that agencies exist to meet people's needs, not the other way around; .. Realizing the agency role is to assist clients to reach dreams and goals and build on their capacity and networks; .. Valuing clients for choosing to allow the agency to be of service; .. Serving all those in need; .. Providing flexible, inclusive services that seek to meet the needs of clients; .. Providing support services in the context of community; .. Providing suppon services to restore social bonds, nurture communitY, engender self sufficiency are the outcome goals of the homeless suppon service delivery system. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 159 . . - ~ .' . .' - . . .. .... . Appendix 3: Committee Guiding Principles . . Integrated Health\MentaI HealthWcohol and Drug Committee Guiding Principles . The system of housing and services for special needs/groups who are homeless or at immediate risk, must be client centered and driven. . Housing and services should be provided to special needs groups in the spirit of creating client independence. Recommendations and referrals shall not preclude client choice. . Services must be provided in accordance with people's needs, services desired, as available. Capability to access them is a real issue for clients receiving services--in case management, some refuse housing. Client choice/need should govern service access, not program rules or funding streams. . Create a flexible system that accommodates different structures we need to bridge. . Provide a spectrum of services within community so that people can be served somewhere, if not everywhere. . Services should meet people's willingness and interest, not program guidelines. . Eligibility guidelines should not unduly restrict clients access, especially in emergency circumstances; shortage of supply of services is what cause restrictions, to reach those most in need; intake worker and agencies need to have discretion in allocating services. . Everywhere within the system, providers must take responsibility for the client who contacts them. . Housing must be equally available to all special needs groups, and not contingent on service access. Those who are service resistant, who do not meet program criteria or who are active substance abusers, should receive housing and services somewhere within the system, and shall be appropriately directed by the first agency they contact. Clients should receive placement and/or referral through place they first contact. . Sufficient housing and services must be available and accessible to special needs groups so as not to force drastic client choices, such as incarceration or hospitalization, as the speedy path to housing, meals and medical attention. Alameda County-Wide Homeless Continuum of Care Plan: April 1 997 160 Appendix 3: Committee Guiding Principles · Stability of services and housing is key to survival for many special needs clients; thus, continuity of service delivery and housing must be sustained, and careful discharge and transition plans created by the discharging institution to facilitate smooth access to continuum components. · The delivery of housing and services to special needs groups should consciously create a spirit of community among clients, providers, and the broader populace. Public education, prevention of homelessness, and community acceptance of care centers are linked to how services are delivered. The continuum of care plan should enable clients, providers, and all to join efforts towards serving those with special needs. · Housing upon discharge from special needs care shall be to an environment conducive to wellness. . Special needs services must be accessible, respectfully offered, designed to meet multiple needs at initial intake locations, and coordinated between agencies. . Special needs groups includes homeless and at risk people (and family members dependent on them) with medical, mental illness, AIDS/HIV, chronic dual diagnosed. severe chronic mental illness, physically disabled in a way that makes service hard to access; those with multiple issues, combinations of these, or whose access to care is_ - complicated by recent incarceration. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 161 . .: -.- ... .-- ~;::. -.. '... - .. ," -. ..... '".-. ..-. '.' " , - .::.-, . Appendix 3: Committee Guiding Principles Plan Administration Committee Guiding Principles . . . After-links (follow-up care) should be added to the system of service delivery, so we can understand the long-term impact of those services. Data collection system will include information coming from aftercare. . Service delivery must be re-varnped where necessary, and beneficial and efficient after careful analysis and consultation to become coordinated, streamlined, and client driven. . The continuum needs to develop a common approach to service delivery, which is user friendly, protects client confidentiality, and builds trust and privacy at all levels. . Resources must be raised to support the adequate delivery of services to meet client needs. Streamline raising of resources for greater system efficiency. . Appropriate technical assistance will be provided throughout the system. . The comprehensive homeless suppon service delivery system shall be developed to reflect this Plan-assuring that sufficient dollars and services are available, and the system is coordinated with the Plan. The Plan needs to be responsive to changing conditions and flexible. . The emphasis in this system shall be on interagency coordination. Community-based nonprofit service providers are now the place where fragmented government systems come together, and this misplaced burden results in muddled, bumpy, exhausting extra work. . Existing services are the baseline for developing the comprehensive homeless support service delivery system. Maintaining the existing county-wide effort is required to deliver adequate services to homeless people. . This Plan will allow the creation of a unitary system of reporting, which incorporates all the information needed by funders to adequately account for resources and for providers to share outcomes. The unitary system will be reviewed every 2 years. . The collection and reporting of data must be coordinated so as to ensure accuracy and consistency in: ... reports and applications; ... funding cycles, data collection. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 162 Appendix 3: Committee Guiding Principles · Service delivery reports to funding providers, monitoring agencies, local government and external bodies must be revamped where necessary to become coordinated. streamlined, and client driven. · Methods should be developed to collect information as services are delivered. Data collection methods will be designed so that information needed for the system can be gathered simultaneously with serving clients. These data methods will be appropriate to service provided. · The system of data collection should coordinate with other national, regional, and local MIS that exist and/or are being developed, as appropriate. · MIS efforts should build upon and benefit from all systems reform efforts, not over-invest in new efforts. · Jurisdictions may require additional data as needed, if it does not require different collection or translation of data. . Alameda County-Wide Homeless Continuum of Care Plan: April 1997 163 .' " . ~:.:. .., ... .:.. + . ,.".". :..... ...' .." . . . Appendix 3: Committee Guiding Principles [Blank Page] . . Aijuneda County-Wide Homeless Continuum of Care Plan: April 1997 164 . APPENDIX 4 Bibliography ,. .\':, .,." ~,. . ..r" ".:..- . - MWhat I need now that I am not getting is pennanent housing, furniture, 17UJnthly bus passes, and some food stamps. .. Homeless 17UJther of 2 in Hayward, 1996 ..- ....:. ':-' , ;.::. , " .-... .',' -.. , . Appendix 4: Bibliography . . BIBLIOGRAPHY Acevado, Andres, et al. There's No ~ Called Home: A. Needs Assessment Qf Homeless Children in Alameda County. Coro Foundation, Northern California, 1991. Alameda County and Oakland General J2aIa Report: Intake Information. ESN: FY. 1993-1994. Alameda County CHAS Repon 1223.... Alameda County Data Reports. ESN: January-March, 1994. Alameda County Desi~ated ~ Board: Local Emer~ency Shelter Strate2)' (LESS)' The Housing and Community Development Program of the Alameda County Planning Depamnent. Homelessness.in Alameda County. July, 1995. The Housing and Community Development Program of the Alameda County Planning Depanrnent. Inventory Qf Subsidized Rental Housin~ in Alameda County. August, 1993. Alameda County ~ Services A~ency ~.cmm:t hx Citx... 1994. Alameda County ~ Services A~ency General Assistance Client Profile. March. 1995. Alameda County Social Services Aeency Overview .of lLR...TIJ!;. Personal 'Res.ponsibility .a.nd. ~ Opportunity Reconciliation Act.ml226.... August, 1996. Baseline D.ata .on Homelessness .in Berkeley. June, 1993. City and County of San Francisco. Continuum Qf .em.:. A EYe. .Year Strate2ic Homeless Elan... 1995-2000. San Francisco, CA. October, 1995. City of Alameda Housing Authority. Homeless Families Prowam. (Section 8 Housing Vouchers. ) City of Berkeley. Consolidated Ban.fur. Housin2 mul Community Development. 1995. City of Berkeley, et al. Alameda County Continuum .Qf ~ Parmershi.p. June, 1996. City of Indianapolis. ~ Consolidated flan. November, 1994 Alameda County-Wide Homeless Continuum of Care Plan: April 1997 165 Appendix 4: Bibliography . .c.ill! ill Oakland: Homeless flan.. June 1993. City of Oakland Office of Housing and Neighborhood Development. Comprehensive Housin~ Affordability Strate~ (CHAS) October I. 1993 - September 30. 1998. Oakland, CA. December, 1993. City of Oakland Office of Housing and Neighborhood Development. Consolidated fl.an fur Housin2 and Community Development July 1. 1995 - June 30. 20eXl Oakland, CA. May, 1995. City of Pleasanton. Various materials on affordable housing programs in Pleasanton. Consolidated.flan fur Alameda County HOME Consonium. Alameda City, CA. June, 1995. Eden I&R, Inc. Housing statistics for the Bay Area. Emergency Services Network of Alameda County. Homelessness in Alameda County. 1988. Emergency ShelterProgram, Inc. Quarterly Statistics: January - March 1996. HomeBase. Contra..c.osta County Continuum D.f ~ Homeless .f1an. July, 1996. . HomeBase. Homelessness mu1 ~ Conversion: .Einal Re.port .1Q ~ .Eut Bay Reinvestment Commission. San Francisco, CA. 1994. HomeBase. Homelessness in the Bu Area.:. Transform .Basic. Causes: :Meet Human Needs. San Francisco, CA. 1994. Homelessness in Alameda County: A Ban .by ~ Alameda County Task ~ .QD. Homelessness. August, 1987. The Housing and Community Development Program of the Alameda County Planning Department. Homelessness in Alameda County: A Rq>>on M Homeless Needs. Available Resources .am! Service .Galls fo.r ~ DevelQpment D.f it. County-wide Continuum Qf .care.... Hayward, CA. July, 1995. Northern California Community Services Council, Inc. Alameda County Needs Indicator Profile: Priority Demo~hic, Population.and Service Needs Indicator Dati.. San Francisco, CA. 1994 Update. 1995. Oakland Private Industry Council. Oakland Workers :and ~ 1..abor Market. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 166 . .'. . .' . - .'. . --;.' . Appendix 4: Bibliography OcclWational Outlook: Alameda CountY l225.... . . Office of the Alameda COUDty Homeless Coordinator. Toward a Continuum Qf .care in Alameda County: Plannin~ Comprehensive Assistance IQ Homeless People. Alameda County, CA: Alameda County Social Services Agency, July, 1994. Reardon, June. HIV / AIDS Epidemiolo2Y Profile Qf ~ East ~ California: Alameda County. Contra i&sta County for HIY. Prevention Community Plannini. October, 1994. Regional Task Force on the Homeless. The Distribution Qf Public .B.mds for Homeless Services and Cllm Assistance in San ~ County. January, 1996. RobertSOn, et al. Health SWus .and Access IQ Health Services amoDi Homeless Adults in Alameda County. March, 1993. San Francisco Development A2ency: Strateiic flan.. November, 1993. Service Orpnizations in Alameda County: Resource Guide. ESN: 1995. Shiftini ~ Burden: The Impact Q[ ConiTessionaJ Proposals QIl Alameda County's food allil Nutrition Security. June, 1995. Alameda County-Wide Homeless Continuum of Care Plan: April 1997 167 Appendix 4: Bibliography . (Blank Page] ," ,.. \:-: .:: .;" Alameda County-Wide Homeless Continuum of Care Plan: April 1997 168 -:" "