Transitional Services for Homelessness Families

by Michelle Mullenix

Background

Homelessness is a growing social problem. There is evidence that affordable housing for low-income families is declining. Housing stability is a serious problem for low-income families with fluctuating income or with problems such as domestic violence, substance abuse, or mental illness. The problem may worsen as a strong economy leads to higher rents and higher housing prices. Recognition of this problem has led to increased state interest in transitional homeless programs http://nch.ari.net/numbers.html.

Under the Personal Responsibility and Work Opportunity Reconciliation Act of 1996 (PRWORA), many homeless families will be required to find and retain employment. In many cases these recipients will be required to learn new skills and look for permanent housing at the same time. These individuals will need more than just shelter. They will also need a variety of supportive services including job search and placement, additional education and training, addiction or mental health services, and financial management.

A comprehensive approach to prevent homelessness requires a variety of strategies that include emergency responses, the creation of new housing stock, expanded-financial subsidies, the development of transitional programs and services to prevent homelessness. This paper examines ways that states and communities can develop and support programs that will provide a more effective transition from homelessness to both stable housing and self-sufficiency.

Policy Issues

In designing programs to help homeless families address the joint problems of homelessness and employment, states and communities may wish to consider the following policy issues.

What are the major factors contributing to homelessness? Homelessness can be attributed to an overall shortage of housing, lack of available jobs, physical and psychological abuses and unobserved traumas. A growing overall shortage of affordable rental housing is one major factor. This shortage is primarily a product of a declining stock of low-cost housing. Many low rent properties are being demolished or converted to higher cost facilities. In addition, few investors are interested in investing in low-income housing while more lucrative markets are available. The impact of this shortage is intensified through increased competition for the available stock of housing as welfare reform recipients and low-income workers vie for the same housing stock.

This overall shortage is exacerbated further by the fact that many welfare recipients may be required to seek jobs in metropolitan areas where the growth of housing is being outpaced by the growth of jobs. This mismatch of employment opportunities and affordable housing makes it more difficult for TANF recipients, particularly those who may already be homeless, to find jobs. It also contributes to transportation and childcare problems that may pose additional barriers to resolving homelessness.

The impact of physical and psychological problems such as substance abuse, mental illness, and domestic violence are also contributing factors to homelessness. Many states report that there is a large demand for homeless shelters due in part to cases of domestic violence. In 1996, it was estimated that 20-25 percent of the single adult homeless population are mentally ill (http://nch.ari.net/wwwhome.html). In addition, low-wage workers may have temporary financial set backs due to child care or illness and need temporary help but are unable to get it. Difficulties in managing money can also be contributing factor to homelessness. Some individuals may have difficulty budgeting rental expenses because they lack money management skills. In many of these situations emergency shelters can often serve as a temporary respite, but they do not in themselves, offer solutions to most of these problems.

Since the services needed to find and maintain permanent housing and employment will vary depending on the problems confronting individual families, states will want to work with community organizations and other service providers to accurately define the specific characteristics of their own homeless populations.

What supports are needed to help low-wage workers transition into a stable housing environment? Transitional services are designed to offer financial, social, and emotional support for up to two years that will allow homeless families to find and maintain a stable housing environment. TANF recipients can use a variety of employment related transitional services that will also assist adults in homeless families to find and maintain jobs. Housing related services include emergency assistance, transitional living arrangements, and assistance in finding permanent housing through apartment finding, credit arrangements, and ongoing financial assistance. Some employment related services include transitional employment, job search and job search preparation, specialized training, childcare, and transportation. Other services include guidance on working with child support agencies, domestic violence counseling, parenting classes, advanced training or skill development, and money management. In addition, food stamps and Medicaid can be critical services needed by those transitioning from homelessness. While these support services can help stabilize situations that might otherwise lead to homelessness many individuals transitioning from homelessness are unaware of their eligibility for these services and how to tap into them. For information on outreach activities around Medicaid and food stamps contact Victoria Wegener (vwegener@financeproject.org) at the Welfare Information Network.

What role can collaboration play in providing transitional services for homeless families? There are multiple key partners that take part in moving welfare recipients from homelessness to having a home. Collaboration can include: state and local governments, for profit and non profit agencies, employers, training programs, child care providers, child support and child welfare agencies, and community-based groups. Collaboration can maximize funding streams, provide fewer contacts and less paper work for individual recipients in the system, and reduce duplication of efforts among partners. Typically, community-based groups and faith-based groups have taken an active role in collaborating. Some examples of the services provided through collaborative efforts include: transitional assistance for individuals needing rehabilitation programs, legal services, education and training programs, job assistance, classes on child development, assistance with parenting and communication skills, as well as the role of an intermediary with the child welfare and child support agencies. For examples of how community-based groups and faith-based groups have actively played a role in collaboratives and providing transitional services refer to: www.welfareinfo.org/faith.html and www.welfareinfo.org/communitycollabs.htm. Many other examples of coordinated arrangements amongst agencies and organizations can be found on WIN’s Interagency Coordination Page (http://www.welfareinfo.org/coordination.htm) and Community-Based Strategies pages (http://www.welfareinfo.org/collaboration.htm).

What financial resources are available to assist in funding transitional programs for homeless families? TANF grants can be a source of funding for transitional homeless services. The final TANF regulations have confirmed and expanded the principle that using TANF funds for non-recurrent, short-term situations does not constitute "assistance." One area of particular importance in transitioning homeless families is the states’ ability to make payments to meet short-term needs (not to exceed four months) to families without the payments counting towards the time limits. States also have more flexibility in collaborating with other community organizations under the final TANF rule. This rule eliminates the federal requirement to collect or report detailed data on individual families receiving TANF-funded "non-assistance". It still is important to continue the collection of data needed for the design of effective programs and to justify future funding. For more information on allowable financial supports that are not considered assistance refer to the TANF Regulations, http://www.acf.dhhs.gov/programs/ofa/finalru.htm and CLASP Guidance http://www.spdp.org

The Stuart B. McKinney Funds are another funding stream that can be used in conjunction with TANF funds or as separate funding stream. The McKinney Funds act as the umbrella for homeless programs funded through the U.S. Department of Housing and Urban Development (HUD). These programs include the Supportive Housing Demonstration Program (SHDP), Supplemental Assistance to Facilities, and Assist the Homeless. For more information on the McKinney Funds refer to http://www.hud.gov/homeless.html

At least a portion of the homeless population may find permanent housing in subsidized housing. The Welfare Information Network is in the process of developing a new publication that will describe place-based approaches to increasing employment for hard-to-serve families and the financial resources available to fund the costs of these programs. This publication is expected to be available early in 2000.

Research Findings

On December 8, 1999 the U.S. Department of Housing and Urban Development (HUD) released a homeless report outlining the homeless situation in America. HUD’s survey, completed in 1996, interviewed 4,207 people (homeless and low-income) and representatives of 11,909 homeless programs. The interviews were conducted in 76 metropolitan areas, small cities, and rural areas. The survey found that the top priority of the homeless was to get a job, the first step to self-sufficiency. The study also found that most people who become homeless have suffered a traumatic event and with federal and other programs can escape homelessness. Seventy-six percent of those living in families and 60 percent of those living alone were able to move out of homelessness after the completion of an assistance program.

HUD’s report was designed to fill in the gap from the last national survey conducted by the Urban Institute in 1987, which estimated that there were between 500,000-600,000 persons in homeless shelters in any given week (see http://www.urban.org/news/factsheets/homelessFS.html). HUD’s report was not designed to count the number of homeless people but rather provide up-to-date information about how this population has changed. Thus, it is necessary to rely on the projections of The National Coalition for the Homeless which suggests the 1987 number has increased by five percent a year and estimates the number of homeless in shelters now to exceed 700,000. For more detailed information on their projections refer to (http://nch.ari.net/numbers.html). In addition, the National Coalition for the Homeless estimates that there are an estimated 2,000,000 people that may face homelessness in a given year.

A number of studies have examined the characteristics of the homeless but in more detail. According to a 1998 study from the Homes for the Homeless and the Institute for Children and Poverty, 68% of homeless parents 25 years and older have not completed high school and four out five homeless parents nationally are unemployed. Additional research from Homes for the Homeless has shown that 37% of the homeless families today are homeless for at least the second time.

A Center on Budget and Policy Priorities study on January 15, 1998 shows that one of the leading causes of homelessness is the shortage of affordable housing. The study reports that three of every five poor renters spend more than half of their income on housing. Additional research related to the impacts of homelessness on children, families, shelter availability, education, and employment can be found on WIN’s web site at http://www.welfareinfo.org/homeless.htm

Innovative Practices

The following programs give a small representation of the types of transitional homeless programs across the country.

Supportive Housing Project, located in Macomb County, Michigan, provides assistance to homeless persons suffering from mental illness and/or substance abuse. Once the person has found an adequate apartment, the program staff determine the appropriate treatment plan and begin providing supportive services. The supportive services can include providing up to four months of rent or food or providing for other needs such as basic furniture. The staff monitors the individual by making regular calls and visits at their home. The individual is expected to attend treatment services and strive toward financial self-sufficiency after four months. The caseworkers will continue to monitor their progress for up to one year. After the first year of operation, July 1997 - June 1998, seventy-seven percent of the participants were financially self-sufficient and one hundred percent achieved independence by utilizing community resources for their needs. The second year of operation also yielded successful and similar results, including 76 percent following through with treatment. (Contact: Gary Burnett, Agency Supervisor, Macomb County Community Mental Health Services, 46360 Gratiot Ave., Chesterfield, MI, 48051, (810) 948-0228 ext.238).

Housing for Homeless and Working Poor, located in Bend and Redmond, Oregon, now provides affordable and transitional housing for low-income and homeless families. In 1992, the community began to fundraise and in less than three years achieved their goal of $4.7 million for the purchase of an apartment building. It was the community’s support that enabled this center to achieve its goal and be built. The program provides 70 subsidized-rent apartment units, 30 for transitional housing and 40 for permanent occupancy. In addition to affordable housing, supportive services are offered to families making the transition from homelessness or who are threatened by homelessness.

The residents receive case management, job training, educational training, advice from the on site employment specialist and reductions on rent if complying with program rules. The Central Oregon Community Action Agency Network (COCAAN) which helped develop this property by forging a series of public and private partnerships, operates the Bill Healy Transitional Housing Center on behalf of the program and provides the additional services to the residents. In 1997-1998 the goal was that 25 percent of the participants become financially independent. In fact, the results were that 43 percent no longer received TANF. (Contact: Sharon Miller, Project Director, COCAAN, 2303 SW First Street, Redmond, OR 97756, (541) 548-2380).

Project Comeback, of the SoHo Partnership, located in New York, New York, is a six-month program offering comprehensive employment readiness training. In 1992 SoHo Partnerships was created to provide job training to homeless individuals recovering from alcohol and drug abuse through community enhancement projects. The six-month paid internship enables the individual to get back on his/her feet while receiving training and counseling. The formerly homeless receive counseling, peer support, presentation skills, resume writing, interview skills, money management, job-related workshops, internship placement, and transitional support. In addition, the surrounding community benefits from the work of the participants. This includes street sweeping, refuse removal, a community-wide recycling program, tree care and maintenance, an urban parks renewal project, and snow and ice removal. Peer support also plays a vital role in the participant’s success. A peer advisor program gives clients with tenure the opportunity to offer support and direction to new clients. Toward the end of the six-months, work opportunities are identified for eligible clients and referrals are provided for full-time employment. For the year 1997 - 1998 about 70 percent of the graduates obtained full-time employment and, after a year, 70 to 80 percent of these were still employed. This may be attributed to the follow-up services, which are included, and individual incentives offered to encourage long-term employment. (Contact: The SoHo Partnership, Carol Davis, Program Director, 114 Green Street, 5th Floor, New York, NY 10012, (212) 274-0550 ext.18).

The Service Providers Team for Homeless Families, located in Montgomery County, Maryland, was formed to improve service quality and simplify the process for families seeking help. The goal was to help them achieve self-sufficiency. The team is a combination of the private non-profit community workers and County Department of Health and Human Services (DHHS) program managers. To accomplish the goal, the team developed case plans, time limits, guidelines, and a single point of entry for referrals into their programs. The single point of entry, known as DHHS Crisis Intervention Units, was the crux of the program. All families enter the emergency shelter the same way and case presentations were made on each family within 30 days of placement in the emergency shelter. The case plans of all the case managers are included in the presentation. The plans must have clear, identifiable goals for the family. In addition, the plans should attempt to move toward the agency’s overall goals to reduce the length of stay for a family in shelters to 90 days and in motels to 14 days. No additional funding was needed to implement or run the program.

The team models this approach after the continuum of care, looking at the needs of both the family and the housing situation. In one year, the average length of stay in a shelter for a family was reduced from 83 days to 46 days and in a motel from 15 days to 4 days. (Contact: Karen Buckingham, Montgomery County, 1301 Piccard Drive, 2nd Floor, Rockville, MD 20850, (240) 777-4082).

The Bakersfield Homeless Center (BHC), located in Bakersville, California, provides transitional housing and permanent placement, job training, language classes, access to health care, mental health and addiction services, abuse counseling groups, GED and literacy classes, parent effectiveness training, and children’s day care in order to help the homeless become self-sufficient. Since the BHC opened in 1991, 1,583 people have been placed in jobs and 1,011 have been placed in permanent housing. During that same time period, BHC has provided over 367,225 bed spaces and 1,200,012 meals. BHC is operated by a local non-profit organization called Bethany Services. The facility is owned by the City of Bakersfield and leased to Bethany Services for $1.00 a year. BHC receives other funding from community donations, federal and, state grants. (Contact: Bakersfield Homeless Shelter, Lucio Sanchez, 1600 East Truxtum Avenue, Bakersville, CA 93305, (661) 322-9294).

For More Information…

RESOURCE CONTACTS

Arkansas Division of County Operations, Everlean Porter or Thomas E. Green, (501) 682-8723

Center on Budget and Policy Priorities, (202) 408-1080, www.cbpp.org/hous212.htm

Chicago Coalition for the Homeless, Julie Dworkin, (312) 435-4548

Chinatown Community Development Center, http://www.wenet.net/~cchc

Coalition for the Homeless, Inc., Marlene Gordon, (502) 589-0190

Homes for the Homeless and the Institute for Children and Poverty, http://www2.HomesfortheHomeless.com/hfh/

National Alliance to End Homelessness, http://www.naeh.org/

National Coalition for the Homeless, http://nch.ari.net/wwwhome.html

National Law Center on Homelessness and Poverty, http://www.nlchp.org/

Shelter Partnership, Inc., Glenda Low, http://www.shelterpartnership.org/

U.S. Department of Housing and Urban Development, http://www.hud.gov/homeless.html

Wisconsin Department of Administration – Division of Housing, Judy Wilcox, (608) 266-9388

PUBLICATIONS

"America’s Homeless Children: New Outcasts." 1999. The Better Homes Fund, (800) 962-4676.

"In Search of Shelter: The Growing Shortage of Affordable Rental Housing." January 15, 1998 Center on Budget and Policy Priorities. www.cbpp.org/615hous.pdf or at (202) 408-1080.

"Day to Day…Parent to Child: The Future of Violence Among Homeless Children in America." 1998. The Institute for Children and Poverty. http://www.opendoor.com/hfh/day2.html

"Face of Homelessness." October, 1999. Logan, Scott. National Association of Counties. http://www.naco.org/pubs/research/issues/homeless.cfm

"Homelessness State and Local Efforts to Integrate and Evaluate Homeless Assistance Programs." June, 1999. U.S. General Accounting Office. GAO/RCED-99-178.

"Homelessness Ten Basic Questions Answered." 1987. Urban Institute. http://www.urban.org/news/factsheets/homelessFS.html

"How Many People Experience Homelessness?" February, 1999. The National Coalition for the Homeless. http://nch.ari.net/numbers.html

"Impact of Welfare Reform on Developments Financed." January, 1999. Massachusetts Housing Finance Agency. www.mhfa.com

"The New Poverty: A Generation of Homeless Families." 1992. Homes for the Homeless. http://www.opendoor.com/hfh/p2.html

"Summary: A Status Report on Hunger and Homelessness in American Cities – 1998." The U.S. Conference of Mayors, http://www.usmayors.org/uscm/homeless/hhsummary.html

"Ten Cities A Snapshot of Family Homelessness Across America." 1997-1998. Homes for the Homeless and The Institute for Children and Poverty. (212) 529-5252

"The Use of TANF Funds to Provide Housing and Homelessness Assistance: Implications of the Final TANF Rules." August 13, 1999. Sard, Barbara. Center on Budget and Policy Priorities. http://www.cbpp.org/8-13-99hous.htm

Understanding Homelessness: New Policy and Research Perspectives. 1997. Culhane, Dennis P. and Hornburg, Steven P. Fannie Mae Foundation. http://www.fanniemae.com/

"The Widening Gap: New Findings on Housing Affordability in America." September, 1999. The U.S. Department of Housing and Urban Development. http://www.huduser.org:80/publications/affhsg/gap.html