99-260Council FYIe # q9 •.�.
Green Sheet # �o3�j q
RESOLUTION
C�VT PAUL, M�NNESOTA �7
�
Presented
Referred To
Committee Date
RESOLUTION DIRECTING THE PREPARATION OF A REPORT ON THE
CITY'S REPLACEMENT HOUSING POLICY
1 WHEREAS, Chapter 93 of the City's Administrative Code is the City's Replacement Housing Policy
2 states that
3 The City of Saint Paul fznds that it is in the public interest to promote the production and
4 preservation of an adequate suppZy of decent, sanitary, safe and affordable rental housing for
5 low-income residents. The City desires to effect a policy and procedure whereby the potentiat
6 loss of such rental housing due to a city-assisted development project will be reviewed in
7 relation to the overall housing supply of affordable housing in the City, and where appropriate,
8 based upon the determination of the City Council of the City of Saint Pau1, a plan will be
9 developed to replace Zost rental housing with housing that meets the current needs of the City's
10 low-income residents.
11 WITEREAS, the Replacement Housing Policy has been in place since 1989; now, therefore, be it
12 RESOLVED, that the Saint Paul City Council directs the Deparhnent of Planning and Economic
13 Development to report on the overall implementation over the last ten yeazs of Replacement Hou�sing
14 Policy, Chapter 93 of the Administrative Code, on May 26, 1999.
Requested by Departinent o£
�
Form Approved by City Attomey
�
Adoprion Certified by Council Secretary
Approved by Mayor for Submission to Councff
By:
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Approved by Mayor: ate
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Adopted by Council: Date"� �2-'�{ ��'�`1
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PLANNING COMMISSION
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Has this persoMrm ever urorked uMer a contract fw this depaitmenl7
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INFORMATION (IXPWN)
99-a�a
ST . PAUL/RAMSEY COUNTY
FIVE-�E�iR LOW INCOME HOUSING
AND HOMELESS SERVICES
REPORT AND PLAN
►-�
January 1999
�q- a � a
TABLE OF CONTENTS
EXECUTIVE SUMMARY
ChapterL
INTRODUCTION
Organization of the Report and Plan
Key Trends
Chapter II:
THE CURRENT SYSTEM
The Continuum of Care
Housing
Services
Funding for Homeless Services and Programs
Acquisition of Properties
New Development
Chapter IIL•
HOMELESSNESS INRAMSEY COUNTY
Background
Who are Ramsey County's Homeless?
Single Adults
Homeless Veterans
Persons with HIV/AIDS
Families
Unaccompanied Youth
The Invisible Homeless
Causes of Homelessness
The Affordable Housing Crisis
Insufficient Wages
Mental Illness and Chemical Dependency
Domestic Violence
Racial Discrimination
Community Support for New and Additional Services
Prevention Strategies
Chaprer rv
FITjE YEAR PLAN
1
3
3
6
7
6
10
12
13
13
14
14
16
17
20
21
22
25
27
28
29
42
43
46
47
48
48
51
BIBLIOGRAPHY
APPENDICES
Appendix A Oversight Committee
Appendix B Data Sources and Research Methodology
Appendix C List of Recommendations
LIST OF CHARTS AND TABLES
Chart 1. Emergency Shelter Capacity
Chart 2. Transitional Housing Capacity
Chart 3. Permanent Supportive Housing Distribution
ChaR 4. Emergency Shelter Use in Ramsey County,
Single Adults and Families, 1997
Chart 5. Battered Wo�meds Shelter Use, 1997
7
9
10
14
IS
Chart 6. Transitional Housing Use in Ramsey County, 1997 15
ChaR 7. Comparison of Single Female Emergency Shelter Users 18
with Single Female Transitional Housing Users, 1997
Chart 8. Race of Adults with Children Entering Emergency Shelter, 1997 23
Chart 9. Race of Children Entering Emergency Shelter, 1997 23
Chart 10. Income Compared to Housing Affordability 43
Table 1. Males and Females Alone Entering Emergency Sheker, 1997 18
Tabfe 2. Racia[ and Ethnic Composition of Homeless Youth, Statewide 26
Table 3. Number and Percentage of Households Earniug 36
Less than $20,000 Unable to Afford Housing
� 9-a�o
EXECUTIVE SUMMARY
Homelessness continues to plague both its victims and the community as a whole
despite the efforts of dedicated local, State and national funders, service providers,
elected officials and advocates. Between 1991 and 1997, an estimated 30,000 different
persons accessed emergency shelters, battered women's shelters, and transitional housing
programs in Ramsey County.
Reseazch conducted during this planning effort revealed a range of causes and
effects of homelessness. Among the causes are: continuing and growing poverty; mental
illness; chemical dependency; domestic violence; and family strife. Racism and
discrimination must also be recognized as contributing factors. It is unlikely that it is
only a coincidence that 75% of the residents of Ramsey County's family sheiter aze
African American.
Perhaps the greatest barrier to escaping homelessness is the severe shortage of low
income, affordable housing. This condition places additional pressure on emergency
shelter and iransitional housing programs. Alleviating the housing shortage would not
only impact homelessness, but also it would benefit economic development and growth in
the city and county, since the labor shortage is having a widely acknowledged effect on
the ability of azea businesses to maintain and expand production and there is widespread
agreement that stable housing and a stable labor force aze closely linked. Moreover,
empirical evidence has shown that children's school performance declines significantly in
proportion to the instability of their living conditions.
9�1
Homelessness in Ramsey Cou_n�t
Last yeaz, about 3,600 people sought refuge in emergency homeless shelters in the
City of St. Paul and Ramsey County. One-quarter (or nearly 900) were children.
Approximately 150 persons in families were unable to be sheltered due to lack of space.
A total of 2,800 women and their children required the use of battered women's shelters.
Further, the Wilder Research Center estimates that, statewide, about 10,000
unaccompanied youth experience at least one episode of homelessness during the yeaz_
Transitional housing use has increased steadily over the last several years, due in
part to some added capacity to meet great demand. More than 1,000 persons, almost
three-quarters of whom were family members, accessed transitional housing last year.
There is a need for nearly 800 additional units.
The composition of the homeless population in Ramsey County is not
homogeneous. Single adults, families, unaccompanied youth, veterans, victims of
domestic violence, and persons of virtually every race and ethnicity ail count themselves
among the homeless. The fastest growing homeless group, however, is women and
children. In addition, the percentage of homeless persons who aze employed has
increased over the last several years.
The Plan
Recognizing and responding to these concerns, the St. Paul City Council and the
Ramsey County Board of Commissioners, in 1996, jointly endorsed a planning process
designed to assess the state of affordable housing and the homeless services delivery
system in the community, and devise a plan to address the gaps identified.
The result of this joint planning effort is this St. PauURamsey County Five-Year
Low Income Housing and Homeless Services Report and Plan. Developed on a
pazallel, and sometimes intersecting, track with the City of St. PauPs Comprehensive
Housing Plan, the Five-Yeaz Plan presents a series of recommendations grouped under
grouped under four broad categories: (1) Homeless Prevention; (2) Shelter and
Housing; (3) Homeless Services; and (4) Funding.
ii
Prevention
The recommendations around homeless prevention involve:
. The coordination and e�ansion of exisUng services to establish
a program to assist tenants and landlords so that families are
not forced into homelessness;
• The increased coordination of agencies and systems providing
services to youth;
• The continuation and expansion of efforts to reduce disparities
in housing and homeless services provided to people of color;
and
• The establishment of a Statewide Homeless Prevention Planning
Council.
Shelter and Housin�
The recommendations around shelter and housing involve:
• The provision of emergency shelter with a family reunification
focus for unaccompanied youth;
• The development of additional emergency shelter options for
homeless youth when family reunification efforts aze
e�chausted;
• The development of a 10-bed shelter for minor parents and
their children;
• The development of 100 units of transitional housing for single
adults, 100 units of transitional housing for families, and 50
units of transitional housing for youth;
• The development of 400 units of permanent supportive housing
for single adults, 200 units of permanent supportive housing
for families, and 50 units of permanent supportive housing for
youth;
iii
� 9-a�o
• The support of continued legislative funding dedicated to the
preservation of existing federally subsidized low income
housing;
• The establishment of a joint city/county policy to preserve
e3usting nonsubsidized low income housing stock;
• The creation of an Affordable Housing Owners Advisory Group;
• The development of private market low income housing
throughout the city, county and region by:
* Adopting a mixed-use, m�ed income policy;
* Tapping the resources and expertise of the business
community;
* Urging the legislature to establish stronger incentives to
improve the effectiveness of the Livable Communities Act;
and
* Supporting the goal of Habitat for Humanity to doubie its
production capacity in Ramsey County;
*
HOMELESS SERVICES
The recommendations azound homeless services involve:
• The increase of the capacity of agencies to deliver basic services
essential to breaking the cycle of homelessness;
• The provision of more intensive case management, counseling and
financial management services;
• The development of inechanisms to improve linkages between
property owners and social service providers;
• Urging all types of housing developers and homeless service
providers to seek partnerships with veterans service organizations;
• Providing or finding outside funding to. increase the hours and days
that youth drop-in centers are open;
iv
• Assessing the feasibility of creating a centralized system of intake,
assessment and record keeping;
• Seeking mechanisms to ensure that cultural competency training is
given to service providers;
• Seeking mechanisms to ensure tk�at necessary technical and financial
resources are provided to agencies of color.
Fuading
OnIy one recommendation is listed under this category, but it is perhaps
the most critical to the success of the plan. A wide variety of federal, State, local and
private enfities distribute a number of different grants. What is needed is a mechanism to
increase coordination and avoid duplication among the various funders and, using the
Five-Yeaz Plan as a guide, direct funding appropriately to address the hierazchy of
priorities. Creation of a Funders Council to work in concert to make sure that a coherent
system of allocating grants is established in which targeted proposals are solicited and
appropriafions are packaged, to the e�ent possible, to azeas idenrified as priorities under
the Five-Yeaz Plan. The effective operation of the council would, in addition, result in a
streamlined process for applicants. Through the establishment of this body, enormous
strides could be made in coordinating funding; avoiding duplications, conflicts or gaps in
funding; ensuring the most efficient use of financial and staff resources; and simplifying
the system for organizarions seeking funding.
The Five-Year Plan is an ambitious, yet achievable blueprint far
addressing both the symptoms and underlying causes of homelessness in our community.
It presents a strategy to prevent homelessness, assist those who are or will become
homeless, and fill the needs for and narrow the gaps in low income housing and homeless
services..
v
99-a�o
Chapter I
INTRODUCTION
Homelessness continues to plague both its victims and the community as a whole
despite the efforts of dedicated local, State and national funders, service providers,
elected officials and advocates. Between 1991 and 1997, an estimated 30,000 different
persons accessed emergency shelters, battered women's shelters, and transitional housing
programs in Ramsey County.' Here, as elsewhere, a constellation of issues -- some
economic, some personal -- underlie the persistent prevalence of homelessness. These
issues include poverry, mental illness, chemical dependency, domestic violence, racism
and discrimination, and, perhaps most importantly, the severe shortage of affordable
housing.
Recognizing and responding to these concerns, the St. Paui City Council and the
Ramsey County Board of Commissioners, in 1996, jointly endorsed a planning process
designed to assess the state of low income housing and the homeless services delivery
system in the community, and devise a plan to address the gaps identified.
This St. PauURamsey County Five-Year Low-Income Housing and Homeless
Services Repart and P[an (the Five-Year Plan ar the Plan) is the result of a coordinated
City/County effort, involving wide-ranging quantitative and qualitative reseazch,
conducted by and under the direction of an Oversight Committee, with the assistance of
several consultants, and the input from interested individuals and organizations.
' Wilder Research Center, Emergency Shelters, Transitional Housing, and Battered Women's
Shelters Data Collection Project, Seventh Annual Report (St. Paul: Amherst H. Wilder
Foundation, June 1998), p. iv.
Appendix A contains a list of the members of the Oversight Committee. The Family
Housing Fund provided financial support for the planning initiative, while the Corporation
for Supportive Housing provided administrative support during the planning process.
Consultant Eric Grumdahl was responsible primarily for compiling the quantitative data,
while the consulting firm Biko Associates, Inc. handled the qualitative data gathering
effort. Appendix B contains a description of the data sources and research methodology.
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Five-Year Plan, which addresses housing needs for low-income citizens and
the service needs for the county's homeless population, has been developed on a parallel,
and sometimes intersecting, track with the City of St. PauPs Comprehensive Housing
Plan, which looks at the full range of housing needs for all income levels.
In examining the underlying causes of homelessness, the housing shortage,
especially for people with incomes lower than 50% of the federal poverty Ievel, rises to
the top as the primary need to alleviate some of the pressure on working families and on
shelter providers.
Alleviating the housing shortage would not only impact homelessness, but also it
would benefit economic development and growth in the city and county, since the labor
shortage is having a widely aclrnowledged effect on the ability of azea businesses to
maintain and expand production and there is widespread agreement that stabte housing
and a stable labor force aze closely linked. Moreover, empirical evidence has shown that
children's school performance declines significantly in proportion to the instability of
their living conditions.
The Plan, in coordination with the City of St. Paul's Comprehensive Housing
Plan, proposes an overall housing strategy that combines preservarion and the
development of a mixed-income, mixed-use housing throughout the county.
The Five-Yeaz Plan contains a series of constructive, sometimes innovative
proposals. Many build on successful models that are already in place here or that have
been demonstrated to work elsewhere. The Plan represents an ambitious, yet pragmatic
blueprint designed to:
1) Help people and fanulies who aze homeless
or at risk of homelessness take control of
and responsibility for their lives and improve
their standazds of Iiving; and
2) Promote ways to increase opportunities
for homeless and low-income persons
to obtain affordable housing throughout
Ramsey County.
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
99 �°
Organization of the Report and Plan
The neact portion of this chapter contains a discussion of key trends identified
during the data gathering and reseazch portion of the planning process. Chapter II
describes the organization of the homeless service delivery system currently in place in
Ramsey County. Among the subjects covered are the Continuum of Care model;
emergency, transitional and permanent supportive housing capacities; a discussion of
homeless services; and how funding for programs aimed at homeless prevention and
assistance is presently coordinated.
Chapter III presents a thorough description of homelessness in Ramsey County. It
describes the various segments of the homeless population, discusses the many causes of
homelessness, including the low income housing shortage. Findings of the data gathering
effort and other research aze interspersed throughout this section.
Chapter IV, the final section, presents the recommendations that comprise the
proposed St. PauURamsey County Five-Year Low Income Housing and Homeless
Services Plan.
Key Trends
Three key socioeconomic and demographic trends were identified from the
reseazch conducted. They aze as follows: (1) poverty is on the rise and the income gap
between rich and poor is widening; (2) the percentage of homeless persons and families
who are working is growing; and (3) job and population growth will continue, which in
turn will increase the demand for even more affordable housing. These trends aze
discussed in more depth below.
3
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
♦ Poverty is on the rise and the income gap is wideninge
Countywide, a total of 54,000 people aze poverty-stricken; in the City of
St. Paul, more than 44,000 people (neazly 17%) live in poverty. Regardirig the
gap between rich and poor, "the disparity between the richest 20 percent and the
poorest 20 percent of families with children [Statewide] grew by 43 percent
between the late 1970s and mid-1990s, according to the Center for Budget and
Policy Priorities."
It is estimated that, in the City of St. Paul alone, there aze currenfly, 5,000
renter households in especially dire housing straits in that they aze either paying
more than half their income for housing or are living in extremeIy substandard
housing.
♦ The percentage of the hometess who are working is growing.
The percentage of homeless persons and families with full time or part
tune jobs is increasing. T'he Wilder Reseazch Center reports that, between 1994
and 1997, the percentage of homeless people employed around Yhat State
increased 30%; since 1991, the percentage rose almost 80%. At the same time,
however, "income generated from this employment is often not adequate to
support the cost of mazket rate housing." 6
' United States Census Bureau, 1990 U.S. Census Data, Database C90STF3A; available from
http://venus.census.gov/cdrom/lookup/901296831; Internet, accessed Ju1y 24, 1998 and United
States Census Bureau, 1990 U.S. Census Data, Database C90STF3A; available from
http://venus.census.gov/cdrom/lookup/901297528; Internet, accessed July 24, 1998.
° Joel Sawyer, "Gap between Minnesota rich, poor grew by 43%, group says," Star Tribune,
December 17, 1997; available from hYtp://webservl.startribune.com/cgi-bin/stOnLine/
article?thisStory=45530254; Intemet, accessed December 17, 1997.
' Kevin Diaz, "Low-income housing plan is raising questions," Star Tribune, July 28, 1998, p.
10. Housing is generally deemed affordable if it accounts for no more than 30% of household
income.
6 Wilder Reseazch Center, Minnesota Statewide Survey ofPersons Without Permanent
Shelter, Volume I: Adults and Their Chi[dren (St. Paul: Amherst H. Wilder Foundation, June
1998), p. xii.
n
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�9-a�o
♦ Continued job and population growth will necessitate the development
of even more affordable units.
Indications aze that the local economy will continue to prosper. Job
growth is expected to continue. Along with an expanding economy comes a need
for an expanding and stable workforce, for which housing stability is the linchpin.
Over the next few yeazs, the pressure to develop more low income housing,
presently in short suppiy, will only increase.
5
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�9-a�o
Chapter II
THE CURRENT SYSTEM
The Continuum of Care
Services to homeless individuals and families in Ramsey County are supplied
under a"Continuum of Care" model developed by the U.S. Department of Housing and
Urban Development (HUD) and designed to assist homeless persons to become self-
sufficient. The model identifies types of housing required at various stages of need for
individuals and families. The continuum comprises a series of progressive steps from
shelter to transitional housing to permanent housing, and includes supports where
necessary.
The components of the "Continuum of Care" may be diagrammed as follows:
Outreach
Intake
Assessment
� � �
Emergency Transitional Permanent
Shelter �` Housing — Housing
(with or without supports)
�
Permanent
Supportive
Housing
�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
HOUSING
Emergency Shelter
Emergency shelter is last resort housing. It is typically available to an individual or
family for no more than 30 days. In general, Ramsey County provides emergency shelter
services for families, while nonprofit organizations provide emergency shelter for single adults
and unaccompanied youth.
According to the most recent homeless survey, a combined total of 161 emergency
shelter beds are avai►able for single adults, families and unaccompanied youth.' About 56% of
the total capacity is available for single adults, 34% for families, and 10% for youth.
Chart 1. Emergency ShelYer Capacity
100
80
60
40
20
0
_ �
Single Adults Persons in Families Unaccompanied
Youth
Source: Wilder Research Center, Emergency Shelters, Tranritional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
WIlder Reseazch Center, Seventh Annual Report, p. 53. For families, the 55-bed capacity
reflecu the space available at the county-sponsored sheltec The St. Paul Area Council of
Churches operates an overflow service, general[y from June to October, altfiougfi in recent
years the churches have provided this service through Mazch or April. In addition, when
available, overflow shelter space is provided at the Naomi Famity Center, which is now
primarily used for Ransirional housing.
�1
St, Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
�4 a�o
In 1997, the Ramsey County Board of Commissioners resolved to build a new
Family Service Center, keeping capacity at its current level. The board moved
proactively upon ]earning that the current faciiity used to temporarily house families will
be unavailable when its lease expires on December 31, 2000. The Board's action not
only averted the potential loss of essential family shelter, but also creates the opportunity
to develop a higher quality service centerto replace the present facility.
On a parallel track, the Ramsey County Board of Commissioners and the United
Way of St. Paul have led an effort to mobilize private sector and charitable organizations
around the issue of homelessness. A fundraising campaign is under way to assist the
County in its mission to provide family shelter services and to find long-term solutions to
the vexing problem of homelessness.
Transitional Housing
Transitional housing is intended to serve individuals and families requiring stability and
support services. This type of housing is typically operated by nonprofit organizations, ofren
with financial support from federal, state or local grants, and provides lodging for a limited
period, generally no more than 24 months. Eligibility for these facilities frequently requires
residents to be working or in school. Most programs also require participants to remain chemical
free.
"1998 Ramsey County Honsing and Service Inventory Survey" (the 1998 Ramsey
County Survey), shows a total capacity of 665 transitional housing beds. The overwhelming
majoriTy of available space (about 74%) is reserved for families.
Eric Grumdahl, "1998 Ramsey County Housing and Service Inventory Survey"
Minneapolis: Corporation for Supportive Housing for the St. PauURamsey County Five-
Yeaz Plan Oversight Committee, May 1998). The survey was distributed to approximately
150 service providers in Ramsey County. The resuits of this effort provide the basis for the
recommendations contained in the Five-Yeaz Plan.
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 2. Transitional Housing Capacity
Source: Eric Grumdahl, "t998 Ramsey Counry Housing and Service Invenroty Survey."
Permaaent Supportive Housing
Permanent supportive housing combines residency wiih a strong system of
ongoing supports. This is a model that has proven successful in moving people with
chronic physical or mental problems out of homelessness. In fact, a recent study of
permanent supportive housing programs operaring in Ramsey, Anoka, Dakota and
Hennepin Counties found that, especially for the mentally ill or chemically dependent,
tlus type of housing can offer a cost-effective alternative to the "cycle of homelessness,"
which generally involves more expensive institutional caze settings.
According to 1998 Rarnsey County Survey, a total of 634 permanent supportive
housing units is available in the County, about 55% of which aze reserved for single
adults, 45% for families.
9 Terry Tilsen, Minnesota Supportive Housing Demonstratian Program One-Year Evaluation
Report (St. Paul: Wilder Reseazch Center, June 1998), p, ii.
E
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Families Atlults Youth
99-a�o
Chart 3. Permanent Supportive Housing Distribution
Source: Eric Grumdahl, "1998 Ramsey County Housing and Service Inventory Survey."
SER V/CES
Homeless persons in Ramsey County receive an assortment of services that
are offered by government, nonprofit or foundation providers. Services include:
assessment; benefits coordination; case management; companion services;
counseling; emergency/crisis assistance; financial management skills training;
food/clothinglfurniture; housing placement; information and referral; life skills
training; medical and mental health care; outreach; substance abuse treatment; and
transportation. Not all persons who are homeless require all services available.
The appropriate package of services must be assembled to address Yhe
particular set of baniers that any one individual or family face to finding housing
and achieving both stability and self-sufficiency. The 1998 Ramsey County Survey
10
St. Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Repor[
and Plan
inventoried the services provided to homeless singie adults, persons in families,
and unaccompanied youth. The results indicate some areas of strength and other
areas ihat call for additionat resources.
A particularly striking finding involves the racial composition of service
users in Ramsey County. The survey found that, on average, whites make up a
disproportionately high percentage of users of service, especially compared with
the proportion of shelter and transitional housing users they represent. For
instance, though they comprise 33% of those entering shelter, white persons use
89% of all life skills training services available for the homeless population.
Homeless Native Americans and Hispanic persons receive no life skills training
whatsoever.
Another significant finding involves the frequency of service usage in some
categories. The survey indicated that, for those homeless persons who receive an
assessment, each receives, on average, seven per year. In contrast, there appears to
be a substantial shortage of case management, counseling and financial
management services available; on average, each homeless person or family
receives only about six hours of case management, six hours of counseling, and one
hour of financial management services per year.
Discussions with currently and formerly homeless individuals brought the stark
realities of their everyday life into sharp focus. What most of us take for granted — such
as food on the table, ease of transportation, roomfuls of furniture — can be beyond the
reach of those with little or no means who aze in shelter or searching for a place to call
home. Services that provide these basic necessities aze essential to the reintegration of the
already homeless back into the mainstream, and the prevention of future episodes of
homelessness.
10 Case management is defined as a systematic process of ongoing planning, referral, service
coordination, consultation, advocacy, and monitoring through which multiple service
needs of clients are addressed. Counseling is defined as the provision of therapeutic
processes on personal, family, situational or occupational problems. Financial
management is defined as assistance — including consumer education, debt adjustment,
financial counseling, protective and vendor payments — to help individuals or families
manage their income so that they aze able to obtain the greatest amount of economic
stability. Of course, individual programs may provide more intensive hours of any or all of
these services.
11
St. Paul/Ramsey CounTy
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9q-a�o
For fanulies with mazginal incomes, access to a food shelf can mean the
difference between paying the rent and winding up homeless. Employment is the key to
maintaining stable housing, but if transportation is unavailabie or unaffordable, then the
lack or loss of income can shatter the tenuous hold a family may have on housing
stability.
Funding for Low Income Housing and
Homeless Services and Programs
Government, nonprofit and chazitable funders of housing and homeless services
programs all regulazly distribute a variety of grants. Available sources include the annual
HIJD McKinney Continuum of Care grants; the Section 8 Certificate and Voucher
Program, administered by the St. Paul Public Housing Agency and the Metropolitan
Council; federal Emergency Shelter Grant; the federal Department of Education's Title I
Program for Homeless Children and Families; the annual Federal Emergency
Management Agency's Emergency Food and Shelter Grant; the federal Community
Development Block Grant funds that aze provided to both the City of St. Paul and
Ramsey County; a number of Minnesota Housing Finance Agency (MHFA), including
the Family Homeless Prevention and Assistance Program (FHPAP) grants; several grant
programs administered by the Minnesota Department of Children, Families and Leaming;
several grant programs administered by the Minnesota Department of Human Services;
annual County appropriations for family shelter operations; several Metropolitan Council
programs; and assorted private and nonprofit contributions.
Often, these funders operate in a vacuum, establishing individual proposal rating
and grant disbursement processes each and every time funds become available.
Applicants often respond to many or a11 requests for proposals, while the funders are
generally unaware of which programs received what funding. The current system fosters
inefficient use of human and monetary resources.
In the past, attempts haue been made to connect some of the funders. In fact, this
planning effort resulted in part from a recommendation made by a group known as the
Homeless Implementation Task Force, which included among its membership the Family
Housing Fund, HUD and MHFA. These informal attempts at coordination were a step in
the right direction. However, there now is a critical need for a formal and comprehensive
12
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
mechanism to connect the funders, increase communication among them, and better
direct the funding sVeams to ensure that the dollars provided for the homeless services
delivery system are expended in the most efficient manner possible, that duplication is
avoided, and that funding is appropriately matched to the hierazchy of needs.
Acc�uisition of Pro�erties
It is now widely accepted that the Twin Cities aze facing an affordable housing
crisis. The current shortage of units affordable to low-income people makes the
preservation and prodaction of the units that do exist all the more vital. One serious
roadblock to preservation and production is the lengthy and often cumbersome process by
which abandoned, foreclosed, and taz� forfeiture properties transfer to prospective
developers. The smoother the transfer process, the faster properties can pass from
governmenY into the hands of private or nonprofit developers, and the faster additional
units can be generated. Further, the lesser the transaction costs, the greater the incentive
for the private mazket to redevelop properkies into low income or mixed use residences.
New Develo�ment
Financing is one of the keys to increasing the stock of affordable housing. Partly
because of their administrative ease, tax incentives have traditionally been seen as the
foremost spur to production. However, it may be argued that such incentives have not
been sufficient to persuade the private mazket to produce enough low income housing to
meet current demand.
Other approaches aze needed. New ideas, such as providing greater access to
government financing by nonprofit developers or creating subsidy pools tt�rough the real
estate tax surcharges, deserve a chance to be tested.
In addition, the issue of mixed use housing must be addressed. New housing is
most often geazed to a particular income bracket, despite the fact that housing analysts
13
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9'9-a��
generally agree that new development, both rental and ownership, should meet a range of
lifestyle needs and provide units that are affordable to families across a range of incomes.
The creation of income-integrated developments that can accommodate single families
and individuals, lazger families, and people with disabilities would break the current cycle
of development that perpetuates the concentration of pover[y, an economic condition
disfavored by policy makers, law enforcement officials and community residents alike.
14
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�i9-ac�o
Chapter III
HOMELESSNESS IN
RAMSEY COUNTY
i:. ,� � ��
Last yeaz, about 3,600 peopie sought refuge in emergency homeless shelter5 in the
CiTy of St. Paul and Ramsey County. One-quarter (or neazly 900) were children. The
1998 Ramsey County Survey identified 150 people in families who were unable to be
sheltered due to lack of space. An additional 2,800 women and their children zequired
the use of battered women's shelters." (See Charts 4 and 5, below.) In addition, there
has been a sharp and alarming increase in the number of unaccompanied youth seeking
shelter on any given night in Rainsey County.
Chart 4. Emergency Shelter Use in Ramsey County,
Singie Adults and Families, 1997
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housrng, and
Battered Wa�nen's Shelters, Seventh Annua/ Report, June 1998.
" Wilder Reseazch Center, Seventh Annual Report, pps. viii, x.
15
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 5. Battered Women's Shelter Use,1997
pWomen
■Children
Source: Wilder Reseazch Center, Emergency Shelters, TransitionalHousing, and
Battered Women's Shelters, Seventh Annua[ Report, June 1998.
Taansitional housing use has increased steadily over the last several years, due in part to
the addition of capacity to meet gowing demand. As showre below, more than I,000 persons,
almost three-quarters of whom were part of families, accessed transitional housing last year. The
1998 Ramsey County Survey identified a need of nearly 800 additional units.
Chart 6. Transftional Housing Use in Ramsey County,1997
Source: Witder Reseatch Center, Emergency She[ters, Transitiona! Housing, and Battered
Women's She[ters, Seventh Annua[ Report, June 1998. �
16
St. PaulBamsey County
FivaYear Low-Income Hoasing
and Homeless Services Report
and Plan
Families Females Males
q �-a�o
Emotional stress provides an additional burden for those who aze homeless.
Focus group participants described the following experiences as weighing heavily on
their emotional stability: anxiety stemming from being unsettled; anguish of watching
children unable to make and keep friends or who are the subject of abuse from
schoolmates and others; frustration with losing control of one's life; feelings of low self-
esteem; discomfort at being seen as different; and exasperation with being treated
disrespectfully.' For some, homelessness is a recurring experience. For others, it is both
a last step and a first step, the end of a cycle of despair and the beginning of a journey to
self-sufficiency.
Who are Ramsey County's Homeless?
The composition and chazacteristics of the homeless population in Ramsey
County is as varied as the causes of homelessness aze complex. Significant increases
have been noted in the appeazance of women and children in emergency shelter and
transitional housing, while the numbers of women and children accessing battered
women's shelters have been steadily rising. According to the Minnesota Department of
Children, Families and Learning (CFL), children now comprise 47% of those being
sheltered Statewide, twice the number they represented a decade ago. Further,
"[c]ompared to eazlier this decade, last year's emergency shelter population overall [in
Ramsey County] is...receiving or earning slightly more income....i
12 Biko Associates, "Report on Outreach Activities," (Minneapolis: Biko Associates, December
31, 1997), p. 32.
" Wilder Research Center, Seventh Annual Report, p. iv.
14 Kimberly Hayes Taylor, "Empty-promise land," Star Tribune, February 22, 1998, p. A8.
15 Wilder Reseazch Center, Seventh Annual Report, p. v.
17
St. PaullRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
a�d Plan
Who aze Ramsey County's homeless? They are people without resources and
support networks. They are single adults, many of whom have served their country in the
armed forces. They are families that have lost their housing due to eviction,
condemnation or the loss of utility service. They aze unaccompanied youths who cannot
remain in or return to their homes. They are women and children fleeing abuse, violence
and poverty, seazching for better jobs and better lives. Some struggle with mental illness
and drug and alcohol use. They aze from all races and ethnic backgrounds. And four out
of five aze from Ramsey County or elsewhere in Minnesota.�
SINGLE ADULTS
Single men and women comprise more than three-fifths of all those accessing
emergency shelter. The housing and service use patterns of single adults confirm that this
group comprises most of the hazdest to stabilize. More than four in ten single males will
require multiple shelter stays, an increase of almost 16% over the past two yeazs."
African Americans account for 54% of the single adult females and 44% of the
single adult males who enter emergency shelter in Ramsey County. Slightly more than
one-third of the single adult homeless population is white. Hispanic males constitute a faz
lazger proportion of the single adult male homeless population (16%) than they do of the
single adult female population (1%). Native Americans account for 4% and 3% of the
female and male single adult populations, respectively. The table below provides a racial
and ethnic breakdown of the single adult homeless population in Ramsey County.
16 Ibid.
" Ibid., p. iv.
L�'.3
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�q a�o
Table 1. Females and Males Alone Entering Emergency Shelter,1997
Females Alone Males Alone
African American 54% 44%
White 38% 36%
Hispanic 1% I6%
Native American 4% 3%
Asian and other populations 2% <I%
Source: W ilder Research Center, Emergency Shelters, Transitional Housing, and Battered
Women's Shelters Data Collection Project, Seventh Annual Report, June 1998.
A dramatically different picture emerges when ]ooking at the race of single adult users of
transitional housing. While about half of the single adult users of emergency shelter are African
American, on average only about one in six single adult users of transitional housing is African
American.' The following compazative graph is illustrative of this pattern.
Chart 7. Comparison of Single Female Emergency Shelter Users
with Single Female Transitional Housing Users,1997
�African Americans
�Whites
Source: Wilder Reseazch Center, Emergency She(ters, Transitional Housing, and Battered
Women's Shelters Data Collection Praject, Seventh Annual Report, June 1998.
' Ibid., p. 27.
19
St. PauURamsey County
Five-Year Low-Income F3ousing
and Homeless Services Report
and Plan
Emergency Transitional
Shelter Housing
There is also a significant differential between those of Hispanic descent who use
shelter and those who use transi6onal housing. Twelve percent of all adult shelter users
aze Hispanic; however, Hispanic adults accessing transitional housing account for only
2% of the total.
With respect to the use of homeless services, the 1998 Ramsey County Survey
revealed the following facts that inform the recommendations:
♦ Single adults use the vast majority (88%) of services provided
to homeless people, despite the fact that they use only 36% of
the housing. capacity for homeless and low-income persons.
The most heavily accessed services include: case management;
food/clothing; life skills training; and mental health services.
♦ Single adults receive only about one-third (33%) of financial
management services provided to homeless persons in the
County.
Participants in a focus group consisting of single adults, convened as part of the
plauning process, voiced fiustration at the lack of affordable private market housing and
the long waiting lists to get into public housing." Additional findings from that same
focus gmup revealed that, for single men in particuiaz, estranged families, a physically,
emotionally and/or sexually abusive adolescence, and alcohol and drug dependencies aze
especially common?
19 $iko Associates, p. 38.
20 Ibid.
20
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
g4-a��
Homeless Veterans
Veterans — many of whom are dealing with Post-Traumatic Stress Disorder
resulting from their military experiences — comprise an estimated 13% of the homeless
population, according to the latest Statewide survey?' About 270 new homeless veterans
are served each yeaz in the metropolitan azea. The vast majority aze males; many aze
mentally ill and/or chemically dependent. For many veterans, alcohol and drug abuse
surfaced during or were exacerbated by military service, especially far those who served
during the Viemam era. (Vietnam veterans now comprise the largest percentage of
homeless veterans.)
Homeless men who aze veterans shaze a common history of childhood instability.
They also aze more wlnerable than their non-homeless counterparts..
A recent study revealed that homeless veterans under 55 years of age face a two times
greater risk of death — and those over 55 years old a four times greater risk — than do
non-homeless veterans.
Further, recent events have made access to services for homeless veterans more
difficult. Due to an accelerating trend towazd downsizing of VA facilities, homeless
veterans face greater competition for VA services. In addition, the shift in emphasis at
Veterans Affairs from inpatient to outpatient services has created roadblocks for those in
need of services.
Z' W ilder Research Center, Minnesota Statewide Survey of Persons Without PermanenP
Shelter, Volume I: Adults and Their Children, p. xi.
ZZ As reported by the Health Care for Homeless Veterans Outreach Team, which, on a
rotating basis, travels to various locations (including Dorothy Day Center in St. Paul) to
serve the health needs of homeless veterans.
" Marcia Martin, Heading Home: Breaking the Cycle of Homelessness Among America's
Veterans (Veterans Affairs: Veterans Affairs Northeast Program Evaluation Center, February
1997), Executive Summary.
21
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Persons with HIV/AIDS
While single adults comprise the bulk of those who aze both homeless and living
with HIV/AIDS, the disease affects homeless families and youth as weIl. In fact, the
fastest growing group among the homeless population with HIV/AIDS is families, the
group for which housing is the most difficult to find. There is also an emerging problem
among homeless youth who are at risk of contracting the disease.
Serving this population presents special challenges. The need for stable housing
for people with HIV/AIDS is underscored by several factors. First, because successful
and preventative care for people with HIV/AIDS requires adherence to a complex and
highly regimented treatment plan — involving the ingestion of dozens of pills every day,
each with unique dietary requirements and timetables — having a stable home can mean
the difference between life and death. Second, the success of new therapies is enabling
HIV/AIDS patients to live longer, which, in turn, is increasing the need for housing for
this population. Finally, due to the need to remaui in close proximity to health caze and
the dangers inherent in extended travel, geographic restricrions may foreclose suburban
housing options for people with HIV/AIDS.
Cleazly, housing presents a serious problem for persons with this disease. In a
recent survey, conducted for the HIV Housing Coalirion, 45% of the respondents had
experienced homelessness and 14% were currently homeless? Transitional housing
opUOns aze generaIly limited, since such housing is primarily geazed toward families.
According to advocates, increased low income housing options and increased availability
of housing subsidies, intensive housing iniervenUOn services, and emergency housing
assistance, in that order, are the top priority needs for the HIV/AIDS homeless
population.
As a general matter, homeless people with HIV/AIDS receive about 3% of the
total homeless services provided (The percentage of the homeless population that people
with HIV/AIDS comprises is unlrnown.) However, the 1998 Ramsey County Survey
Z " Steven Gray, "HIV Housing Needs Assessment Update: A Report to the HIV Housing
Coalition" (Minneapolis: Steven Gray and Associates, February 1997), p. 5.
'� HIV Aousing Coalition, "Recommendations to the Minnesota Housing Finance Agency for
the 1998 RFP Funding Process," May 21, 1998, p. 6,
ZZ
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
gq-a��
indicated that over one-half (52%) of all assessments and about one-third (32%) of
benefit coordination services available for the homeless were provided to this population.
At the same rime, it appeazs from the survey results that other, much needed
homeless services — such as companion services and life skills training — aze less
available. For instance, only 13% of the available companion services and virivally no
life skills training available to homeless persons are reported as going to people in this
group.
FAMILIES
According to the latest Statewide Wiider Research Center survey, "{w]omen and
children represent the fastest growing segment of the homeless population.i The
shortage of housing for homeless families in general, and for large families in particulaz,
is especially acute.
In 1997, more than 1,300 persons in families (more than 900 of whom were
children) accessed emergency shelter in Ramsey County; the median length of stay was
about 12 days. Z '
Of particulaz significance is the fact, though they account for only about 6°!0 of the
entire Ramsey County population, African Americans represent about 75% of the
emergency family shelter population and almost 60% of residents in battered women's
shelters. A comparison of shelter entrants, by race, is shown below.
26 Wilder Reseuch Center, Minnesota Statewide Survey ofPersons Without Permanent
Shelter, Volume I: Adults and Their Children, p. xi.
2 ' Wilder Research Center, Seventh Annual Report, pps. 1, 20.
L►�C3
SL Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 8. Race of Adults with Children Entering Emergency Shelter,1997
so^�
�o^i �a^io . . ..
_.....
_.
60%
500� . " � - - - ' -
- > -�: ,- _,: : - ':: ... . _ _ _- .
400� — -
30% :. .� • ::
20% , �. 't795.,__. _ _ . _ : , _ .
� .: . .: .: :..:. .. . a __ 3 ,� . �. . _
10%
0%
- - � . ' � 2°/n
Af. Am. White Nat Am. Hispanic Other
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
Chart 9. Race of Children Entering Emergency Shelter,1997
so^/
�o%
eo io
so^i
ao�o
30%
20%
10%
0%
Af. Am. White Nat Am. Hispanie Other
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
24
St. Paul/Ramsey County
Five-Year Low-Inwme Housing
and Homeless Services Report
and Plan
99-ac�o
The Wilder Reseazch Center's Seventh Annual Report on Emergency Shelters,
Transitional Housing, and Battered Women's Shelters echoes focus group findings
concerning the reasons families find themselves in shelter. Often, a combination of
circumstances lead to a shelter stay. The lack of affordable housing, a personal or family
crisis, and economic distress aze the foremost reasons cited by families as causes of theu
homelessness. Domestic abuse is also a key contriburing factor to homelessness among
wamen and their children.
Other key fmdings of the 1998 Rainsey County Survey with respect to families
are as follows:
♦ Families use seven out of every ten emergency shelter or
transitional housing beds.
♦ Despite their significant usage of emergency shelter beds and
transitional housing beds, families receive only about 11% of
the services provided to homeless people in Ramsey County.
♦ Families receive little employment skills training, job search
assistance and life skills education available to the homeless.
♦ Families receive nearly 70% of financial management
services provided to the homeless.
While the effect of homelessness on the family unit is, to say the least, stressful,
the well-documented impact of homelessness on children is devastating and dislurbing.
From an educational perspective, many studies confirm that mobility and instability at
school quickly lead to lower academic functioning and performance. As Anne B. Shlay
concludes, among the most disturbing effects of homelessness are the "long-term
consequences for the emotional and cognitive development of children....s
UNACCOMPANIED YOUTH
28 See, for example, A Report From The Kids Mobility Project (Minneapolis: March 1998), p. 3.
Z9 Anne B. Shlay, "Housing in the Broader Context in the United States," Housing Policy
Debate 6 (1995): p.703.
25
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Repon
and Plan
Youth homelessness is a phenomenon that has risen to alazming proportions in
Ramsey County as well as in the rest of the State. This increase is consistent with the
upwazd trend that has been evident for the last decade.
The Wilder Research Center reports Yhai, Statewide, there aze approximately 730
persons 17 years old or younger without permanent shelter on any given night, and,
"approximately 1Q000 Minnesota youth experience at least one episode of
homelessness" during the year. While the exact number of homeless youth in Ramsey
County is not known, with a total capacity of onty 16 shelter beds and siac transitional
housing units, there is cleazly a gap between the need for and capacity of emergency
shelter beds and transitional housing.
In contrast to the adult homeless population, familial problems are the single
greatest cause of youth homelessness. The Wilder Reseazch Center indicates that:
More than two-thirds of homeless youth report tt�at
someone in their immediate family — usually a parent — has
problems with drugs or alcohol. More than one-third report
that their pazent(s) will not allow them to retum home. The
majority (61 percent) of homeless youth have experienced
some form of out-of-home placement, such as foster caze or
residential treatment 3
Once on the streets, life becomes increasingly more difficult for homeless youth,
and they become increasingly vulnerable, facing a significantly higher risk of exploitation
and violence.
30 Witder Research Center, Minnesota Statewide Survey of Persons Without Permanent
Shelter, Volume 77: Unaccompanied Youth (St. Paul: Amherst H. Wilder Foundation, July
1998), p. v.
" Wilder Reseazch Center, "Minnesota's Youth Without Homes" (St. Paul: Amherst H.
Wilder Foundation, Mazch I94'7), pps. 2-3.
26
St. PauURamsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
��-a��
Homeless youth come from all races and ethnic backgrounds. The following
chart shows the ethnic and cultural composition of the homeless youth population,
Table 2. Racial and Ethnic Composition of Homeless Youth, Statewide
Source: Wi]der Research Center's Minnesota Statewide Survey ojPersons Without
Permanent Shelter, Volume II: Unaccompanied Youth, July 1998.
With respect to services, survey results indicate that, with the exception of
counseling and outreach, homeless youth receive a small portion of all homeless services
provided throughout the County.
More than shelter, however, is required to address the problems facing homeless
youth. As J.T. Fest, in Street Culture: An Epistemology of Street-Dependent Youth notes,
it takes more than providing basic necessities such as shelter, food, clothing and schooling
to stabilize homeless youth. Fest asserts that assisting young persons "transition `off the
street' is about helping them make conceptual (emphasis in original), not physical
changes." He insists that young people must experience attitudinal change or "they will
remain `on the street' regazdless of their environmentai circumstances.i
Thus, the provision of safe emergency shelter or transitional housing, combined
with intensive, culturally-sensitive case management designed to change attitudes and
belief systems, is the most effective means of reaching homeless youth.
32 J. T. Fest, Street Culture: An Epistemology ofStreet-Dependent Youth (1998), p. 9.
27
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Invisible Homeless
While Ramsey County possesses a relatively rich set of daYa on its sheltered
homeless population, a segment remains unsheltered. To gather information about this
"invisible" portion of the homeless population, interviews were conducted with outreach
workers and drop-in center staffs who work with adults and unaccompanied youth.
Those conversations yielded the following insights:
♦ Unsheltered homeless people in Ramsey County aze
mainly single men and women, especially those who
are ineligible or have not applied for a variery of public
assistance programs, such as General Assistance or
Social Security Disability Insurance.
♦ There is a shortage of shelter beds, so that even
when these individuals aze located it may not be
possible to refer them to available shelter.
♦ Homeless persons with serious mental illness are
often extremely distrustful of the shelter system, are
unwilling to comply with even simple requests for
information (such as a name or signature), and may
be willing to forgo shelter as a result of their
discomfort in providing information.
♦ For severely disabled homeless people, accessing
basic preventative help or crisis intervention may be
impossible without a trusted advocate to help them
to navigate the system.
♦ The experience of homelessness breeds further
homelessness.
s The tight housing market makes tenants with any
questionable marks on their rental history less
likely to find housing. The lack of affordabte
housing contributes to the invisible homeless.
m
St. Paul/Ramsey CounTy
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�f 4-a�o
♦ Many people become homeless upon discharge from
ireatment, hospitals or the corrections system, each
of which needs to do better and more extensive
dischazge planning with at-risk individuals.
Outreach workers and day center staff suggestthat successful approaches to
serving homeless people, especially those who are distrustful of the system, is
dependent upon providing service in a nonjudgmental, respectful, supportive, and
culturally-specific manner that recognizes the personal dignity of the client.
Causes of Homelessness
There aze many underlying causes of homelessness. Seemingly, there are an
equal number of myths. One widely held misconception is that people prefer to live
without permanent shelter. It is true that, for some, poor choices lead to the condition of
homelessness, but, as sociologists James D. Wright and Beth A. Rubin point out:
One common although profoundly wrong theory can be dismissed at
once...that the homeless are homeless by choice. The amplication of
this viewpoint is that homelessness results from an exercise of
personal will, not from mental illness, substance abuse, or an
inadequate supply of low-income housing...[I]n the overwhelming
majority of cases,
homeless people live as they do because they lack the means to live in
any other way, not because they have positively chosen a life of
destitution and degradation over some attainable alternative means of
living.
33 All conclusions derived from interviews conducted by Eric Grumdahl with directors or staff,
including outreach workers, of Union Gospel Mission, Listening House, the ACCESS
program, Catholic Charities' Dorothy Day Center, and Streetworks in connection with the
"1998 Ramsey County Housing and Service Inventory Survey."
'" James D. Wright and Beth A. Rubin, "Is Homelessness a Housing Problem?" Housing
PolicyDebate 2 (1991): p.953.
`�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Kim Hopper, a social scientist and the former president of the National Coalition
for the Homeless, suggests that the shift from a goods-producing to an information-
producing society and the exportation of labor-intensive jobs outside the country have
resulted in wage polarization. At the same time, he notes, federal support for new
construction of low-income housing has alI but evaporated. Thus, he concludes, "the
structural roots of the problem lie in the changes that have taken place over the past two
decades in the labor and housing markets in the United States...The upshot, terrifying in
its simplicity, is the contemporary delineator of homelessness: income insufficient to
afford available housing."
The Affordable Housing Crisis
Compazed with earlier in the decade, homeless persons in 1997 were "more than
twice as likely to find the lack of affordahle housing a barrier to having their own
place. This finding is indicative of what is now a generally accepted fact: that
Ramsey County (as well as the rest of the metropolitan area) is facing a serious affordable
housing crisis.
The lack of low income housing can lead to homelessness and keep homeless
persons from obtaining permanent shelter. Shelter residents aze forced to stay longer,
which, in turn, creates a bottleneck in the continuum of caze system. While the lack of
affordable honsing is but one of a number of causes of homelessness, as Wright and
Rubin observe, "every route out of homelessness must sooner or later pass through stable,
secure and affordable housing." 3 '
35 Kim Hopper, "Homelessness Old and New: The Matter of Definition," Housing Policy DebaYe,
2 (1991): p.770.
36 Wilder Reseazch Center, Seventh Annual Repart, p. v.
;' Wright and Rubin, pps. 938-39.
30
St. Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
• ♦ � .I
Availability
Housing options for the poor are becoming increasingly limited due to the
shortage of units. The foliowing section discusses public housing, the private rental
mazket and homeownership opportunities for income-stressed households.
PUBLIC HOUSING
The St. Paui Public Housing Agency (PHA) owns and manages over
approximately 4,300 federally subsidized rental apartment and homes throughout the
City, providing more than 10,000 people with decent, affordable, quality housing. The
average annual household income of PHA residents is about $12,000 for families and
$8,000 for hi-rise residents, or approxirnately 20% of the area median.
Approximately 3,400 households aze on the waiting list for public housing. The
waiting list for hi-rise units for single, elderly and disabled persons is relatively short
(housing is likely to be secured within three-to-six months). Families, however, must
wait between one and three years for an available unit. The annual turnover rate is below
20%, and the average stay in public housing is six to seven years.
Federal housing subsidies have declined so dramatically over the past decade that
no new public housing construction is anticipated in the City of St. Paul or elsewhere in
the County in the foreseeable future.
' The St. Paul Public Housing Agency reports that the area median income in 1998 is
$60,800 for a family of four and $43,600 for a single person.
31
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Home(ess Services Report
and Ptan
••
THE SECTION 8 PROGRAM
Section 8 is a federal housing subsidy program administered locally by the St.
Paul Pubiic Housing Agency for privately-owned rental homes and apartrnents in the city,
and by the Metropolitan Council Housing and Redevelopment Authority (Metro HRA)
for rental units in suburban Ramsey County. There aze two principal forms of the
program: the Tenant-Based Program and Project-Based Program.
Tenant-Based Program
The PHA administers more than 3,400 Section 8 certificates and vouchers in St.
Paul, while Metro HRA administers more than 750 certificates and vouchers in suburban
Ramsey County. Participants aze responsible for finding privately-owned rental housing
which meets Section 8 program requirements (e.g., habitability standazds, rent
guidelines). When a tenant finds a property owner willing to accept Section 8, the tenant
pays approximately 30% of her/his income for rent and utilities, and the PHA pays the
difference -- the rent subsidy -- directly to the owner.
At any given time, 300-500 households are "shopping" with certificates and
vouchers issued by the St. Paul PHA for rental apartments or homes that will accept the
Section 8 subsidy program. Shoppers must use the certificates or vouchers within 120
days of receipt or else must turn them back to the issuing agency. The waiting list for
PHA Section 8 assistance ranges from 1,000 to 2,500; Metro HRA's current waiting list
is estimated to be 600 residents of Ramsey County.
Not all Section 8"shoppers" will fmd units within the allowed 120 days. The St.
Paul PHA reports that, in 1997, one-quarter of those obtaining certificates and one-fifth
" HUD sets "Fair Market Rent" limits for the Section 8 certificate program, currently $504
per month for a one-bedroom unit; $644 for a two-bedroom unit; and $872 for a three-
bedroom unit. The total cost of the rent, including utilities, cannot exceed those limits. The
Section 8 voucher program allows tenants to decide the amounts of income they wiil spend on
rent, since the subsidy amount is based on a fixed standard rather than on the rent of the unit
selected. A participant may spend more than 30% of income to rent a more expensive
apartment, or less than 30°/a if a less expensive apartment may be ]ocated. Tenant-based
Section 8 certificates and vouchers are "portable" (i.e., tenants can use them in another
jurisdiction).
32
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
of those obtanung vouchers will be unable to "lease up," while Metro HRA reports that
only one in seven who receive either a Section 8 certificate or voucher will be able to
lease up.
The tight Twin Ciries rental market, combined with other factors, make it difficult
for families to find units where they can use their SecUon 8 assistance. Some families
reject the few available apartments because of their location, surroundings or condition.
Some properry owners refuse to accept Section 8 subsidies, due in part to their
dissatisfaction with both the requirements and limitations of the Section 8 program.
One study shows a 10% decline over the last two yeazs in property owners willing to
accept Section 8 certificates. 41
More specifically, racial discrimination appears to be a barrier for Section 8
participants to fmd housing. For example, Metro IIRA's most recent statistics reveal that
while 54% of its Section 8 certificates aze issued to people of color, these families aze
successful in utilizin those certificates only 34% of the time.
HiJD has proposed making available, nationwide, an additional 50,000 portable
housing vouchers to help families making the transition from welfare to work,
specifically where housing assistance is essential for obtaining or retaining employment.
However, it is uncertain whether increasing the availability of vouchers in this mazket
will alleviate the difficulties faced by low-income persons seeking housing.
Project-Based Program
Subsidies provided through the project-based Section 8 program aze building-
specific and remain with the property. Unfortunately, many low income housing units
available through this program may soon be lost. As many as 2,200 of these units in
40 For instance, some property owners perceive the paperwork to be inordinately burdensome.
Others would prefer that the issuing agency (i.e., St. Paul Public Housing Agency or Metro
HRA) have greater responsibility for Section 8 certificate holders when problems arise.
^' See Community Action for Suburban Hennepin, "The Ever Shrinking Market for Section 8
in Suburban Hennepin County" (Aopkins: Community Action for Suburban Hennepin,
October 1997).
42 Diane Stone, Metro HRA Grants Administrator, telephone interview, August 4, 1998.
43 As with the tenant-based program, recipients pay 30% of their income toward rent. The
program pays the difference.
33
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9�t-��o
Ramsey County aze at risk of conversion to market rate rentals, and therefore in jeopardy
of becoming beyond the reach of many of the families who now reside in them."'
PRIVATE MARKET RENTAL HOUSING
Simply stated, too many applicants vie for too few units in today's private rental
mazket. The metrowide rental vacancy rate "has fallen steadily from about 6.5% in 1990
to about 2 percent today — so low that it represents virtually full occupancy.s (At about
1%, the vacancy rate is even lower in the City of St. Paul.)
Demand for affordable rental units, especially in suburban communities, is being
driven, in part by Minnesota's robust economy and the dire need employers for workers,
especially those at the lower end of the income spectnun. Thus, the development of
housing affordable to low-wage workers may be seen as an economic development
strategy. For instance, a recent study by the Citizens League notes that:
Subwban businesses are having difficulty finding workers,
especially for low-skill positions, and the lack of
affordable housing in suburban communities is widely
cited as one of the responsible factors. The end result for
employers is poorer service, an inability to fill job orders,
and other problems that have a very real impact on the
bottom line for businesses.
00 Compiled from data supplied by the Minnesota Housing Partnership and Community
Action for Suburban Hennepin's report, "Privately Owned Federally Subsidized Housing in
Minnesota," March 31, 1998. The potential ]oss of these units as affordable housing is a
result of an opportunity for owners to prepay mortgages and, in doing so, opt out of the Section 8
program.
45 Dave Beal, "Apartment vacancies show no sign of rising," St. Paul Pioneer Press, March
6, 1998; available from http:/fnewslibrary.in£a.net/ppf; Internet, accessed March 6, 1998.
46 Gary Cunningham and Steve Keefe, Help Wanted: More Opportunities than People
(Minneapolis: The Citizens League, November 1998); available from http://www.citizensleague.ned
studies/labor-shortage/report.htm; Intemet, accessed January 7, 1999.
34
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Citizens League report goes on to suggest that "the business community can
be the lever breaking the logjam on affordable housing in the metro region, advocating
for affordable housing on the basis that it is a critical component to the health of local
business. "'
The Livable Communities Act, enacted in 1996, was intended to reduce the gap
between need for and availability of lower income housing in suburban communities.
However, a number of factors, including the voluntary nature of its provisions, how
"affordabiIity" is defined, and the goalsetting and benchmarking methodology, the
promise of the law has not and will not be fulfilled. According to a recent study by the
University of Minnesota's Center for Urban aud Regional Affairs, that in fact the
unintended consequence of its implementation is "[t]he aggregate result of the program
will be a decline [emphasis added] in the percentage of the Twin Cities azea housing
stock that is affordable."'
Given current market conditions, unless action is taken, it appeazs that production
of new units will not keep pace with the need anytime soon. By the yeaz 2000, according
to estimates, the areawide gap in affordable rental units wili have increased 50% since
1996, to a total shortfall of neazly 25,400 units.
HOMEOWNERSHIP
Some homeownership opportunities ezcist, but they aze severely Pimited, and are
generally unavailable to households at the lower end of the income spectruui. Furkher,
production goals for owner-occupied affordable housing, established under the Livable
Communities Act, aze expected to fall short by neazly 7,500 units.
°' Ibid.
" Edwazd G. Goetz and Lori Murdock, Losing Ground: The Twin Cities Livable
Communities Act and Affordable Housing (Minneapolis: Center for Urban and Regional
Affairs, I998), p. I.
49 Beal, March 6, 1998.
so Ibid. Owner-occupied housing affordable at 80% of ineVO area median income (i.e.,
$48,600 in 1998) ranges up to $120,000.
35
St. PauURamsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
f4-��o
Habitat for Humanity is one of several programs that provide decent and
affordabie homeownership opportunities in the Twin Cities. Working families with
incomes of between $12,000 and $25,000 annually may qualify for a Habitat home.
Applicant families aze carefizlly screened to ensure optimal chances of success. In
Ramsey County, Habitat for Humanity builds or rehabilitates 20 to 25 houses per year,
representing about half of its metrowide production. The metrowide waiting list consists
of about 250 families. Habitat is seeking to doubie its capacity to produce affordable
housing in Ramsey Counry.
The primary limitation to Habitat's ability to produce more affordable housing
units is the existing process by which available properiy is made available for Habitat
use. That process impedes the expeditious transfer of available land or property. Habitat
also relies on corporate sponsorship and volunteer labor to construct its housing. While
there are many willing corporate contributors and a wealth of community volunteers,
building capacity in each of these azeas will enable Habitat to achieve its goal.
This year, Ramsey County participated for the first time in a Habitat project,
joining forces with the City of St. Paul and the St. Paul Companies to construct a house in
the Frogtown neighborhood. This effort stands as a model of collaboration among the
pubiic, private and nonprofit sectors that can and should be replicated. Among the
participants was Ramsey County Community Corrections Department's Sentence to
Service Program, which possesses untapped potential to provide an ongoing supply of
volunteer labor for Habitat projects.
Affordability
The limited housing that is available is unaffordable to approximately 67% of
Ramsey County households earning $30,000 or less; of those, 17% pay more than 50% of
their income towazd housing."
51 Wilder Research Center, Entering the 21" Century (Saint Paul: Amherst H. Wilder
Foundation, March 1997), p. 11. According to U.S. Census data, the median household
income for Ramsey County is $32,043.
�
St. Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
For households at lower income levels, the affordability crisis is even more
severe. As Table 3 below shows, housing is unaffordable to almost 27,000 or 74% of
Ramsey County households earning an hourly wage of $9.20 (or $20,000 annually) Sz
Table 3.
Number and Percentage of Househoids Eaming Less Than
$20,000 Unable to Afford Housing
Cities in Tofai Number Unabte Percent Unabfe
Ramsey County Households to Afford Housing to Afford Housing
Arden Hills 118 85 72°fo
Falcon Heights 392 260 66%
Lauderdale 269 212 79%
Mounds View 423 374 88%
New Brighton 1,111 832 75%
North Oaks 12 12 100%
North St. Paul 613 435 71%
Roseville 1786 7,425 80%
St. Anthony (pt.) 347 322 94%
St. Paul 28,044 20,S15 73%
Shoreview 247 216 87%
Vadnais Heights 85 77 91%
White Bear township 57 43 84%
White Bear Lake (pt.) 970 708 78%
Ramsey County 36,110 26,822 74%
Source: Mevopolitan Council, Report !o the Legisl¢ture on AJfordable ¢nd Lije-Cyc(e Kousing in the
Twim Cities Metropolitan Area, November 1996.
Siting of Affordable Aousing
Over the last twenty yeazs, poverty has become more concentrated in inner city
areas of the Twin Ciries. According to the University of Minnesota's Institute on Race
52 Metropolitan Council, Report to the Legislarure on Affordable and Life-Cycle Housing in
the Twrn Cities Metropolitan Area (Saint Paul: Metropolitan Council, November 1996),
Part II, Appendix Tahle 2.
53 Edwazd G. Goetz, Hin Kin Lam, and Anne Heitlinger, There Goes the Neighborhood
(Minneapolis: University of Minnesota Center for Urban and Regional Affairs, 1996), p, 6.
37
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
q9-a�o
and Poverty, the percentage of all persons living in concentrated poverty increased almost
700% from 1970 to 1990, with signifzcantly higher increases for persons of color.
Clearly and unquestionably, the condition of concentrated poveriy has a number
of deleterious consequences for both the residents of these communities and society in
general. The Institute on Race and Poverty, in its 1997 report, Examining the
Retationship Between Housing, Education, and Persistent Segregation, declares that, in
neighborhoods marked by concentrated poverty, "all residents face substantial limitations
to life chances"
Significantly, research findings indicate that St. PauPs District Councils generally
favor "a strategy...that couples: (1) the need to reinvest and build inner city
neighborhoods and (2) programs to help people find affordable housing."
In applying such an approach, investment subsidized housing developed by
nonprofit organizations seems to hold promise. A 1996 University of Minnesota study
found that this type of subsidized housing: (1) enhances the property value of nearby
residential property; (2) leads to a reduction in crime; (3) attracts long-time Minnesotans;
and (4) fosters not transience but greater family stability.
Another study of subsidized housing in Maryland and Virginia reached a similaz
conclusion, finding that, in Montgomery County, Maryland and Fairfas County, Virginia
communities where policies to create subsidized housing within non-subsidized housing
developments has created significant sections of mixed-use housing stock, "the presence
or proximity of subsidized housing made no difference in the housing values" of property
in these communities.
54 Institute on Race and Poverty, Examining the Relationship Between Housing, Education,
and Persistent Segregation (Minneapolis: Institute on Race and Poverty, February 1998),
p. 40.
ss Ibid., p. 8.
56 g�ko Associates, p. 4.
s ' Goetz, et. al., There Goes the Neighborhood, p. 79
58 Joyce Siegel, The House Next Door (Washington, D.C. The Innovative Housing Institute,
1998) available from http://www.inhousing.org/housenex.htm; Internet, accessed
January 9, 1999.
�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and P(an
At the same time, the development of income-integrated and mixed-use housing is
an approach that could be effective in both increasing the low income housing stock and
decreasing concentrations of poverty. Policies emphasizing the creation of housing
opportunities across income strata and family size and type are fundamental to the
reinvigoration of inner city neighborhoods as well establishment of new avenues for
diversity in suburban communities. Such policies might include the provision of
incentives for developers incorporaring a certain percentage of low-income housing units
in developments or the increased use of government bonding authority to create housing
affordable to low-wage workers.
As in a fmancial investment plan, diversification is the wisest approach to
ensuring a sound and healthy portfolio.
Similarly, a thoughtful policy with respect to demolition and rehabilitation is
warranted. According to a University of Minnesota/Neighborhood Planning for
Community Revitalization report, there aze 475 vacant houses on the City's official
vacant housing Iist at any given time. Many studies confirm that the existence of
vacant properties can have adverse economic consequences for municipalities and
constituents. Not only dces vacant housing result in the erosion of the 1oca1 t� base (in
St. Paul, 40% of the City's taac base rests on residential property) and create additional
costs to municipalities, but also it depresses values of adjacent homes by as much as
$10,000 and nearby houses by as much as $2,500 bo
Expediting the process by which vacant and abandoned properties can be
transferred to developers, whether for-profit or not-for-profit, would provide a wide range
of benefits: to government by moving property back onto tax rotls more quickly; to
developers by enabling more rapid initiation of projects; and, most of all, to people in
need of low income housing.
59 Edwazd G. Goetz, Kristin Cooper, Bret Thiele, Hin Kin Lam, The Fiscal lmpacts of the St.
Paul HOUSES TO HOMES Piogram (Minneapo[is: University of Minnesota Center for
Urban and Regional Affairs/Neighborhood Planning for Community Revitalization,
February 1997), p. 1.
fi0 Ibid., p. 12. The impact of vacant housing on adjacent and nearby property is derived
from Ana Moreno, Cost Effectiveness ofMortgage Foreclosure Prevention, (Minneapolis:
Family Housing Fund, November 1995), p. 16.
39
St. Paul/Ramsey CounTy
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9�-a��
Landlord/T'enant Issues
Prospecrive renters aze facing increasing frustration in their attempts to find rental
housing. Lack of a ceniralized system to identify available units, lack of education
regarding tenant rights and responsibilities, and poor rental and credit histories pose
substantial barriers to many homeless and low-income apartment seekers. In addition,
certain tenant screening practices — such as requiring applicants to pay multiple
application fees or requiring "earnest money" down payments — raise questions of
faimess.
At the same time, owners and prospective owners of low-income rental property,
a portion of whom constitute the vital base of small business owners in the City and
County, often find it difficult to: (1) negotiate the maze of regulations; (2) obtain
accurate and timely information concerning owner rights and responsibilities; (3) leam
how to maintain crime-free buildings; (4) obtain advice conceming, among other things,
sound business practices, taY codes, housing codes, and Section 8; and (5) obtain swift
and acceptable outcomes for disputes with tenants without resorting to expensive and
time consuming court proceedings.
Further, property owners who might be willing to rent to low-income consutners
with less-than-perfect rental histories or other issues and barriers consistently express the
need for assurances that a social services support network is available to them at all times
to address problems that may arise.
Given these circumstances, there is a clear need for a centralized and coordinated
system to provide: (1) a metrowide link between apartment seekers and property owners
with available units; (2) ready access to social services supports; (3) resource information
concerning rights and responsibilities which is timely and easily accessible to both
tenants and property owners; (4) access for property owners to sound business advice and
training on how to maintain crime-free dwellings; and (5) an adjudication system for
disputes that provides a legitimate and less costly altemative to court.
.�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Need to Link Owners and Renters
The HousingLink— a nonprofit entity created to develop, unplement and manage a
Fair Housing Mobility Clearinghouse, mandated under the Hollman v. Cisneros Consent
Decree — provides the infrashucture to establish the resource needed to connect
aparhnent seekers with available apartment openings metrowide. This project, which is
just getting under way, is already working with the St. Paul Housing Inforxnation Office
and other local groups. While the need for ongoing funding is an issue, this new etttity
holds the very real potential to fill one of the most pressing needs for owners and renters:
a seamless system for listing and locaring available units throughout the . entire
metropolitan azea.
Need for Access to Social Services
Interviews with property owners confum that the ready access to social workers
and case managers creates a greater willingness to rent to and retain tenants placed by
public and nonprofit social service agencies (e.g., clienis coping with mental illness or
chemical dependency). Thus, there is a great need to establish better linkages between
low income housing owners and the sociaUhomeless services delivery networks in
Ramsey County.
Need for Information and Education
The more knowledgeable the owner, the greater the chance that rental property
can be a profitable inveshnent and provide decent, secure and affordable housing for
people. The more educated the renYers, the greater the chance that they will be
responsible tenants, avoid disputes, and understand and exercise their rights when
disputes do arise.
Moreover, tenants with questionable rental histories are in dire need of education
and certification so that they may cure their records an@ obtain another chance to become
responsible and self-reliant. Education is a key recommendation contained in Strategies
to Reduce Nuisance Crimes in Our Neighborhoods: A Report to the 199� Legislature,
61 The Consent Decree was the result of a settlement entered into by the parties to a lawsuit
brought by fourteen low-income families of color and the Minneapolis NAACP alleging that
the Minneapolis Public Housing Authority, among others, had engaged in illegal housing
segregation.
41
SY. Pau]/Ramsey Coaniy
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
� • • ./
submitted by, among others Ramsey County Attorney Susan Gaertner. The zeport calls
for "education [that] would unprove the management of rental properties and decrease
nuisance acrivity."
There are some avenues available today for both landlord and tenant training. For
instance, the St. Paul Housing Information Office, the St. Paul Police Department, the
Minnesota Multihousing Association, the St. Paul Tenants Union and the St. Paul
Association of Responsible Landlords, to name a few, provide education and assistance.
What is missing is central coordination and provision of seamless service, regazdless of
the request or the requester.
The Need for Alternative Dispute Resolution
When disputes arise about nonpayment of rent, unacceptable tenant behavior or
failure on the part of a property owner to make repaiFs, the parties to the dispute have
very few, if any, options other than expensive and time consuming court proceedings.
The present system forces the filing of a complaint before a dispute can be settied or
adjudicated. Moreover, even when disputes are settled an pretrial conferences, ar when
the claim is found to be meritiess, the tenant's rental history is marred by the mere fact
that an Uniawful Detainer (UD) has been filed.
The aforementioned District Attorneys' report endorses and suggests there is
broad support for the concept of altemative dispute resolution for non-drug or crime
related issues, including nonpayment of rent. It recommends a reduced fee for filing,
with settlement agreements not being recorded as Unlawful Detainer actions. 64
bZ Michael Freeman, Susan Gaertner, and the Nuisance Law Working Group, Strategies to
Reduce Nuisance Crimes in Our Neighborhoods: A Report to the 1997 Legislature (January
1997), p. 19.
63 An Unlawful Detainer is a filing by a property owner in housing court for remedy. Though
often perceived as a judgment, in and of itself, it is purely an allegation.
64 Freeman, et. al., Strategies to Reduce Nuisance Crimes in Our Neighborhoods: A Report to
the1997Legislature, pp.16-17.
42
St. Pau]JRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
lnsufficient Wages
Wages have not kept pace with housing costs. The Family Housing Fund fmds
that, in the metropolitan area, a family "would have to earn $24,840 per yeaz ($12 per
hour) to afford to rent a two-bedroom apartment or $33,000 per year {$16 per hour) to
afford to buy a three-bedroom house.i Typical salaries for people employed as
cashiers, clerks, child care workers, home health aides, housekeepers, medical assistants,
receptionists, cooks, tellers, teacher aides and school bus drivers aze often below that
which would render apartments or homes affordable.�
Minimum wage earners have an even more difficult time obtaining and
maintaining housing that is affordable. As the chart below shows, a substanfial gap
exists between the salary of a minimum wage earner and the income needed to afford a
typical two-bedroom apartrnent and three-bedroom house.
Chart 10. Income Compared to Housiag Affordability
$35,000
$30,000
$25,000
$20,000
$75,000
$i0,000
$5,000
$0
Source: Family Housing Fund, "7'he Need for AfFordable Housing in the Twin Cities,"
Oc[Ober 1997.
65 Family Housing Fund, Working Doesn't Always Pay for a Home (Minneapolis: Family
Housing Fund, December 1997), p. 1.
� Ibid., p. 4.
43
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Annual Eamings Needed for Two- Needed for
at Minimum Bedronm Apt Three-8edroom
Wage House
q9-a�d
These figures have serious implications in the post-welfare reform world, where
Minnesota Family Investment Program (MFIP) participants aze ofren moving into entry
level, minimum wage jobs.
Mental ll/ness and Chemical Dependency
Mental illness and chemical dependency aze other, serious roadblocks to homeless
families and individuals struggling to stabilize their lives. Not surprisingly, homeless
individuals "aze aY greater risk and exhibit higher levels of severe mental iilness, alcohol
and/or other drug abuse, and chronic physical ailments than their counterparts in the
domiciled population." Since many among the homeless population are uninsured, the
costs to society to treat these illnesses are substantial.
Mental Illness
The most recent studies suggest that mental illness is a significant problem for
nearly one-third of the adult homeless and unaccompanied youth populations 6 It is
estimated that homeless persons with a mental illness "have a tluee times higher risk of
death than the general population.i
In general, these with a serious mental iilness use about half (47%) of the total
amount of services in Ramsey County directed toward homeless persons. Specifically,
two key findings have emerged from the 1998 Ramsey County Survey:
Almost all (93%) of life skills training directed towazd
homeless persons aze tazgeted to homeless persons
with a mental illness.
6 ' Deborah L. Dennis, Irene S. Levine and Fred C. Osher, "The Physical and Mental Health
Status of Homeless Adults," Housing Policy Debate 2 (1991): p. 815. The authors identify
viral and upper respiratory diseases, traumatic injuries, skin disorders, nutritional disorders,
hypothermia, hypertension, advanced dental and periodontal disease, venereal disease,
tuberculosis, hepatitis, and AIDS as those diseases more commonly occurring among the
homeless population than among the general population.
Wilder Research Center, Minnesota Statewide Survey of Persons Without Permanent
Shelter, Volume I: Adults and Their Children, p. xiii and Wilder Research Center,
Minnesota Statewide Survey of Persons Without Permanent Shelter, Volume 11:
Unaccompanied Youth, p. 23.
69 E. Fuller Torrey, Out of the Shadows (New York: John Witey & Sons, Inc., 1997), p. 17.
44
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
2. The vast majority (72%) of companion services for the
homeless are provided to homeless persons with a
mental illness.
Chemical Dependency
Drug and/or alcohol abuse are much more likely to be prevalent among homeless
single men and unaccompanied youth than among homeless families, although there is a
growing incidence of crack-addicted single women, with or without children. Recent
data indicate that more than four in ten homeless men and neazly one-quarter of homeless
women reported chemical dependency problems. In addition, the likelihood of women
reporting a stay at a substance abuse treatment faciliTy within a month of entering a
transitional housing setting has "increased six-fold, from 3 percent in 1991 to 19 percent
in 1997.""
Not surprisingly, say experts, "the rigors of homelessness magnify or rekindle old
[alcohol or drug] problems and create new ones."' Reseazchers have concluded that
"[a]lcohol-dependent homeless people...appeaz to have histories of recurrent and enduring
homelessness."
The 1998 Ramsey County Survey indicates that, on average, chronic substance
abusers use 27% of the total homeless services provided Countywide. However, they
receive only 13°l0 of the total financial management skills and just 1% of the all the life
skills training available for the homeless.
' Wilder Reseazch Center, Minnesota Statewide Survey ofPersons Without PermanenP
Shelter, Volume I: Adults and Their Children, p. xiii
" Ibid.
' James Baumohl and Robert B. Huebner, "Alcohol and Other Drug Problems Among the
Homeless," Housing Policy Debate 2(1991): p. 838.
" Ibid, p. 844.
45
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services RepoR
and Plan
9 9 a�o
Multiply Diagnosed
It is estunated that at least 50% of homeless persons with mental illness aze dually
diagnosed with an alcohol or drug abuse problem. People with a mental illness and/or a
chemicai dependency may also be HIV-positive. Thus, the dually diagnosed represent a
significant portion of the homeless population.
The 1948 Ramsey County Survey found that:
♦ Just over half (53%) of all employment services
available to the homeless go to those who aze multiply
diagnosed.
Fifteen percent (15%) of the financial management
services for the homeless aze provided to this
population.
�
♦ Only 1% of life skills training provided in the County for
homeless persons aze accessed by the muitiply diagnosed.
Domestic Violence
The disruption to the lives of individuals and families caused by domestic abuse.
both physical and emotional — cannot be overstated.
In 1997, about 2,800 women and children had need to use the 86 beds currently
available in Ramsey County for victims of domestic abuse. Almost b0°lo were African-
American; about one-fifth (21%) were white; 11% Native American, 5% Hispanic; and
2% Asian. Of the total, about one-third (35%) were women alone, two-thirds (65%)
women with children in shelter.
According to the Wilder Research Center, the number of women and children in
battered women's shelters has increased every yeaz, and almost doubled over the last five
yeazs. The 1998 Ramsey County survey indicated that 59% of transitional housing
users are victims of domestic violence.
i4 W ilder Research Cenier, Seventh Annual Report, p. 45.
'S Ibid., p. iv.
.�
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Domestic violence also impacts minor mothers. Since, at this time, there is no
shelter available for them, these women often must make an equally unacceptable choice
between remaining in an unhealthy environment or temporarily relinquishing custody of
their children while they seek refuge in a youth shelter.
Racial Discrimination
Insidious and perhaps the most difficult to overcome is the barrier to housing and
stability presented by racial discrimination. Several Twin Cities studies reveal that, when
searching for rental housing, people of color receive dispazate and lesser treahnent more
than 50% of the time.
Further, according to Professor Stuart A. GabriePs analysis of a number of
studies, there is "widespread statistical evidence of racial and neighborhood disparities in
mortgage lending..,."" These and other studies document what focus group participants
report: there is a correlation betrveen racism and homelessness.'
There are legitimate barriers to the production of low-cost housing (such as land
availabiiity and construction costs). However, institutional barriers — incIuding zoning
' See Minnesota Fair Housing Center, Report on the Fair Housing Audit of the Hrghland Park
Community in the City ofSt. Paul (St. PauL Minnesota Fair Housing Center, November 1997);
Minnesota Fair Housing Center, Fair Housing Audit: A Community Audit Testing for Racial Bias
in Rental Housing in Yhe Cilies of Bloomington, Burnsville and Saint Cloud (St. Paul: Minnesota
Fair Housing Center, December 1997); and Minnesota Fair Housing Center, Housing
Discrimination: A Report on the Rental Practices in Two Minneapolis Communities, (St. Paul:
Minnesota Fair Housing CenTer, December 1996).
" Stuart A. Gabriel, "Urban Housing Poticy in the 1990s," Housing Policy Debate 7 (1996): p.
685. Among oihers, Gabriel points Yo the Home Mongage Disclosure AcY study of data from
1978 through 1990 which revealed that, afrer controlling for income, African Americans and
Hispanics were up to two-thirds more likely to be rejected for loans than whites, and the 1992
Boston Federa] Reserve Bank study that found widespread discrimination In Yhe mortgage
application process in the Boston area.
' See The African American Working Group, Reviving the Dre¢m: An Ajrocentric
Perspective on Homelessness in Ramsey County (St. Paul: African American Working
Group, March 1995), p. 3.
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and other regulatory and land use provisions, lending and real estate practices, as well as
community opposition — serve to derail attempts to develop affordable housing."
"In short," conclude Robert W. Burchell and David Listokin of Rutgers
University in their 1995 article in Housing Policv Debate, "housing discrimination
comprises a series of severe obstacles to equal housing oppommities."
Community Support for New and Additional Services
According to a survey conducted of the District Councils in the City of St. Paul,
most would support the location of facilities in their districts for battered women,
homeless youth, developmentally disabled persons, and persons with mental illness or
HIV/AIDS. $'
Prevention Strategies
Emphasis on homeless prevention strategies is widely recognized as sound public
policy. A prime example of this approach is the creation by the Minnesota State
Legislature in 1993 of the Family Homeless Prevention and Assistance Program, which
provides, on a biennial basis, grants to counties to fund community agency programs that
prevent homelessness or assist currently homeless persons.
' Such mning practices may include square footage requirements for new homes and lots;
restrictions or limitations to multifamily housing; maximum density restrictions; two-car
garage requirements for new housing; development fees and service connection charges.
(See Institute on Race and Poverty, p. 51.)
80 Robert W. Burchell and David Listokin, "Influences on United States Housing Policy,"
Housing Podicy Debate, 6(1995), p. 585.
$' Biko Associates, p. 3
s � In 1998, an interim yeaz between FHPAP funding cycles, the Minnesota Legislature
appropriated an additional $300,000 for family homeless prevention and assistance
programs.
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Steadily increasing over the last six years, homeless prevention services now
account for more than one-third (37%) of the total funding distributed in Ramsey County
under the FHPAP program. Helping people remain in their homes and ensuring that they
maintain stabiliry once they achieve it are fundamental prevention appmaches.
Averting evictions and condemnations are two ways of curbing homelessness.
Other prevention activities — including the provision of health care, food, access to phone
service, fumiture and transportation — can help to move homeless individuals and
families towazd employment, stabiliTy and self-sufficiency, while helping them to avoid
any recurring episodes of homelessness.
Homeless prevention activities conducted under Ramsey County's Family
Homeless Prevention and Assistance Program aze both successful and cost-effective.
Ninety-seven percent (97%) of the more than 4,500 people in 1,214 families who
received prevention services between 1995 and 1997 did not have to resort to using
shelter. Evaluators estimated that about $4.00 was saved for every $1.00 invested in
prevention services.
Preservation of existing low income housing is also an important homeless
prevention strategy. It is particularly important at this time to focus on housing
preservation, as thousands of units of low-income housing subsidized by the U.S.
Department of Housing and Urban Development aze :n jeopazdy of being lost as a result
of mortgage prepayments and the conclusion of long-term leases with the federal
govemment 85
Another proactive approach to prevenring homelessness is to identify those most
at risk of becoming homeless and fashion progruns and intervention strategies before
homeIessness occurs. According to analyst Eric N. LindbIom, prior homelessness or time
spent in foster care, a mental hospital, prison, ttte armed services, or inpatient treatment
for mental illness or drug or alcohol abuse aze "strong predictors of ever becoming
83 These services are provided by various agencies serving the homeless, including Health
Care for the Homeless, Twin Cities Community Voice Mail, Catholic Chazities, and a
number of food shelves.
84 Ramsey County, Family Homeless Prevention & Assistance Project: Annual Report (St.
Paul: Ramsey County Community Human Services Deparhnent, October 20, 1997), p. 6.
85 The 1998 Minnesota Legislature appropriated $10 million for efforts to preserve this type
of affordable housing.
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homeless...." One azea of focus could be prisons, where, in Minnesota, about 3,000
adults are released into the community each year. Lindblom proposes a multi-stage
prevention strategy. First, predictors should be utilized to pinpoint those most likely to
become homeless among individuals about to be released from institutional settings.
Second, the institutions and local agencies should work together, prior to release of the
individuals identified, to assure that housing and other social services necessary for
smooth reintegration into the community aze provided.
86 Eric N. Lindblom, "Toward a Comprehensive Homelessness-Prevention Strategy, " Housing
Policy Debate 3 (1991): pps. 960, 962.
87 Minnesota Department of Corrections, "Adult Inmate Profile;" available from http:/www.
corr.state.mn.us/adultl.hhn; Internet, accessed Ju�e 19, 1998.
88 Lindblom, pps. 981-82.
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Chapter N
The Five-Year Plan
The SG PauURamsey Counry Five-Year Low Income Housing and Homeless
Services Ptan sets forth recommendations that, taken together, seek to make significant
inroads toward:
� Preventing homelessness;
� Assisting those who are or will become
homeless; and
� Filling the needs for housing and homeless
services identified during the planning
process.
Based on the foregoing discussion and analysis, the Oversight Committee
proposes the following series of recommendations, grouped under four broad categories:
(1) Homeless Prevention, (2) Shelter and Housing; (3) Homeless Services; and (4)
Funding.
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HOMELESS PREVENTION
Prevention strategies work, as evidenced, for anstance, by program evaluations of
the Family Homeless Prevention and Assistance Program_ They aze not only successful,
but also cost-effective in combating homelessness.
Homeless prevention may take many forms. The following presents several
homeless prevention initiatives designed to keep at-risk people and families from
becoming homeless and save valuable and expensive societal resources.
Recommendation 1
Plze Cify and County Should Establish a
St. Paul/Ramsey County Landlord-Tenant
Education and Dispute Resolution Program
Discussion
There is a need to provide a comprehensive, coordinated and centralized system
by which both property owners and renters can receive timely, accurate and accessible
information and education on a range of subjects, and obtain inexpensive and credible
dispute resolution services designed specificaliy to be a preferable alternative to housing
court.
The program would bring together in a cohesive consortium existing agencies and
organizations — such as the Community Stabilization Project; the Dispute Resolution
Center; HousingLinl� Lutheran Social Service's Housing Resource Center; the Minnesota
AIDS Project; the Minnesota Multihousing Association, the St. Paul Association of
Responsible Landlords; the St. Paul Housing Court; the St. Paul Tenants Union; the St.
Paul Police Departsnent's Crime Free Multihousing Program; and Southem Minnesota
Regional Lega1 Services — presently involved in providing housing linkage services,
information, education, advocacy or dispute resolution services to property owners and
tenants.
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It may also entail the development of new services where they do not already
e�st, or the emergence of an umbrella entity to coordinate all services. The vision is to
provide seamless service by providing a single point of entry that would be universally
accessible for any hovsing need articulated by any renter or owner.
It could be physically located at the St. Paul Housing Information Office, which
has expressed preliminary interest in serving as host agency, provided addifional sources
of funding could be secured.
Recommendation 2
The County Should Act to Improve
Coordination of Youth Services in Ramsey County
Discussion
Providers of services for youth tend to operaTe in mutually exclusive clusters.
Those dealing with youth in the corrections system, youth with mental illnesses and/or a
chemical dependency, homeless youth, youth in the child welfare system, and teen
parents generally aze disconnected from each other.
Although some planning processes already exist, these are insufficient to
providers the comprehensive coordination among the various agencies, both
governmental and nongovernmental, serving youth. Most importantly, tracking and
information sharing may prevent or address many of the problems that lead young
persons into homelessness.
The outcome envisioned by this recommendation could be achieved
by improving existing structures or creating a new one. The County
should take the initiative to bring together all organizations serving
youth, identify overlaps and gaps, and work to ensure that necessary
sexvices are rendered in the most efficient and cost-effective manner.
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Recommendation 3
The City and the County Should Continue, Support and
Ezpand Efforts to Reduce Disparities in Housing and
Homeless Services Provided to People of Color
Discussion
People of color aze the predominant users of shelter. In contrast, non-white single
adults comprise only 25% of h�ansitional housing users. With respect to public housing
subsidies, even though half of those receiving Section 8 certificates are persons of color,
these persons are able to utilize those certificates only one-third of the time. Finaily,
racial discrimination is cited by many as a barrier to obtaining permanent housing.
Some work has begun which is intended to investigate and remedy these
conditions. For example, Ramsey County and the City of St. Paul have taken the lead in
planning an interjurisdictional analysis of impediments to fair housing. These effort�
should be continued, supported and expanded.
Recommendation 4
The City and County Should Urge the Legislature to
Establish a Statewide Homeless Prevention Planning Council
Discussion
Research suggests that certain predictors, such as prior episodes of homelessness
among people who are institutionalized, may signal post-release problems in achieving
housing stability. There is a need to connect organizations/institutions (especially
prisons) that work with individuals prior to release with those in communities that can
assist individuals after release. A multiagency group, including State, local and provider
agencies, should be established to develop strategies for stahilizing individuals upon
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release. Implementation of such strategies would be primarily designed to identify
locarional choices for housing throughout the State, link individuals with needed services,
and, overall, avert future homeless episodes.
SHELTER AND HOUSING
The following presents several proposals to develop new shelter options that
address the particularly pressing issue concerning the rapidly growing homeless
poputation_ Implementing these initiatives will require coordinated efforts of the public,
private and nonprofit funders and agencies to obtain and leverage necessary resources and
utilize them in the most efficient manner.
In addition, a series of recommenda6ons aze proposed that, taken together, form a
coherent and rationate policy direction for creation of more transitional and permanent
supportive units and the preservation and development of low income mazket rate
housing. The recommendations azound the development of more mazket rate housing
look outward to the state and metropolitau region, as well as inward to the city and
county, for long-term solutions to the affordable housing crisis.
EMERGENCY SHELTER
Recommendation 5
The Counfy Shou[d Facilitate the Provision of
Emergency Shelter with a Family Reunification Focus
for Unaccompanied Youth
Discussion
Existing providers aze generally serving youth for whom family reunification is
not an option. However, since fanuly problems are the primary reason for the sharp
increase in the homeless youth population, there is a need to establish a facility where
homeless youth may remain safe and where comprehensive eazly intervention strategies,
the goals of which aze the resolution of fanuly conflicts and the reunification of families,
may be initiated.
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E�sting youth shelters aze provided by nonprofit organizations, often with the
support of local, state and federal subsidies. The same approach should be used to create
this needed service.
Recommendation 6
Tl:e County Shou[d Work to Deve[op Additiona!
Emergency S/:elter Options for Homeless Youth When
Family Reunification Efforts are Ex/:austed
Discussion
The return of youth to the home is not always feasible. Currently, there are only
16 emergency shelter beds available for homeless youth, whereas the 1998 Ramsey
County Survey indicated that there are hundreds of youth on any given night who are in
need of a safe place to sleep. Intensive services, including after-shelter care planning and
resolution of emancipation issues, wiil be required to accompany shelter services if the
needs of homeless youth in this category are to be sufficientiy met.
Recommendation 7 .
The Counfy Should Facilitate the Development of a
IO-bed Shelter for Minor Parents and Their Children
Discussion
At the present time, there are no emergency shelters for minor parents. These
young people face great difficulty in keeping the family intact. Often the result is
separation of the family and placement of young children in foster care. The
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development of such a facility would assist in the maintenance of the family unit while
providing necessary services, including after-shelter caze planning, for youth in this
category.
TRANSITIONAL HOUS/NG
Recommendation 8
The City and County Should Faeilitate Development of.•
♦ 100 Units of Transitiona[ Housing for Families
♦ 100 Uni1s of Transitional Hnusing fnr SingleAdu/fs
♦ 50 Units of Transitional Housing for Youth
Discussion
With a documented need of almost 800 units of transitio:ial housing for families,
single adults and unaccompanied youth, the modest goal of closing the gap by just about
one-third over the next five yeazs is both reasonable and achievable. Implementation of
this initiative will require the collaborntion of city and county planners and agencies, as
well as the cooperation of funders and providers, to assure that adequate financial
resources and services are in place to expand existing programs and develop new ones.
Permanent Supportive Housing
Recommendation 9
The City and County Should Facilitate Development of•
♦ 400UnitsofPermanentSupportiveHousingforSingleAdults
♦ 200 Units of Permanent Supportive Housing for Families
♦ SO Unifs of Permanent Supportive Housirtg for Youth
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Discussion
These housing projects would target the chronically homeless, who aze currently
frequent users of high-cost, publicly-funded emergency and crisis services, such as
shelter, hospital emergency rooms, detoxification facilities, and jails. These individuals
and families could be served more cost-effectively in permanent housing with support
services.
LOW INCOME MARKET RATE HOUSING
Recommendation 10
The City ¢nd County Skould Support Corztinued Legislative
Funding Dedicated to the Preservation of Existing
Federal[y Subsidized Low Income Housfng
Discussion
The supply of subsidized housing is being threatened by the potential conversion
of hundreds of Section 8 units to market rate. During the 1998 session, the Minnesota
Legislature appropriated $10 million for the preservation of existing federally subsidized
housing. The legislature should be encouraged to continue this trend by appropriating
funding in each of the next five yeazs dedicated to this purpose.
Recommendation 11
The City and County Should Establish a Joint Policy to
Preserve Existing Nonsubsidized Low Income Housing Stnck
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Discussion
Given the critical need for low income housing in Ramsey County and the City of
St. Paul, all efforts should be taken to preserve existing stock. City and County planners
should develop a set of strategies to cany out this poiicy, including the assurance that
resources are adequate to: encourage compliance with code; maintain effective code
enforcement activities; prevent the deterioration of housing stock; achieve cost-effective
rehabilitation of deteriorating properties; and improve management capacities of rental
property owners.
Recommendation 12
The City and County Should Create
an Affordab[e Housing Owners �4dvisory Group
Discussion
There aze a number of existing private market and nonprofit properiy owners who
ate interested in providing affordable housing. They indicate that the system currently in
place impedes the acquisition, rehabilitation or redevelopment of properiy which could
provide addirional affordable housing opportunities.
TYus a@visory group, envisioned to consist of both private and nonprofit owners
and developers, would work with city and county officials to conduct a thorough review
of existing impediments to the acquisition of properties — including housing codes,
zoning laws and ordinances, fee structures, and other government procedures. The
advisory group would develop proposals to streamline the administrative process. Other
endeavors in which the consortium could engage might include developing new funding
ideas, such as subsidy pools, fostering income-integrated development, and offering
mentoring services to new and potential low-income housing providers.
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Recommendation 13
Tlze City and County Sltould Encourage the Development
ofPrivate Market Low Income Housi�eg Tltroughout tl:e
City, County and 1/:e Region
By
• Adopting a mixed-use, mixed-income policy
New developments should feature the availability of units that aze suited for a
variety of family sizes and a range of income levels, including moderate and low-income
households. Innovative and creative approaches, including the provision of "density
bonuses" to developers, the establishment of inclusionary zoning practices, and the
increased use of government bonding authority to create housing affordable to low-wage
workers, should be fostered.
• Deve[oping Mechanisms to Bring the Resources and Expertise
of the Business Community to Bear to Integrate More
Homeless and Formerly Homeless Persons into the Workforce
By and lazge, homeless persons want to work, and, to a lazge extent, the
homeless population may be seen as an untapped labor pool. This initiative seeks to
build on existing human resources through partnerships with employers. Impediments
preventing more homeless persons &om successfully integrating into the labor market
include the lack of access to stable, affordable housing and inadequate transportation
linking job seekers and employers. Incentives should be developed to encowage
empioyers to participate in pro}ects that support a stable labor pool.
• Urging the Legislature to Establish Stronger Incentives to
Improve tl:e Effectiveness of the Livable Communities Act
The Livable Communities Act, though well-intended, has not been as
effective as predicted in producing affordable housing across the metropolitan azea.
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Further, what housing is being produced under its provisions is unafFordable to those at
the tower end of the income spectrum. Bold action needs to be taken by the legislature to
establish more effective incentives that will increase the units that are produced in the
suburban communities in the seven-county metropolitan azea.
• Supporting the Gaal of Habitatfor Humahify to Double its
Production Capacity in Ramsey County
Habitat for Humanity builds ar rehabilitates 20 to 25 houses per yeaz in
Ramsey County, while its metrowide waiting list consists of about 250 families. Habitat
for Humanity has set for itself a goal to double its producUOn capacity in Ramsey County
over the nea�t several yeazs. This proposal calls for enhancing partnerships to solicit the
support and participation of more corporate sponsors and volunteers to assist Habitat for
Humanity to achieve its goal.
HOMELESS SERVICES
Without vital services, many homeless persons will fail to gain stability and
establish self-sufficiency. The objective of the following recommendations is to fill gaps
identified during the planning process in the provision of services to homeless persons
throughout Ramsey County.
Recommendation 14
The County Should Work to Increase Capacfty ofAgeneies
to Deliver Basic Services Essential to Breaking
the Cycle of Homelessness
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Discussion
Formerly homeless persons and families indicate that access to basic necessiries
required to find and keep employment — such as stable housing, transportarion, clothing,
fiirniture, food, and health caze — is critical to establishing and maintaining stability and
avoiding repeat bouts of homelessness. For instance, helping people access clothing for
and trausportation to interviews can help to assure the acquisition and retention of
employment. Obtaining fiirniture can enable homeless families to leave shelter more
rapidly once housing is secured. Providing access to food shelves can mean that a family
does not have to choose between buying food and making rent payments. Increasing the
capacity of service delivery in these areas can help individuals and families to become
and remain self-sufficient.
Recommendation 15
The County Should Facilitate the Provision
of More Intensive Case Management, Counseling
and Financial Management Services
Discussion
One of the striking findings of the planning effort was that, across all populations,
there is a substantial shortage of case management, counseling and financial management
services. Logic dictates that the more services of this nature that can be provided, the
less the chance of recidivism and the greater the chance ciients have of achieving self-
reliance. Existing programs need additional resources to be able to achieve lower client-
to-staff ratios. In general, mare services need to be directed towazd families while,
specifically, single adults require more financial management services.
Recommendation 16
The Counry Shou[d Develop Mechanisms to Improve
Linkages Between Property Owners and Social Service Providers
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Discussion
Properiy owners interviewed indicated a willingness to offer affordable housing to
persons with mental illness, substance abuse issues and imperfect rental histories,
providing there is ready access to social service systems and networks in the event that
pmblems arise. The establishment of a formal system to link property owners with the
goveinment and nonprofit social services networks would be helpful in maintaining and
expanding the pool of housing available to homeless and low-income persons and
families in Raznsey County. Other ideas broached include the establishment of a risk
pool to recompense properry owners for unrecoverable expenses incurred if damage is
done to apartrnents. These strategies strengthen the ability of the community to focus on
the behavior of individual tenants rather than taint an entire building and discourage the
further provision of affordable housing at a property.
Recommendation 17
Low Income, Tra�rsitianal and PermaneHt Supportive Housing
Developers and Homeless Service Providers Shou[d Seek
Partnerships wifh Yeterans Service Organizations
Discussion
Homeless veterans comprise a significant portion of the populauon in need.
There are a variety of veterans service organizations (e.g., the Minnesota Department of
Veterans Affairs, the VA Medical Center, the Minnesota Assistance Council for
Veterans, the Veterans Center, the VFW, the American Legion, Disabled American
Veterans, the State Veteraus Home Boazd, locaI veterans service offices) that bring not
only expertise and sensitivity in working with homeless veterans, but also resources and
funding from govenuuent and other sources. Housing or service pmviders should
explore opportunities to partner with veterans service when developing or expanding
housing or service programs. Such partnerships can increase capacities, enhance
services, meet multiple needs, and leverage funding that can benefit providers and clients
alike.
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Recommendation 18
The City and County Should Provide or Seek Outside Funding
to Increase the Hours and Days They are Open
Discussion
Scazce funding limits the number of hours providers of youth drop-in services aze
able to stay open. Providers indicate a need to expand hours of operation until 8:00 p.m.,
seven days a week. Given the dramatic increase in homelessness among unaccompanied
youth, extending the hours during which assistance and a temporary safe haven are
available may provide some relief to the increasingly vexing problem of stabilizing these
at-risk young persons.
Recommendation 19
The County Should Assess the Feasibility
of Creating a Centralized System
of Intake, Assessment and Record Keeping
Discussion
The 1998 Ramsey County Survey indicated that, on average, every client seen in
the homeless service delivery system receives seven assessments. While, in some cases,
there may be good reasons for the provision of multiple assessments, there may also be an
opportunity to streamline service, avoid duplication, save costs and reduce the burden on
clients.
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Recommendation 20
The County Shou[d Seek Mechanisms to Ensure tl:at
Cu[tural Competency Trainfng is Given to Service Provide�s
Discussion
According to homeless persons participating in focus groups conducted during the
planning process, the most successful approach to providing service is to do so in a
manner that is nonjudgmental, respectful, supportive, and culturally-specific. Providing
training in these skills can enhance the probabiliry of successful interventions by service
providers.
Recommendation 21
The County Should Seek Mechanisms to Ensure
that Necessary Technical and Financial Resources
Are Provided to Agencies of Color
Discussion
Support service agencies operated primarily by people of color indicate a need for
technical assistance and access to resources. This recommendation is intended to bolster the
ability of such agencies to deliver culturally-specific services in communities and to people of
color.
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Fundinq
Critical to the success of the pian is the ability to gamer new resources and
leverage existing funding. A variety of federal, State, local and private entities distribute
a number of different grants. What is needed is a mechanism to increase coordination
and avoid duplication among the various funders and, using the Five-Year Plan as a
guide, direct funding appropriately to address the hierazchy of priorities. The following
recommendation is intended to establish such a mechanism.
Recommendation 22
The County Should Create a Funders Council
Discussion
It is proposed that, under City and County coordination, a Funders Council be
created to improve and provide a guiding vision to the system by which funding decisions
aze made. The Council would work in concert to make sure that a coherent system of
allocating grants is established that solicits targeted proposals and packages
appropriations, to the extent possible, to areas identified as priorities under the Five-Year
Plan. It is expected that the effective operation of the council would result in a
streamlined process for applicants.
Members of the Funders Council would include, but not be limited to: City of St.
Paul; Corporation for Supportive Housing; Family Housing Fund; Federal Emergency
Management Agency Board; Metropolitan Council; Minnesota Department of Chiidren,
Families and Learning; Minnesota Department of Human Services; Minnesota
Department of Veterans Affairs; Minnesota Housing Finance Agency; Ramsey County;
St. Paul Companies; St. Paul Foundation; U.S. Department of Housing and Urban
Development; and United Way.
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This body would be encouraged to seek the counsel of an advisory group of
currently stable, formerly homeless individuals who would identify the elements that
have enabled them to attain and maintain stability. Such advice would help to inform
funding decisions.
Through the establislunent of this body, enormous strides could be made in
coordinating funding; avoiding duplications, conflicts or gaps in funding; ensuring the
most efficient use of fmancial and staff resources; and simplifying the system for
organizations seeking funding.
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99—a��
�:��;�,c•z ; - � .
African American Families Project Working Group. "Reviving The Dream; An
Afrocentric Perspective on Homelessness in Ramsey County." Saint Paui:
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Beal, Dave. "Apartment vacancies show no sign of rising." Pioneer Press. March
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Community Action for Suburban Hennepin, "Privately Owned Federally
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� • • .•
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Appendix A
Oversight Committee
Name
Gwen Chandler Rhivers
7im Coulthard
OrpaniZation
YWCA of St. Paul
Minnesota Assistance Council for Veterans
Margaret A. Demco Minnesota Housing Finance Agency
Ron Elwood, Co-Chair Ramsey County Community Human Services Department
Mary Lou Egan Ramsey County Community Development Office
Mary Ford Ramsey County Community Human Services Department
Tom : ulton
Kurt Koehler
Rod Gustafson
Greg Horan
Mari Moen
Susan Phillips
Tom Sanchez, Co-Chair
Carl Scheider
Diane Stone
Gabrielle Strong
Family Housing Fund
Ramsey County Community Human Services Department
YWCA of St. Paul
MinnesotaJSt. Paul Coalitions for the Homeless
Corporation for Supportive Housing
Lutheran Social Services
St. Paul Planning & Economic Development Department
St. Paul Companies
Metropolitan Council HRA
Ain Dah Yung
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Appendix B
DATA SOURCES AND RESEARCH
METHODOLOGY
In an effort to base the St. PauURamsey County Five Year Housing and
Homeless Services Plan on sound information, the Plan's Oversight Committee retained
staff and consultants to assemble existing data about homelessness and affordable
housing in Ramsey County, and to conduct research and focus groups to fill in existing
gaps in knowledge on these issues. The data gathering process attempted to:
1) Describe the current system to serve homeless persons in Ramsey
County;
2) Describe the peopie using homeless support services, and the
people who aze not using these services but who need them;
3) Discem the state of affordable housing in Ramsey Ceunty;
4) Identify key trends in affordable housing and the homeless support
system that will inform the planning process.
Key Data Sources on Homelessness and Homeless Persons in Ramsey County
1. 1998 Ramsey County Housing and Service Inventory Survey
In order to ensure the broadest possible community participation in
the Five Year planning process, to obtain the most accurate representation of the
County's inventory of housing and services for homeless individuals, and to
provide the Plan's Oversight Committee with valuable data not reflected in the
other sources, staff from the Ramsey County Community Human Services
Department and the Corporation for Supportive Housing prepared and disseminated
an extensive survey of the organizations in Ramsey County that serve and/or house
homeless persons or persons at risk of homelessness. Modeled on the survey used
for the 1997 U.S. Department of Housing and Urban Development's Continuum of
Care planning process, the 1998 Ramsey County Housing and Service Inventory
Survey was significantly expanded to cover more services and housing settings and
to capture more data on the users of services and housing. Every survey recipient
received follow-up phone contact to ensure consistency in interpreting the survey
across all agencies.
1
There are a number of service sectors that do provide some service to
homeless persons, however, that were noY suroeyed. For example, neither food
shelves nor agencies that provide employment readiness training were surveyed,
and employment training programs were surveyed only when the agency in
question also provided an array of other, non-employment related services.
A second survey, designed to obtain data on the existing geographic
distriburion of services and to determine community attitudes towards the location of
new facilities, was distributed by Biko Associates to each of the 17 District Councils
in the City of St. Paul.
2. Annual Reports from Wilder Research Center's Emergency
Shelters, Transitional Housing and Battered Women's Shelters
Data Collection Project
In June 1998, the �Ider Research Center (WRC) released the Seventh
Annual Report on its effort to collect data on homeless adults and their children who
use emergency shelters, transitional housing, and battered women's shelters in Ramsey
County. These reports provide detailed information on the sheltered populations,
including demographic data (e.g., gender, race, age, education level), prior living
arrangements, patterns of shelter use, and housing outcomes. The WRC has been
coIIecting most of these data since 1991.
For the purposes of the St. Paul/Ramsey County Five Yeaz Planning
Process, the key limitarions of these reports aze that they do not present data on the use
of services by homeless people and they do not present information on permanent
supportive housing.
3. Office of Economic Opportunity's Quarterly Shelter Survey
The Office of Economic Opportunity (OEO) of the Minnesota
Department of Children, Families and Learning conducts a quarterly survey of
emergency sheIters, transitional housing programs, battered women's shelters, and
agencies providing motel vouchers across Minnesota. Since 1985, its quarterly
reports have documented the sheltering activities provided by these organizations
for one night every February, May, August, and November. For the purposes of
this report, staff requested a breakout of Ramsey County's data. These data, set
against the backdrop of statewide data from this survey, provide an invaluable
source of longitudinaI analysis of the shelter and transirional housing use in
Minnesota.
2
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Similar to the Wilder Annual reports, the main limitations of the Quarterly
Shelter Survey for the purposes of the five-year planning process is that it does not
account for the use of services by homeless persons, it does not account for
permanent housing or permanent supportive housing, and it surveyed a shorter list
of agencies than are represented in the data gathering survey completed specifically
for the Five Year Plan.
Focus Groups and Interviews
Focus groups were held and interviews were conducted by Biko
Associates to gather qualitative information from opinion leaders, stakeholder
organizations and users of the homeless services delivery system. At these sessions,
information was sought regazding views about the problems of and solutions to
homelessness.
Focus groups were held with the following groups:
♦ African American women in transitional housing
♦ Homeless American Indian men, women and youth
♦ Homeless unaccompanied youth
♦ Homeless single men (including Veterans)
♦ Homeless people with HIVIAIDS
♦ Homeless families
♦ Property Owners and Managers
Interviews were conducted with:
♦ Honorable Jerry Blakey, St. Paul City Council Member
♦ Honorable Andy Dawkins, Minnesota State Representative
♦ Honorable Dino Guerin, Ramsey County Commissioner
♦ Honorable Susan Haigh, Chair, Ramsey County Boazd of Commissioners
♦ Anonymous Shelter Provider and Service Provider
♦ Jobs Now Coalition
♦ McKnight Foundation
♦ St. Paul Area Council of Churches
♦ Oversight Committee Members
Interviews with Drop-in Centers and Outreach Workers
Staff from the Corporation for Supportive Housing conducted a series
of interviews with staff of drop-in centers and outreach workers. Because the data
from the surveys referenced above applies to shelterea' homeless populations, these
3
interviews were focused on identifying the characteristics of the unsheltered subset
of the homeless population, and the needs and barriers that this group confront.
Interviews were held with directors or staff (including outreach workers) of: Union
Gospel Mission; Listening House; the ACCESS program; of Catholic Chazities'
Dorothy Day Center, Streetworks.
0
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. .�
Appendix C
Lzst of Recommendations
PREVENTION
1) The City and County Should Establish a St. Paul/Ramsey County
Landlord-Tenant Education and Dispute Resolution Program
2) The County Should Act to Improve Coordination of Youth
Services in Ramsey County
3) The City and the County Should Continue, Support and
Expand Efforts to Reduce Disparities in Housing and
Homeless Seruices Prouided to People of Color
4) The City and County Should Urge the Legislature to
Establish a Statewide Homeless Prevention Planning Council
EMERGENCY SHELTER
5) The County Should Facilitate the Provision of Emergency
Shelter with a Family Reunification Focus for Unaccompanied Youth
6) The County Should Work to Develop Additional Emergency Shelter
Options for Homeless Youth When Family Reunification Efforts are
Exhausted
7) The County Should Facilitate the Development of a 10-bed
Shelter for Minor Parents and Their Children
TRANSITIONAL HOUSING
8) The City and County Should Facilitate Development of.
♦ 100 Units of Transitional Housing for Families
♦ 100 Units of Transitional Housing for Single Adults
1
♦ 50 Units of Transitional Housing for Youth
PERMANENT SUPPORTIVE HOUSING
9) The City and County Should Facilitate Development of.•
♦ 400 Units of Permanent Supportive Housing for Single Adults
♦ 200 Units of Permanent Supportive Housing for Families
♦ 50 Units of Permanent Supportive Housing for Youth
LOW INCOME MARKET RATE HOUSING
10) The City and County Should Support Coniinued Legislative
Funding Dedicated to the Preservation of Existing Federally
Subsidized Housing
11) The City and County Should Establzsh a Joint Polzcy to
Preserve Existing Nonsubsidized Low Income Housing Stock
12) The City and County Should Create an Affordable Houszng
Owners Advisory Group
13) The City and County ShouZd Encourage the Development
of Private Market Low Income Housing Throughout the
City, County and the RegionBy
• Adopting a mixed-use, mfxed-income policy
• Developing Mechanisms to Bring the Resources and
Expertise of the Business Community to Bear to
Integrate More HomeZess and Formerly Homeless
Persons into the Workforce
• Urging the Legislature to Establish Stronger Incentives
to Improve the Effectiveness of the Livable Communities
Act
• Supporting the Goal of Habitat for Humanity to Double
its Production Capacity in Ramsey County
2
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HOMELESS SERVICES
14) The County ShouZd Work to Increase Capacity of Agencies
to Deliver Basic Services Essential to the Cycle of HomeZessness
IS) The County Should Facilitate the Provision ofMore Intensive Case
Management, Counseling and Financial Management Services
16) The County Should Develop Mechanisms to Improve Linkages
Between Property Owners and Social Service Providers
17) Low Income, Transitional and Permanent Supporiive Housing
Developers and Homeless Service Providers Should Seek
Partnerships with Veterans Service Organizations
18) Youth Drop-in Centers Should Seek Funding to Increase
the Hours and Days They are Open
19) The County Should Assess the Feasibility of Creating a
Centralized System of Intake, Assessment and Record Keeping
20) The County Should Seek Mechanisms to Ensure that
Cultural Competency Trafning is Given to Service Providers
22) The County Should Seek Mechanzsms to Ensure lhat
Necessary Technical and Financial Resources Are Provided
to Agencies of Color
FUNDING
23) The County Should Create a Funders Council
3
� ��
lnterdepartmental Memorandum
CTIY OF SAII�T PAUL
TO: CiTy Council Members
FROM: Brian Sweeney�� •. �
r ...�..w a .
l/
DATE: May 26, 1999
RE: Replacement Housing
`�j-�Go
Attached is the report you requested regarding the City's replacement housing policy outlined in
Chapter 93 of the Administrative Code.
Following our presentation at the City Council meeting May 26, and after you have a chance to
read the report, you will understand that Chapter 93 is very narrow in its focus as it relates to
housing, and afFordabie housing, within the city, and how it impacts the activities of City
departments and agencies. Chapter 93 only applies to housing, commercial, o�ce or indusirial
development projects in which the City/HRA provides financing assistance, and where the units
lost and replaced are affordable to households with incomes not exceeding 55% ofthe area
median income. Chapter 93 does not apply to other City projects involving pazks, public works,
code enforcement and schools.
In order to put the discussion I expect we will have in context, I believe it is important to
comment on the lazger housing picture during the last ten years. Note the following brief
introductory comments.
Supply and Demand for Affordable Housing and Recent Policy
The rental vacancy rate in Saint Paul was 7.1 percent in 1989; today it is in the
neighborhood of 2 percent. This is the cleazest overall indicator of the relationship of
supply to demand. For rental housing, a vacancy rate in the neighborhood of five to six
percent is generally considered desirable for a healthy mazket. A vacancy rate this low
means that choice will be quite limited for most households in the market, and owners
will be able to keep rents high even for units of lower quality.
Because of the mazket and the trend for the first half of the 1990s, the 1990 housing plan
did not put an emphasis on additions to the supply. It did emphasize preserving
affordable housing and, where additions could be made, adding to the supply of units for
lazge families. Lazge family rental needs are typically the most difficult to meet.
r�
, . , _ f�
• Today, with the vacancy rate as low as it is, affordable rental needs for any household
size are difficult to meet.
• The 1990 policy supported increasing housing assistance, particularly assistance such as
Section 8 certificates and vouchers that give households the ability to rent in the private
market.
• Beginning in 1996, and until recently, the City's policy, as expressed in the Council
adopted Housing Action Program, was to "continue to refrain from construction of new
multi-family low income housing units within the City of Saint Paul."
• Untii 1994, there were federal, state and local replacement housing requirements. Up to
that time PED prepazed annual reports regarding replacement housing activities. After
1994, with the repeal of the state replacement housing legislation, and the City policy of
refraining from constructing low income rental housing, we have not done annual reports.
Housing Numbers-Current Estimates
Housing units in the city: 117,000
Affordable housing in the city: (based on a report we provided to the HRA in September
1998) of the 55,021 single family properties, 94% are affordable to households with
incomes at 100% of the azea median income; neazly 60% of the single family properties
are affordable to households at 50% of area median which currently is $31,800 for a
family of four. The estimated current Saint Paul median income is $46,500.
The average rent for apartsnent units in Saint Paul is affordable to families at 50% of the
area median income.
Assisted (subsidized) housing in the city: there is approximately 15,000 publicly-assisted
housing units within the city, affordable at various income levels from 30% to 80% of
area median income.
For the period 1989-1998:
1,147 units have been constructed (including non-residential buildings converted
to housing)
329 vacant units have been rehabilitated (involving assistance from the City)
1,381 units have been demolished
95 units aze the net additional units
�replacem
. � , •"
City Council
:wr_�a���z���
May 25,1999
I. Purpose
The City Council of the City of Saint Paul by Resolution 99-260 has requested the Department of
Plaz�ning and Economic Development to report on the overall implementation over the last ten
yeazs of the Replacement Housing Policy, Chapter 93 of the Administrative Code.
II. Intent and Definition of Replacement Housing
Chapter 93 of the Saint Paul's Administrative Code was adopted July 25, 1989. Chapter 93 of
the Saint Paul Administrative Code pertains to the Replacement Housing Policy for the City of
Saint Paul for city-assisted development projects. The Housing and Redevelopment Authority of
the City of Saint Paul on August 23, 1989, approved by resolution 89-8/23-3, the City of Saint
Paul's Replacement Housing Requirements for HRA-assisted development proj ects.
� The intent of this chapter is that the City of Saint Paul finds that it is in the public interest to
promote the production and preservation of an adequate supply of decent, sanitary, safe and
affordable rental housing for low-income residents (as defined in Chapter 93 - see below). The
city desires to affect a policy and procedure whereby the potential loss of such rental housing due
to a city-assisted development project (as defined in Chapter 93 - see below) will be reviewed in
relation to the overall supply of affordable rental housing in the city, and, where appropriate,
based upon the detemunation of the City Council of the City of Saint Paul, a plan will be
developed to replace lost rental housing with housing that meet the current needs of the city's
low-income residents.
Affordable rental housing which is defined in Chapter 93, as residential rental housing units
which have not been vacant for more than two (2) yeazs, aze a legal zoning use, and have gross
rents now or at any time in the previous twelve (12) months which are not more than thirty (30)
percent of fifty-five (55) percent of the metropolitan statistical azea median as such income may
be reported by the U.S. departxnent of Housing and Urban Development, adjusted for family size.
City-assisted development is defined in Chapter 93, as any housing, commercial, office or
industrial real estate development projects, in which the city provides financial assistance or aid
in securing public financial assistance, including any federal grant administered by the city, any
city revenue bond fmancing, tax increment financing, tax levies, funds or revenues controlled by
the city, except, however, projects which (1) have values of less than one million dollars
($1,000,000); (2) result in a loss of five (5) or fewer affordable rental housing units; or (3) aze
provided to individuals for purchase, remodeling, or renovation of single-family dwellings will
not be considered °city-assisted projects" and are exempt from Chapter 93.
III. HistoryBequirements
The City ordinance went into effect on July 25, 1989. Since that tnne, PED staff has monitored
the demolition and construction/rehabilitation of afFordable rental housing within the City limits
applicable to Chapter 93. Along with the monitoring of the city requirement, PED Staff is also
required to monitor and report on affordable housing that is demolished, constructed, or
rehabilitated under the Federal Replacement Housing regulation and between 1989 and 1993 the
State of Minnesota's Replacement Housing requirement.
The Federal Govemment, State of Minnesota (1989 - 1993) and the City of Saint Paul has or has
had a Replacement Housing Requirement. Each agency's regulation, although different, has the
same overall goal in which to replace affordabie housing.
A comparison of the Federal and the Local Replacement Housing requirements can be reviewed
in Attachxnent B.
IV. List of Replacement Housing Projects
The City of Saint Paul has done 28 projects tbax displaced units or added units to the city since
1989 that aze applicable to Chapter 93. The tallies of the disQlaced units are as followed:
� 1989 - One project displaced six units (Lyton Pazk Place),
1990 - Four projects displaced 20 units (814 Selby, 298 Mazshall, 595 York & 616 Edmund),
1991 - Four projects displaced 12 units (474 Hall, 484 Lynhurst, 25 W. Winifred, & 469 Ada),
1992 - Two projects displaced nine units (917 Rice & 908 Payne),
1993 - No units were displaced,
1994 - One project displaced eight units (607 York),
1995 - No units were displaced,
1996 - No units were displaced,
1997 - No units were displaced,
1998 - One project displaced 102 units (Lakewood Apartment).
The total of 13 projects displaced 157 units.
In the same tune period, the City of Saint Paul in 15 projects created 325 units that are applicable
to Chapter 93. The tallies for the creation of units aze as follows:
1989- No units were replaced,
1990 - Two projects created 35 units ( Van Dyke Townhomes, & Hamline Pazk Townhomes)
and one project that created 50 scattered site units (PHA),
1991 - Two projects created 105 units (Mary Hall & Bradley Terrace) and one project that
created nine scattered site units (PHA),
1992 - Three projects created 59 units (Comerstone, Wabasha Terrace & Galtier) and one project
that created 16 scattered site units (PHA),
1993 - One project created one unit ( Larpentuer Avenue),
a � �a
1994 - One project created 10 units (York/Sims),
1995 - No units created,
1996 - No units created,
1997 - Two projects created 30 units (B1ufFHomes & Aim Dah Yung),
1998 - One project created 10 units (914 Thomas).
Attachment A is a tally of the total units and unit size displaced and replaced for each yeaz from
1989 to 1998 which are applicable to Chapter 93. The Attachment also indicates the overall net
effect of this tally.
A conclusion to this tally, is that there is a positive net gain in replacement of affordable rental
housing in the City of Saint Paul as required to be monitored by Chapter 93. As can be seen in
the final tally and the overall general City policy of developing affordable family rental housing,
the City removed mainly one bedroom units but replaced them with larger two, three and four
bedroom units. The over a11 increase of affordable rental housing in Saint Paul aze 168 units.
V. List of Non-Replacement Aousing Projects
Certain projects within the City of Saint Paul aze not included in the Local Replacement Housing
requirements. These projects may remove or create affordable housing units in the City of Saint
Paul, but do not meet the definition of Affordable Rental Housing applicable to chapter 93 and
� therefore not counted in the tally.
The projects that might reduce affordable housing in Saint Paul could include projects such as
housing code enforcement and nuisance properties, expansions of roads, parks, recreation
centers, creation and expansion of public schools, and any other development from outside
agencies or private developers. Removal of affordable housing could include, the Code
Enforcement Department,.under the Nuisance Ordinance that may remove structures that are
unfit for human habitation. The Real Estate Division acting on behalf of the Public Works, Parks
& Recreation, and other city departments, may purchase affordable housing for the intent to
expand roadways (Da1e Street (10 Houses)) , recreation centers (Jimmy Lee Rec Center from (55
to 65 housing units)) or parks. They may also purchase affordable housing if neighborhood
group request their assistance for an unseen problem (Hoyt-Montana Neighborhood (29 of 34
houses purchased)). The School District may remove affordable housing for the expansion of
public schools (Arlington High School (22 Houses), Jackson School (13 Houses), York
Achievement Plus School (56 Houses)). These projects aze not a housing, commercial, office or
industrial real estate development and therefore not applicable to Chapter 93.
Certain projects that created affordable housing units, which are not counted as applicable to
Chapter 93, could include rehabilitation/new construction where rents maybe slightly higher than
the Replacement Housing 30% of 55% income requirements (Low-Income Housing TaY Credits
at 60°/o, and CDBG's 80% of a median income requirement). Construction of affordable single
family homes (Houses to Homes and In-fill Housing), rents that do not exceed the 10-year rent
restrictions (Lexington-Hamline Housing Coop), and where the area mazket dictates affordable
rents (683 Hague Avenue, private developers) are also not included in this tally.
The Tally also does not include construction/rehabilitation from outside agencies (FHF, FIUD,
MFIFA, PHA) who create affordabie rental housing within Saint Paul without any CiTy/fIRE1
assistance
This tally also does not include projects that had a zero net loss of squaze footage. Cen�al
Tower, Ramsey Hill and Cathedral Hill are three examples of zero-net loss projects. In all three
examples, the total units were reduced but were increased in the respect of lazger bedroom units.
The squaze footage of each building was not reduced and the building will house the same
number of tenants. Therefore, these projects do not fall into the replacement housing
requirements. Attachment C outlines the above-mentioned examples.
Therefore, these projects and similaz projects would not trigger the Replacement Housing
requirement of the City of Saint Paul.
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REPLACEMENT HOUSING GUIDELINES AND COMPARISON
FEDERAL AND LOCAL REGULATIONS
SUMMARY OF STATU"I`ES:
FEDERAL
HCTD (the Department of Housing and Urban Development) requires replacement of a11 occupied
and vacant occupiable low/moderate income dwelling units demolished or converged to a use
other than as Low/Moderate Income Housing in connection with an activity assisted with federal
CDBG (Community Development Block Crrant) funds. A low/moderate income dwelling unit is
a unit with market rent (including utilities) not exceeding fair mazket rent (FMR) for Section 8
existing housina. Low/moderate income dwelling units include owner-occupied units which
would rent at or below FMR if they were rental. "Vacant Occupiable° means those units in
standard condition and those in substandard condition but suitable for rehabilitation. It makes no
difference how long the units have been vacant.
Replacement units for units demolished or converted with Federal CDBG funds:
• Must be provided one year before commencement of demolition or conversion activity to
three years after.
• Must contain at least the same number of bedrooms as the units which were demolished
or converted. (Six one-bedroom units may be replaced with two three-bedroom units).
• Maybe rehabilitated vacant units if the units were substandazd before rehab and the units
were vacant at least three months before the contract between the city and the property
owner.
• Maybe units in project-based Section 8 subsidy programs.
• Must be designed to remain low/moderate income dwellings for ten years.
CIT'Y
A City ordinance requires replacement of affordable rental housine which is demolished or
converted i£ 1) such loss results in a net loss in the city; or 2) the loss is of the type needed in the
city and 20 or more units; or 3) the loss is due to an activity directly funded from federal CDBG
funds. Affordable rental housing is rental housing with gross rents which are not more than 30%
of 5�% of inedian income. Units vacant less than two yeazs must be replaced. Projects with a
value of less than $1,000,000 or resulting in a loss of five or fewer units are excluded from
replacement under the city ordinance.
Replacement units for units displaced by the city or a subgrantee of the city and subject to
replacement under the city ordinance:
• Must be provided within three years of the commencement of demolition or conversion
activity.
• Must be sufficient in number and size to house at least the number of persons who could
have been housed in the units to be lost.
• Maybe provided as new construction or rehabilitated units vacant more than rivo years.
• Must be affordable for at least 10 yeazs from the date of initial occupancy.
• Maybe provided by any public agency or private development.
To better illustrate the differences in the definitions of low-income housing and the requirements
for replacement units under the two laws, the following comparison of the above informafion is
provided in the following:
REPLACEMENT HOUSING LEGISLATION: COMPARISON OF TWO LAWS
� DEFINITION
FEDERAL
LOCAL
Unit Requiring
Replacement:
Rent L'units of
Replacement Housing:
Vacant Units,
Replacement Required i£
Triggering Activity:
Low/moderate income dwelling
unit: mazket rent not exceeding
FMR for Section 8 existing
Housing, include owner
occupied units.
Section 8 Fair Market Rent
(Fair Mazket Rents (FMR))
Occupiable or substandard
but suitable for rehabilitation.
Activity using CDBG funds
which direcfly results in
demolition or conversion of
low/moderate dwelling units
to another use.
Affordable Rental Aousing:
Gross rents which aze not
more than 30% of 55% of the
median income.
30% of 55% of inedian
Vacant less than two yeazs.
Demolition or conversion of
Affordable units results in net
loss in the city or loss is of
the type needed in the city
and 20 or more units or loss
is due to an activity directly
funded from CDBG.
a� -��
Replacement Units
Defined as Newly
Constructed or:
Rehabilitated vacant units if
substandazd and vacant at least
three months prior to rehab.
Units in project-based Section 8
subsidy program.
Rehabilitated units vacant
more than two years.
Replacement Units
Affordability Beyond
Initial Occupancy:
Timing of Replacement
Units:
Configuration of
Replacement Units:
Designed to remain
affordable for ten yeazs
from date of occupancy
One year before activity
to three yeazs after
commencement of activity
Replacement with units having
at least as many bedrooms
(six 1BR units could be
replaced with two 3BR units).
Exceptions from HUD determines there is an
Replacement adequate supply of vacant low/
Requirements: moderate income dwelling units
in standard condition and available
on a nondiscriminatory basis.
Affordable for at least ten
yeazs from date of initial
occupancy.
Within three yeazs of the
commencement of demolition
or conversion activity.
Sufficient in number and size
to house at least the number
who could have been housed
in the units to be lost.
Project has a value of less
than $1,000,000 or results in
a loss of five or fewer units.
�, , ,�
ATTACHMENT C
ZERO NET LOSS OF SQUARE FOOTAGE
UNITS DISPLACED Y7NITS ADDED
TYPBBEDROOM(S) TYPEBEDROOM(S)
PROJECT EFF 1 2 3 EFF 1 2 3
Central 213 58 0 0 69 127 1 0
Towers
Ramsey 0 0 0 0 0 0 0 0
Hill
Cathedral 9 51 33 0 0 21 16 23
Hill
Bluff 4 28 31 0 0 9 21 14
Homes
TOTAL 226 137 64 0 69 157 38 37
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Green Sheet # �o3�j q
RESOLUTION
C�VT PAUL, M�NNESOTA �7
�
Presented
Referred To
Committee Date
RESOLUTION DIRECTING THE PREPARATION OF A REPORT ON THE
CITY'S REPLACEMENT HOUSING POLICY
1 WHEREAS, Chapter 93 of the City's Administrative Code is the City's Replacement Housing Policy
2 states that
3 The City of Saint Paul fznds that it is in the public interest to promote the production and
4 preservation of an adequate suppZy of decent, sanitary, safe and affordable rental housing for
5 low-income residents. The City desires to effect a policy and procedure whereby the potentiat
6 loss of such rental housing due to a city-assisted development project will be reviewed in
7 relation to the overall housing supply of affordable housing in the City, and where appropriate,
8 based upon the determination of the City Council of the City of Saint Pau1, a plan will be
9 developed to replace Zost rental housing with housing that meets the current needs of the City's
10 low-income residents.
11 WITEREAS, the Replacement Housing Policy has been in place since 1989; now, therefore, be it
12 RESOLVED, that the Saint Paul City Council directs the Deparhnent of Planning and Economic
13 Development to report on the overall implementation over the last ten yeazs of Replacement Hou�sing
14 Policy, Chapter 93 of the Administrative Code, on May 26, 1999.
Requested by Departinent o£
�
Form Approved by City Attomey
�
Adoprion Certified by Council Secretary
Approved by Mayor for Submission to Councff
By:
. B
Approved by Mayor: ate
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Ci.J, 1 _ ' ' — v ., �
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Adopted by Council: Date"� �2-'�{ ��'�`1
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C'ow,c�•�_ WcvJ.r a 3 �
PERSON 8 PFiONE
L'ouHt�%membe� �o%�a. ZGG-Sl920
F
TOTAL # OF SIGNATURE PAGES
�
GREEN SHEET
oE.�u,�r nRarart
Q9-��o
r,o 63539
NItlalNbe
arvcas� .
� ❑ CRYATiONEY ❑ OIYC�iFIf �
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(CLIP ALL LOCATIONS FOR SIGNATURE)
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Cka.p� 93 o�f� fld�w�%sti�a �'i'e•� Coda, on. May 2� �499.
PLANNING COMMISSION
CIB COMMITSEE
CIVIL SERVICE COMMISSION
flyi\79K�Pi��7
Has this persoMrm ever urorked uMer a contract fw this depaitmenl7
VES NO
Has Mia DersoNfirtn eVer been a ci[Y emPbYee?
YES NO
poes this persoMnn poesess a sldll not normallypossessed by any artent aty employee'7
VES NO
Isthis persoMrtm atar0eied vendof�
YES NO
COST/REVENUE BUDGETED (CIRCLE ONE)
SOURCE
ACTMTY NUMBER
VES NO
INFORMATION (IXPWN)
99-a�a
ST . PAUL/RAMSEY COUNTY
FIVE-�E�iR LOW INCOME HOUSING
AND HOMELESS SERVICES
REPORT AND PLAN
►-�
January 1999
�q- a � a
TABLE OF CONTENTS
EXECUTIVE SUMMARY
ChapterL
INTRODUCTION
Organization of the Report and Plan
Key Trends
Chapter II:
THE CURRENT SYSTEM
The Continuum of Care
Housing
Services
Funding for Homeless Services and Programs
Acquisition of Properties
New Development
Chapter IIL•
HOMELESSNESS INRAMSEY COUNTY
Background
Who are Ramsey County's Homeless?
Single Adults
Homeless Veterans
Persons with HIV/AIDS
Families
Unaccompanied Youth
The Invisible Homeless
Causes of Homelessness
The Affordable Housing Crisis
Insufficient Wages
Mental Illness and Chemical Dependency
Domestic Violence
Racial Discrimination
Community Support for New and Additional Services
Prevention Strategies
Chaprer rv
FITjE YEAR PLAN
1
3
3
6
7
6
10
12
13
13
14
14
16
17
20
21
22
25
27
28
29
42
43
46
47
48
48
51
BIBLIOGRAPHY
APPENDICES
Appendix A Oversight Committee
Appendix B Data Sources and Research Methodology
Appendix C List of Recommendations
LIST OF CHARTS AND TABLES
Chart 1. Emergency Shelter Capacity
Chart 2. Transitional Housing Capacity
Chart 3. Permanent Supportive Housing Distribution
ChaR 4. Emergency Shelter Use in Ramsey County,
Single Adults and Families, 1997
Chart 5. Battered Wo�meds Shelter Use, 1997
7
9
10
14
IS
Chart 6. Transitional Housing Use in Ramsey County, 1997 15
ChaR 7. Comparison of Single Female Emergency Shelter Users 18
with Single Female Transitional Housing Users, 1997
Chart 8. Race of Adults with Children Entering Emergency Shelter, 1997 23
Chart 9. Race of Children Entering Emergency Shelter, 1997 23
Chart 10. Income Compared to Housing Affordability 43
Table 1. Males and Females Alone Entering Emergency Sheker, 1997 18
Tabfe 2. Racia[ and Ethnic Composition of Homeless Youth, Statewide 26
Table 3. Number and Percentage of Households Earniug 36
Less than $20,000 Unable to Afford Housing
� 9-a�o
EXECUTIVE SUMMARY
Homelessness continues to plague both its victims and the community as a whole
despite the efforts of dedicated local, State and national funders, service providers,
elected officials and advocates. Between 1991 and 1997, an estimated 30,000 different
persons accessed emergency shelters, battered women's shelters, and transitional housing
programs in Ramsey County.
Reseazch conducted during this planning effort revealed a range of causes and
effects of homelessness. Among the causes are: continuing and growing poverty; mental
illness; chemical dependency; domestic violence; and family strife. Racism and
discrimination must also be recognized as contributing factors. It is unlikely that it is
only a coincidence that 75% of the residents of Ramsey County's family sheiter aze
African American.
Perhaps the greatest barrier to escaping homelessness is the severe shortage of low
income, affordable housing. This condition places additional pressure on emergency
shelter and iransitional housing programs. Alleviating the housing shortage would not
only impact homelessness, but also it would benefit economic development and growth in
the city and county, since the labor shortage is having a widely acknowledged effect on
the ability of azea businesses to maintain and expand production and there is widespread
agreement that stable housing and a stable labor force aze closely linked. Moreover,
empirical evidence has shown that children's school performance declines significantly in
proportion to the instability of their living conditions.
9�1
Homelessness in Ramsey Cou_n�t
Last yeaz, about 3,600 people sought refuge in emergency homeless shelters in the
City of St. Paul and Ramsey County. One-quarter (or nearly 900) were children.
Approximately 150 persons in families were unable to be sheltered due to lack of space.
A total of 2,800 women and their children required the use of battered women's shelters.
Further, the Wilder Research Center estimates that, statewide, about 10,000
unaccompanied youth experience at least one episode of homelessness during the yeaz_
Transitional housing use has increased steadily over the last several years, due in
part to some added capacity to meet great demand. More than 1,000 persons, almost
three-quarters of whom were family members, accessed transitional housing last year.
There is a need for nearly 800 additional units.
The composition of the homeless population in Ramsey County is not
homogeneous. Single adults, families, unaccompanied youth, veterans, victims of
domestic violence, and persons of virtually every race and ethnicity ail count themselves
among the homeless. The fastest growing homeless group, however, is women and
children. In addition, the percentage of homeless persons who aze employed has
increased over the last several years.
The Plan
Recognizing and responding to these concerns, the St. Paul City Council and the
Ramsey County Board of Commissioners, in 1996, jointly endorsed a planning process
designed to assess the state of affordable housing and the homeless services delivery
system in the community, and devise a plan to address the gaps identified.
The result of this joint planning effort is this St. PauURamsey County Five-Year
Low Income Housing and Homeless Services Report and Plan. Developed on a
pazallel, and sometimes intersecting, track with the City of St. PauPs Comprehensive
Housing Plan, the Five-Yeaz Plan presents a series of recommendations grouped under
grouped under four broad categories: (1) Homeless Prevention; (2) Shelter and
Housing; (3) Homeless Services; and (4) Funding.
ii
Prevention
The recommendations around homeless prevention involve:
. The coordination and e�ansion of exisUng services to establish
a program to assist tenants and landlords so that families are
not forced into homelessness;
• The increased coordination of agencies and systems providing
services to youth;
• The continuation and expansion of efforts to reduce disparities
in housing and homeless services provided to people of color;
and
• The establishment of a Statewide Homeless Prevention Planning
Council.
Shelter and Housin�
The recommendations around shelter and housing involve:
• The provision of emergency shelter with a family reunification
focus for unaccompanied youth;
• The development of additional emergency shelter options for
homeless youth when family reunification efforts aze
e�chausted;
• The development of a 10-bed shelter for minor parents and
their children;
• The development of 100 units of transitional housing for single
adults, 100 units of transitional housing for families, and 50
units of transitional housing for youth;
• The development of 400 units of permanent supportive housing
for single adults, 200 units of permanent supportive housing
for families, and 50 units of permanent supportive housing for
youth;
iii
� 9-a�o
• The support of continued legislative funding dedicated to the
preservation of existing federally subsidized low income
housing;
• The establishment of a joint city/county policy to preserve
e3usting nonsubsidized low income housing stock;
• The creation of an Affordable Housing Owners Advisory Group;
• The development of private market low income housing
throughout the city, county and region by:
* Adopting a mixed-use, m�ed income policy;
* Tapping the resources and expertise of the business
community;
* Urging the legislature to establish stronger incentives to
improve the effectiveness of the Livable Communities Act;
and
* Supporting the goal of Habitat for Humanity to doubie its
production capacity in Ramsey County;
*
HOMELESS SERVICES
The recommendations azound homeless services involve:
• The increase of the capacity of agencies to deliver basic services
essential to breaking the cycle of homelessness;
• The provision of more intensive case management, counseling and
financial management services;
• The development of inechanisms to improve linkages between
property owners and social service providers;
• Urging all types of housing developers and homeless service
providers to seek partnerships with veterans service organizations;
• Providing or finding outside funding to. increase the hours and days
that youth drop-in centers are open;
iv
• Assessing the feasibility of creating a centralized system of intake,
assessment and record keeping;
• Seeking mechanisms to ensure that cultural competency training is
given to service providers;
• Seeking mechanisms to ensure tk�at necessary technical and financial
resources are provided to agencies of color.
Fuading
OnIy one recommendation is listed under this category, but it is perhaps
the most critical to the success of the plan. A wide variety of federal, State, local and
private enfities distribute a number of different grants. What is needed is a mechanism to
increase coordination and avoid duplication among the various funders and, using the
Five-Yeaz Plan as a guide, direct funding appropriately to address the hierazchy of
priorities. Creation of a Funders Council to work in concert to make sure that a coherent
system of allocating grants is established in which targeted proposals are solicited and
appropriafions are packaged, to the e�ent possible, to azeas idenrified as priorities under
the Five-Yeaz Plan. The effective operation of the council would, in addition, result in a
streamlined process for applicants. Through the establishment of this body, enormous
strides could be made in coordinating funding; avoiding duplications, conflicts or gaps in
funding; ensuring the most efficient use of financial and staff resources; and simplifying
the system for organizarions seeking funding.
The Five-Year Plan is an ambitious, yet achievable blueprint far
addressing both the symptoms and underlying causes of homelessness in our community.
It presents a strategy to prevent homelessness, assist those who are or will become
homeless, and fill the needs for and narrow the gaps in low income housing and homeless
services..
v
99-a�o
Chapter I
INTRODUCTION
Homelessness continues to plague both its victims and the community as a whole
despite the efforts of dedicated local, State and national funders, service providers,
elected officials and advocates. Between 1991 and 1997, an estimated 30,000 different
persons accessed emergency shelters, battered women's shelters, and transitional housing
programs in Ramsey County.' Here, as elsewhere, a constellation of issues -- some
economic, some personal -- underlie the persistent prevalence of homelessness. These
issues include poverry, mental illness, chemical dependency, domestic violence, racism
and discrimination, and, perhaps most importantly, the severe shortage of affordable
housing.
Recognizing and responding to these concerns, the St. Paui City Council and the
Ramsey County Board of Commissioners, in 1996, jointly endorsed a planning process
designed to assess the state of low income housing and the homeless services delivery
system in the community, and devise a plan to address the gaps identified.
This St. PauURamsey County Five-Year Low-Income Housing and Homeless
Services Repart and P[an (the Five-Year Plan ar the Plan) is the result of a coordinated
City/County effort, involving wide-ranging quantitative and qualitative reseazch,
conducted by and under the direction of an Oversight Committee, with the assistance of
several consultants, and the input from interested individuals and organizations.
' Wilder Research Center, Emergency Shelters, Transitional Housing, and Battered Women's
Shelters Data Collection Project, Seventh Annual Report (St. Paul: Amherst H. Wilder
Foundation, June 1998), p. iv.
Appendix A contains a list of the members of the Oversight Committee. The Family
Housing Fund provided financial support for the planning initiative, while the Corporation
for Supportive Housing provided administrative support during the planning process.
Consultant Eric Grumdahl was responsible primarily for compiling the quantitative data,
while the consulting firm Biko Associates, Inc. handled the qualitative data gathering
effort. Appendix B contains a description of the data sources and research methodology.
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Five-Year Plan, which addresses housing needs for low-income citizens and
the service needs for the county's homeless population, has been developed on a parallel,
and sometimes intersecting, track with the City of St. PauPs Comprehensive Housing
Plan, which looks at the full range of housing needs for all income levels.
In examining the underlying causes of homelessness, the housing shortage,
especially for people with incomes lower than 50% of the federal poverty Ievel, rises to
the top as the primary need to alleviate some of the pressure on working families and on
shelter providers.
Alleviating the housing shortage would not only impact homelessness, but also it
would benefit economic development and growth in the city and county, since the labor
shortage is having a widely aclrnowledged effect on the ability of azea businesses to
maintain and expand production and there is widespread agreement that stabte housing
and a stable labor force aze closely linked. Moreover, empirical evidence has shown that
children's school performance declines significantly in proportion to the instability of
their living conditions.
The Plan, in coordination with the City of St. Paul's Comprehensive Housing
Plan, proposes an overall housing strategy that combines preservarion and the
development of a mixed-income, mixed-use housing throughout the county.
The Five-Yeaz Plan contains a series of constructive, sometimes innovative
proposals. Many build on successful models that are already in place here or that have
been demonstrated to work elsewhere. The Plan represents an ambitious, yet pragmatic
blueprint designed to:
1) Help people and fanulies who aze homeless
or at risk of homelessness take control of
and responsibility for their lives and improve
their standazds of Iiving; and
2) Promote ways to increase opportunities
for homeless and low-income persons
to obtain affordable housing throughout
Ramsey County.
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
99 �°
Organization of the Report and Plan
The neact portion of this chapter contains a discussion of key trends identified
during the data gathering and reseazch portion of the planning process. Chapter II
describes the organization of the homeless service delivery system currently in place in
Ramsey County. Among the subjects covered are the Continuum of Care model;
emergency, transitional and permanent supportive housing capacities; a discussion of
homeless services; and how funding for programs aimed at homeless prevention and
assistance is presently coordinated.
Chapter III presents a thorough description of homelessness in Ramsey County. It
describes the various segments of the homeless population, discusses the many causes of
homelessness, including the low income housing shortage. Findings of the data gathering
effort and other research aze interspersed throughout this section.
Chapter IV, the final section, presents the recommendations that comprise the
proposed St. PauURamsey County Five-Year Low Income Housing and Homeless
Services Plan.
Key Trends
Three key socioeconomic and demographic trends were identified from the
reseazch conducted. They aze as follows: (1) poverty is on the rise and the income gap
between rich and poor is widening; (2) the percentage of homeless persons and families
who are working is growing; and (3) job and population growth will continue, which in
turn will increase the demand for even more affordable housing. These trends aze
discussed in more depth below.
3
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
♦ Poverty is on the rise and the income gap is wideninge
Countywide, a total of 54,000 people aze poverty-stricken; in the City of
St. Paul, more than 44,000 people (neazly 17%) live in poverty. Regardirig the
gap between rich and poor, "the disparity between the richest 20 percent and the
poorest 20 percent of families with children [Statewide] grew by 43 percent
between the late 1970s and mid-1990s, according to the Center for Budget and
Policy Priorities."
It is estimated that, in the City of St. Paul alone, there aze currenfly, 5,000
renter households in especially dire housing straits in that they aze either paying
more than half their income for housing or are living in extremeIy substandard
housing.
♦ The percentage of the hometess who are working is growing.
The percentage of homeless persons and families with full time or part
tune jobs is increasing. T'he Wilder Reseazch Center reports that, between 1994
and 1997, the percentage of homeless people employed around Yhat State
increased 30%; since 1991, the percentage rose almost 80%. At the same time,
however, "income generated from this employment is often not adequate to
support the cost of mazket rate housing." 6
' United States Census Bureau, 1990 U.S. Census Data, Database C90STF3A; available from
http://venus.census.gov/cdrom/lookup/901296831; Internet, accessed Ju1y 24, 1998 and United
States Census Bureau, 1990 U.S. Census Data, Database C90STF3A; available from
http://venus.census.gov/cdrom/lookup/901297528; Internet, accessed July 24, 1998.
° Joel Sawyer, "Gap between Minnesota rich, poor grew by 43%, group says," Star Tribune,
December 17, 1997; available from hYtp://webservl.startribune.com/cgi-bin/stOnLine/
article?thisStory=45530254; Intemet, accessed December 17, 1997.
' Kevin Diaz, "Low-income housing plan is raising questions," Star Tribune, July 28, 1998, p.
10. Housing is generally deemed affordable if it accounts for no more than 30% of household
income.
6 Wilder Reseazch Center, Minnesota Statewide Survey ofPersons Without Permanent
Shelter, Volume I: Adults and Their Chi[dren (St. Paul: Amherst H. Wilder Foundation, June
1998), p. xii.
n
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�9-a�o
♦ Continued job and population growth will necessitate the development
of even more affordable units.
Indications aze that the local economy will continue to prosper. Job
growth is expected to continue. Along with an expanding economy comes a need
for an expanding and stable workforce, for which housing stability is the linchpin.
Over the next few yeazs, the pressure to develop more low income housing,
presently in short suppiy, will only increase.
5
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
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�9-a�o
Chapter II
THE CURRENT SYSTEM
The Continuum of Care
Services to homeless individuals and families in Ramsey County are supplied
under a"Continuum of Care" model developed by the U.S. Department of Housing and
Urban Development (HUD) and designed to assist homeless persons to become self-
sufficient. The model identifies types of housing required at various stages of need for
individuals and families. The continuum comprises a series of progressive steps from
shelter to transitional housing to permanent housing, and includes supports where
necessary.
The components of the "Continuum of Care" may be diagrammed as follows:
Outreach
Intake
Assessment
� � �
Emergency Transitional Permanent
Shelter �` Housing — Housing
(with or without supports)
�
Permanent
Supportive
Housing
�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
HOUSING
Emergency Shelter
Emergency shelter is last resort housing. It is typically available to an individual or
family for no more than 30 days. In general, Ramsey County provides emergency shelter
services for families, while nonprofit organizations provide emergency shelter for single adults
and unaccompanied youth.
According to the most recent homeless survey, a combined total of 161 emergency
shelter beds are avai►able for single adults, families and unaccompanied youth.' About 56% of
the total capacity is available for single adults, 34% for families, and 10% for youth.
Chart 1. Emergency ShelYer Capacity
100
80
60
40
20
0
_ �
Single Adults Persons in Families Unaccompanied
Youth
Source: Wilder Research Center, Emergency Shelters, Tranritional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
WIlder Reseazch Center, Seventh Annual Report, p. 53. For families, the 55-bed capacity
reflecu the space available at the county-sponsored sheltec The St. Paul Area Council of
Churches operates an overflow service, general[y from June to October, altfiougfi in recent
years the churches have provided this service through Mazch or April. In addition, when
available, overflow shelter space is provided at the Naomi Famity Center, which is now
primarily used for Ransirional housing.
�1
St, Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
�4 a�o
In 1997, the Ramsey County Board of Commissioners resolved to build a new
Family Service Center, keeping capacity at its current level. The board moved
proactively upon ]earning that the current faciiity used to temporarily house families will
be unavailable when its lease expires on December 31, 2000. The Board's action not
only averted the potential loss of essential family shelter, but also creates the opportunity
to develop a higher quality service centerto replace the present facility.
On a parallel track, the Ramsey County Board of Commissioners and the United
Way of St. Paul have led an effort to mobilize private sector and charitable organizations
around the issue of homelessness. A fundraising campaign is under way to assist the
County in its mission to provide family shelter services and to find long-term solutions to
the vexing problem of homelessness.
Transitional Housing
Transitional housing is intended to serve individuals and families requiring stability and
support services. This type of housing is typically operated by nonprofit organizations, ofren
with financial support from federal, state or local grants, and provides lodging for a limited
period, generally no more than 24 months. Eligibility for these facilities frequently requires
residents to be working or in school. Most programs also require participants to remain chemical
free.
"1998 Ramsey County Honsing and Service Inventory Survey" (the 1998 Ramsey
County Survey), shows a total capacity of 665 transitional housing beds. The overwhelming
majoriTy of available space (about 74%) is reserved for families.
Eric Grumdahl, "1998 Ramsey County Housing and Service Inventory Survey"
Minneapolis: Corporation for Supportive Housing for the St. PauURamsey County Five-
Yeaz Plan Oversight Committee, May 1998). The survey was distributed to approximately
150 service providers in Ramsey County. The resuits of this effort provide the basis for the
recommendations contained in the Five-Yeaz Plan.
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 2. Transitional Housing Capacity
Source: Eric Grumdahl, "t998 Ramsey Counry Housing and Service Invenroty Survey."
Permaaent Supportive Housing
Permanent supportive housing combines residency wiih a strong system of
ongoing supports. This is a model that has proven successful in moving people with
chronic physical or mental problems out of homelessness. In fact, a recent study of
permanent supportive housing programs operaring in Ramsey, Anoka, Dakota and
Hennepin Counties found that, especially for the mentally ill or chemically dependent,
tlus type of housing can offer a cost-effective alternative to the "cycle of homelessness,"
which generally involves more expensive institutional caze settings.
According to 1998 Rarnsey County Survey, a total of 634 permanent supportive
housing units is available in the County, about 55% of which aze reserved for single
adults, 45% for families.
9 Terry Tilsen, Minnesota Supportive Housing Demonstratian Program One-Year Evaluation
Report (St. Paul: Wilder Reseazch Center, June 1998), p, ii.
E
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Families Atlults Youth
99-a�o
Chart 3. Permanent Supportive Housing Distribution
Source: Eric Grumdahl, "1998 Ramsey County Housing and Service Inventory Survey."
SER V/CES
Homeless persons in Ramsey County receive an assortment of services that
are offered by government, nonprofit or foundation providers. Services include:
assessment; benefits coordination; case management; companion services;
counseling; emergency/crisis assistance; financial management skills training;
food/clothinglfurniture; housing placement; information and referral; life skills
training; medical and mental health care; outreach; substance abuse treatment; and
transportation. Not all persons who are homeless require all services available.
The appropriate package of services must be assembled to address Yhe
particular set of baniers that any one individual or family face to finding housing
and achieving both stability and self-sufficiency. The 1998 Ramsey County Survey
10
St. Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Repor[
and Plan
inventoried the services provided to homeless singie adults, persons in families,
and unaccompanied youth. The results indicate some areas of strength and other
areas ihat call for additionat resources.
A particularly striking finding involves the racial composition of service
users in Ramsey County. The survey found that, on average, whites make up a
disproportionately high percentage of users of service, especially compared with
the proportion of shelter and transitional housing users they represent. For
instance, though they comprise 33% of those entering shelter, white persons use
89% of all life skills training services available for the homeless population.
Homeless Native Americans and Hispanic persons receive no life skills training
whatsoever.
Another significant finding involves the frequency of service usage in some
categories. The survey indicated that, for those homeless persons who receive an
assessment, each receives, on average, seven per year. In contrast, there appears to
be a substantial shortage of case management, counseling and financial
management services available; on average, each homeless person or family
receives only about six hours of case management, six hours of counseling, and one
hour of financial management services per year.
Discussions with currently and formerly homeless individuals brought the stark
realities of their everyday life into sharp focus. What most of us take for granted — such
as food on the table, ease of transportation, roomfuls of furniture — can be beyond the
reach of those with little or no means who aze in shelter or searching for a place to call
home. Services that provide these basic necessities aze essential to the reintegration of the
already homeless back into the mainstream, and the prevention of future episodes of
homelessness.
10 Case management is defined as a systematic process of ongoing planning, referral, service
coordination, consultation, advocacy, and monitoring through which multiple service
needs of clients are addressed. Counseling is defined as the provision of therapeutic
processes on personal, family, situational or occupational problems. Financial
management is defined as assistance — including consumer education, debt adjustment,
financial counseling, protective and vendor payments — to help individuals or families
manage their income so that they aze able to obtain the greatest amount of economic
stability. Of course, individual programs may provide more intensive hours of any or all of
these services.
11
St. Paul/Ramsey CounTy
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9q-a�o
For fanulies with mazginal incomes, access to a food shelf can mean the
difference between paying the rent and winding up homeless. Employment is the key to
maintaining stable housing, but if transportation is unavailabie or unaffordable, then the
lack or loss of income can shatter the tenuous hold a family may have on housing
stability.
Funding for Low Income Housing and
Homeless Services and Programs
Government, nonprofit and chazitable funders of housing and homeless services
programs all regulazly distribute a variety of grants. Available sources include the annual
HIJD McKinney Continuum of Care grants; the Section 8 Certificate and Voucher
Program, administered by the St. Paul Public Housing Agency and the Metropolitan
Council; federal Emergency Shelter Grant; the federal Department of Education's Title I
Program for Homeless Children and Families; the annual Federal Emergency
Management Agency's Emergency Food and Shelter Grant; the federal Community
Development Block Grant funds that aze provided to both the City of St. Paul and
Ramsey County; a number of Minnesota Housing Finance Agency (MHFA), including
the Family Homeless Prevention and Assistance Program (FHPAP) grants; several grant
programs administered by the Minnesota Department of Children, Families and Leaming;
several grant programs administered by the Minnesota Department of Human Services;
annual County appropriations for family shelter operations; several Metropolitan Council
programs; and assorted private and nonprofit contributions.
Often, these funders operate in a vacuum, establishing individual proposal rating
and grant disbursement processes each and every time funds become available.
Applicants often respond to many or a11 requests for proposals, while the funders are
generally unaware of which programs received what funding. The current system fosters
inefficient use of human and monetary resources.
In the past, attempts haue been made to connect some of the funders. In fact, this
planning effort resulted in part from a recommendation made by a group known as the
Homeless Implementation Task Force, which included among its membership the Family
Housing Fund, HUD and MHFA. These informal attempts at coordination were a step in
the right direction. However, there now is a critical need for a formal and comprehensive
12
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
mechanism to connect the funders, increase communication among them, and better
direct the funding sVeams to ensure that the dollars provided for the homeless services
delivery system are expended in the most efficient manner possible, that duplication is
avoided, and that funding is appropriately matched to the hierazchy of needs.
Acc�uisition of Pro�erties
It is now widely accepted that the Twin Cities aze facing an affordable housing
crisis. The current shortage of units affordable to low-income people makes the
preservation and prodaction of the units that do exist all the more vital. One serious
roadblock to preservation and production is the lengthy and often cumbersome process by
which abandoned, foreclosed, and taz� forfeiture properties transfer to prospective
developers. The smoother the transfer process, the faster properties can pass from
governmenY into the hands of private or nonprofit developers, and the faster additional
units can be generated. Further, the lesser the transaction costs, the greater the incentive
for the private mazket to redevelop properkies into low income or mixed use residences.
New Develo�ment
Financing is one of the keys to increasing the stock of affordable housing. Partly
because of their administrative ease, tax incentives have traditionally been seen as the
foremost spur to production. However, it may be argued that such incentives have not
been sufficient to persuade the private mazket to produce enough low income housing to
meet current demand.
Other approaches aze needed. New ideas, such as providing greater access to
government financing by nonprofit developers or creating subsidy pools tt�rough the real
estate tax surcharges, deserve a chance to be tested.
In addition, the issue of mixed use housing must be addressed. New housing is
most often geazed to a particular income bracket, despite the fact that housing analysts
13
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9'9-a��
generally agree that new development, both rental and ownership, should meet a range of
lifestyle needs and provide units that are affordable to families across a range of incomes.
The creation of income-integrated developments that can accommodate single families
and individuals, lazger families, and people with disabilities would break the current cycle
of development that perpetuates the concentration of pover[y, an economic condition
disfavored by policy makers, law enforcement officials and community residents alike.
14
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�i9-ac�o
Chapter III
HOMELESSNESS IN
RAMSEY COUNTY
i:. ,� � ��
Last yeaz, about 3,600 peopie sought refuge in emergency homeless shelter5 in the
CiTy of St. Paul and Ramsey County. One-quarter (or neazly 900) were children. The
1998 Ramsey County Survey identified 150 people in families who were unable to be
sheltered due to lack of space. An additional 2,800 women and their children zequired
the use of battered women's shelters." (See Charts 4 and 5, below.) In addition, there
has been a sharp and alarming increase in the number of unaccompanied youth seeking
shelter on any given night in Rainsey County.
Chart 4. Emergency Shelter Use in Ramsey County,
Singie Adults and Families, 1997
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housrng, and
Battered Wa�nen's Shelters, Seventh Annua/ Report, June 1998.
" Wilder Reseazch Center, Seventh Annual Report, pps. viii, x.
15
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 5. Battered Women's Shelter Use,1997
pWomen
■Children
Source: Wilder Reseazch Center, Emergency Shelters, TransitionalHousing, and
Battered Women's Shelters, Seventh Annua[ Report, June 1998.
Taansitional housing use has increased steadily over the last several years, due in part to
the addition of capacity to meet gowing demand. As showre below, more than I,000 persons,
almost three-quarters of whom were part of families, accessed transitional housing last year. The
1998 Ramsey County Survey identified a need of nearly 800 additional units.
Chart 6. Transftional Housing Use in Ramsey County,1997
Source: Witder Reseatch Center, Emergency She[ters, Transitiona! Housing, and Battered
Women's She[ters, Seventh Annua[ Report, June 1998. �
16
St. PaulBamsey County
FivaYear Low-Income Hoasing
and Homeless Services Report
and Plan
Families Females Males
q �-a�o
Emotional stress provides an additional burden for those who aze homeless.
Focus group participants described the following experiences as weighing heavily on
their emotional stability: anxiety stemming from being unsettled; anguish of watching
children unable to make and keep friends or who are the subject of abuse from
schoolmates and others; frustration with losing control of one's life; feelings of low self-
esteem; discomfort at being seen as different; and exasperation with being treated
disrespectfully.' For some, homelessness is a recurring experience. For others, it is both
a last step and a first step, the end of a cycle of despair and the beginning of a journey to
self-sufficiency.
Who are Ramsey County's Homeless?
The composition and chazacteristics of the homeless population in Ramsey
County is as varied as the causes of homelessness aze complex. Significant increases
have been noted in the appeazance of women and children in emergency shelter and
transitional housing, while the numbers of women and children accessing battered
women's shelters have been steadily rising. According to the Minnesota Department of
Children, Families and Learning (CFL), children now comprise 47% of those being
sheltered Statewide, twice the number they represented a decade ago. Further,
"[c]ompared to eazlier this decade, last year's emergency shelter population overall [in
Ramsey County] is...receiving or earning slightly more income....i
12 Biko Associates, "Report on Outreach Activities," (Minneapolis: Biko Associates, December
31, 1997), p. 32.
" Wilder Research Center, Seventh Annual Report, p. iv.
14 Kimberly Hayes Taylor, "Empty-promise land," Star Tribune, February 22, 1998, p. A8.
15 Wilder Reseazch Center, Seventh Annual Report, p. v.
17
St. PaullRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
a�d Plan
Who aze Ramsey County's homeless? They are people without resources and
support networks. They are single adults, many of whom have served their country in the
armed forces. They are families that have lost their housing due to eviction,
condemnation or the loss of utility service. They aze unaccompanied youths who cannot
remain in or return to their homes. They are women and children fleeing abuse, violence
and poverty, seazching for better jobs and better lives. Some struggle with mental illness
and drug and alcohol use. They aze from all races and ethnic backgrounds. And four out
of five aze from Ramsey County or elsewhere in Minnesota.�
SINGLE ADULTS
Single men and women comprise more than three-fifths of all those accessing
emergency shelter. The housing and service use patterns of single adults confirm that this
group comprises most of the hazdest to stabilize. More than four in ten single males will
require multiple shelter stays, an increase of almost 16% over the past two yeazs."
African Americans account for 54% of the single adult females and 44% of the
single adult males who enter emergency shelter in Ramsey County. Slightly more than
one-third of the single adult homeless population is white. Hispanic males constitute a faz
lazger proportion of the single adult male homeless population (16%) than they do of the
single adult female population (1%). Native Americans account for 4% and 3% of the
female and male single adult populations, respectively. The table below provides a racial
and ethnic breakdown of the single adult homeless population in Ramsey County.
16 Ibid.
" Ibid., p. iv.
L�'.3
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�q a�o
Table 1. Females and Males Alone Entering Emergency Shelter,1997
Females Alone Males Alone
African American 54% 44%
White 38% 36%
Hispanic 1% I6%
Native American 4% 3%
Asian and other populations 2% <I%
Source: W ilder Research Center, Emergency Shelters, Transitional Housing, and Battered
Women's Shelters Data Collection Project, Seventh Annual Report, June 1998.
A dramatically different picture emerges when ]ooking at the race of single adult users of
transitional housing. While about half of the single adult users of emergency shelter are African
American, on average only about one in six single adult users of transitional housing is African
American.' The following compazative graph is illustrative of this pattern.
Chart 7. Comparison of Single Female Emergency Shelter Users
with Single Female Transitional Housing Users,1997
�African Americans
�Whites
Source: Wilder Reseazch Center, Emergency She(ters, Transitional Housing, and Battered
Women's Shelters Data Collection Praject, Seventh Annual Report, June 1998.
' Ibid., p. 27.
19
St. PauURamsey County
Five-Year Low-Income F3ousing
and Homeless Services Report
and Plan
Emergency Transitional
Shelter Housing
There is also a significant differential between those of Hispanic descent who use
shelter and those who use transi6onal housing. Twelve percent of all adult shelter users
aze Hispanic; however, Hispanic adults accessing transitional housing account for only
2% of the total.
With respect to the use of homeless services, the 1998 Ramsey County Survey
revealed the following facts that inform the recommendations:
♦ Single adults use the vast majority (88%) of services provided
to homeless people, despite the fact that they use only 36% of
the housing. capacity for homeless and low-income persons.
The most heavily accessed services include: case management;
food/clothing; life skills training; and mental health services.
♦ Single adults receive only about one-third (33%) of financial
management services provided to homeless persons in the
County.
Participants in a focus group consisting of single adults, convened as part of the
plauning process, voiced fiustration at the lack of affordable private market housing and
the long waiting lists to get into public housing." Additional findings from that same
focus gmup revealed that, for single men in particuiaz, estranged families, a physically,
emotionally and/or sexually abusive adolescence, and alcohol and drug dependencies aze
especially common?
19 $iko Associates, p. 38.
20 Ibid.
20
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
g4-a��
Homeless Veterans
Veterans — many of whom are dealing with Post-Traumatic Stress Disorder
resulting from their military experiences — comprise an estimated 13% of the homeless
population, according to the latest Statewide survey?' About 270 new homeless veterans
are served each yeaz in the metropolitan azea. The vast majority aze males; many aze
mentally ill and/or chemically dependent. For many veterans, alcohol and drug abuse
surfaced during or were exacerbated by military service, especially far those who served
during the Viemam era. (Vietnam veterans now comprise the largest percentage of
homeless veterans.)
Homeless men who aze veterans shaze a common history of childhood instability.
They also aze more wlnerable than their non-homeless counterparts..
A recent study revealed that homeless veterans under 55 years of age face a two times
greater risk of death — and those over 55 years old a four times greater risk — than do
non-homeless veterans.
Further, recent events have made access to services for homeless veterans more
difficult. Due to an accelerating trend towazd downsizing of VA facilities, homeless
veterans face greater competition for VA services. In addition, the shift in emphasis at
Veterans Affairs from inpatient to outpatient services has created roadblocks for those in
need of services.
Z' W ilder Research Center, Minnesota Statewide Survey of Persons Without PermanenP
Shelter, Volume I: Adults and Their Children, p. xi.
ZZ As reported by the Health Care for Homeless Veterans Outreach Team, which, on a
rotating basis, travels to various locations (including Dorothy Day Center in St. Paul) to
serve the health needs of homeless veterans.
" Marcia Martin, Heading Home: Breaking the Cycle of Homelessness Among America's
Veterans (Veterans Affairs: Veterans Affairs Northeast Program Evaluation Center, February
1997), Executive Summary.
21
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Persons with HIV/AIDS
While single adults comprise the bulk of those who aze both homeless and living
with HIV/AIDS, the disease affects homeless families and youth as weIl. In fact, the
fastest growing group among the homeless population with HIV/AIDS is families, the
group for which housing is the most difficult to find. There is also an emerging problem
among homeless youth who are at risk of contracting the disease.
Serving this population presents special challenges. The need for stable housing
for people with HIV/AIDS is underscored by several factors. First, because successful
and preventative care for people with HIV/AIDS requires adherence to a complex and
highly regimented treatment plan — involving the ingestion of dozens of pills every day,
each with unique dietary requirements and timetables — having a stable home can mean
the difference between life and death. Second, the success of new therapies is enabling
HIV/AIDS patients to live longer, which, in turn, is increasing the need for housing for
this population. Finally, due to the need to remaui in close proximity to health caze and
the dangers inherent in extended travel, geographic restricrions may foreclose suburban
housing options for people with HIV/AIDS.
Cleazly, housing presents a serious problem for persons with this disease. In a
recent survey, conducted for the HIV Housing Coalirion, 45% of the respondents had
experienced homelessness and 14% were currently homeless? Transitional housing
opUOns aze generaIly limited, since such housing is primarily geazed toward families.
According to advocates, increased low income housing options and increased availability
of housing subsidies, intensive housing iniervenUOn services, and emergency housing
assistance, in that order, are the top priority needs for the HIV/AIDS homeless
population.
As a general matter, homeless people with HIV/AIDS receive about 3% of the
total homeless services provided (The percentage of the homeless population that people
with HIV/AIDS comprises is unlrnown.) However, the 1998 Ramsey County Survey
Z " Steven Gray, "HIV Housing Needs Assessment Update: A Report to the HIV Housing
Coalition" (Minneapolis: Steven Gray and Associates, February 1997), p. 5.
'� HIV Aousing Coalition, "Recommendations to the Minnesota Housing Finance Agency for
the 1998 RFP Funding Process," May 21, 1998, p. 6,
ZZ
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
gq-a��
indicated that over one-half (52%) of all assessments and about one-third (32%) of
benefit coordination services available for the homeless were provided to this population.
At the same rime, it appeazs from the survey results that other, much needed
homeless services — such as companion services and life skills training — aze less
available. For instance, only 13% of the available companion services and virivally no
life skills training available to homeless persons are reported as going to people in this
group.
FAMILIES
According to the latest Statewide Wiider Research Center survey, "{w]omen and
children represent the fastest growing segment of the homeless population.i The
shortage of housing for homeless families in general, and for large families in particulaz,
is especially acute.
In 1997, more than 1,300 persons in families (more than 900 of whom were
children) accessed emergency shelter in Ramsey County; the median length of stay was
about 12 days. Z '
Of particulaz significance is the fact, though they account for only about 6°!0 of the
entire Ramsey County population, African Americans represent about 75% of the
emergency family shelter population and almost 60% of residents in battered women's
shelters. A comparison of shelter entrants, by race, is shown below.
26 Wilder Reseuch Center, Minnesota Statewide Survey ofPersons Without Permanent
Shelter, Volume I: Adults and Their Children, p. xi.
2 ' Wilder Research Center, Seventh Annual Report, pps. 1, 20.
L►�C3
SL Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 8. Race of Adults with Children Entering Emergency Shelter,1997
so^�
�o^i �a^io . . ..
_.....
_.
60%
500� . " � - - - ' -
- > -�: ,- _,: : - ':: ... . _ _ _- .
400� — -
30% :. .� • ::
20% , �. 't795.,__. _ _ . _ : , _ .
� .: . .: .: :..:. .. . a __ 3 ,� . �. . _
10%
0%
- - � . ' � 2°/n
Af. Am. White Nat Am. Hispanic Other
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
Chart 9. Race of Children Entering Emergency Shelter,1997
so^/
�o%
eo io
so^i
ao�o
30%
20%
10%
0%
Af. Am. White Nat Am. Hispanie Other
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
24
St. Paul/Ramsey County
Five-Year Low-Inwme Housing
and Homeless Services Report
and Plan
99-ac�o
The Wilder Reseazch Center's Seventh Annual Report on Emergency Shelters,
Transitional Housing, and Battered Women's Shelters echoes focus group findings
concerning the reasons families find themselves in shelter. Often, a combination of
circumstances lead to a shelter stay. The lack of affordable housing, a personal or family
crisis, and economic distress aze the foremost reasons cited by families as causes of theu
homelessness. Domestic abuse is also a key contriburing factor to homelessness among
wamen and their children.
Other key fmdings of the 1998 Rainsey County Survey with respect to families
are as follows:
♦ Families use seven out of every ten emergency shelter or
transitional housing beds.
♦ Despite their significant usage of emergency shelter beds and
transitional housing beds, families receive only about 11% of
the services provided to homeless people in Ramsey County.
♦ Families receive little employment skills training, job search
assistance and life skills education available to the homeless.
♦ Families receive nearly 70% of financial management
services provided to the homeless.
While the effect of homelessness on the family unit is, to say the least, stressful,
the well-documented impact of homelessness on children is devastating and dislurbing.
From an educational perspective, many studies confirm that mobility and instability at
school quickly lead to lower academic functioning and performance. As Anne B. Shlay
concludes, among the most disturbing effects of homelessness are the "long-term
consequences for the emotional and cognitive development of children....s
UNACCOMPANIED YOUTH
28 See, for example, A Report From The Kids Mobility Project (Minneapolis: March 1998), p. 3.
Z9 Anne B. Shlay, "Housing in the Broader Context in the United States," Housing Policy
Debate 6 (1995): p.703.
25
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Repon
and Plan
Youth homelessness is a phenomenon that has risen to alazming proportions in
Ramsey County as well as in the rest of the State. This increase is consistent with the
upwazd trend that has been evident for the last decade.
The Wilder Research Center reports Yhai, Statewide, there aze approximately 730
persons 17 years old or younger without permanent shelter on any given night, and,
"approximately 1Q000 Minnesota youth experience at least one episode of
homelessness" during the year. While the exact number of homeless youth in Ramsey
County is not known, with a total capacity of onty 16 shelter beds and siac transitional
housing units, there is cleazly a gap between the need for and capacity of emergency
shelter beds and transitional housing.
In contrast to the adult homeless population, familial problems are the single
greatest cause of youth homelessness. The Wilder Reseazch Center indicates that:
More than two-thirds of homeless youth report tt�at
someone in their immediate family — usually a parent — has
problems with drugs or alcohol. More than one-third report
that their pazent(s) will not allow them to retum home. The
majority (61 percent) of homeless youth have experienced
some form of out-of-home placement, such as foster caze or
residential treatment 3
Once on the streets, life becomes increasingly more difficult for homeless youth,
and they become increasingly vulnerable, facing a significantly higher risk of exploitation
and violence.
30 Witder Research Center, Minnesota Statewide Survey of Persons Without Permanent
Shelter, Volume 77: Unaccompanied Youth (St. Paul: Amherst H. Wilder Foundation, July
1998), p. v.
" Wilder Reseazch Center, "Minnesota's Youth Without Homes" (St. Paul: Amherst H.
Wilder Foundation, Mazch I94'7), pps. 2-3.
26
St. PauURamsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
��-a��
Homeless youth come from all races and ethnic backgrounds. The following
chart shows the ethnic and cultural composition of the homeless youth population,
Table 2. Racial and Ethnic Composition of Homeless Youth, Statewide
Source: Wi]der Research Center's Minnesota Statewide Survey ojPersons Without
Permanent Shelter, Volume II: Unaccompanied Youth, July 1998.
With respect to services, survey results indicate that, with the exception of
counseling and outreach, homeless youth receive a small portion of all homeless services
provided throughout the County.
More than shelter, however, is required to address the problems facing homeless
youth. As J.T. Fest, in Street Culture: An Epistemology of Street-Dependent Youth notes,
it takes more than providing basic necessities such as shelter, food, clothing and schooling
to stabilize homeless youth. Fest asserts that assisting young persons "transition `off the
street' is about helping them make conceptual (emphasis in original), not physical
changes." He insists that young people must experience attitudinal change or "they will
remain `on the street' regazdless of their environmentai circumstances.i
Thus, the provision of safe emergency shelter or transitional housing, combined
with intensive, culturally-sensitive case management designed to change attitudes and
belief systems, is the most effective means of reaching homeless youth.
32 J. T. Fest, Street Culture: An Epistemology ofStreet-Dependent Youth (1998), p. 9.
27
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Invisible Homeless
While Ramsey County possesses a relatively rich set of daYa on its sheltered
homeless population, a segment remains unsheltered. To gather information about this
"invisible" portion of the homeless population, interviews were conducted with outreach
workers and drop-in center staffs who work with adults and unaccompanied youth.
Those conversations yielded the following insights:
♦ Unsheltered homeless people in Ramsey County aze
mainly single men and women, especially those who
are ineligible or have not applied for a variery of public
assistance programs, such as General Assistance or
Social Security Disability Insurance.
♦ There is a shortage of shelter beds, so that even
when these individuals aze located it may not be
possible to refer them to available shelter.
♦ Homeless persons with serious mental illness are
often extremely distrustful of the shelter system, are
unwilling to comply with even simple requests for
information (such as a name or signature), and may
be willing to forgo shelter as a result of their
discomfort in providing information.
♦ For severely disabled homeless people, accessing
basic preventative help or crisis intervention may be
impossible without a trusted advocate to help them
to navigate the system.
♦ The experience of homelessness breeds further
homelessness.
s The tight housing market makes tenants with any
questionable marks on their rental history less
likely to find housing. The lack of affordabte
housing contributes to the invisible homeless.
m
St. Paul/Ramsey CounTy
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�f 4-a�o
♦ Many people become homeless upon discharge from
ireatment, hospitals or the corrections system, each
of which needs to do better and more extensive
dischazge planning with at-risk individuals.
Outreach workers and day center staff suggestthat successful approaches to
serving homeless people, especially those who are distrustful of the system, is
dependent upon providing service in a nonjudgmental, respectful, supportive, and
culturally-specific manner that recognizes the personal dignity of the client.
Causes of Homelessness
There aze many underlying causes of homelessness. Seemingly, there are an
equal number of myths. One widely held misconception is that people prefer to live
without permanent shelter. It is true that, for some, poor choices lead to the condition of
homelessness, but, as sociologists James D. Wright and Beth A. Rubin point out:
One common although profoundly wrong theory can be dismissed at
once...that the homeless are homeless by choice. The amplication of
this viewpoint is that homelessness results from an exercise of
personal will, not from mental illness, substance abuse, or an
inadequate supply of low-income housing...[I]n the overwhelming
majority of cases,
homeless people live as they do because they lack the means to live in
any other way, not because they have positively chosen a life of
destitution and degradation over some attainable alternative means of
living.
33 All conclusions derived from interviews conducted by Eric Grumdahl with directors or staff,
including outreach workers, of Union Gospel Mission, Listening House, the ACCESS
program, Catholic Charities' Dorothy Day Center, and Streetworks in connection with the
"1998 Ramsey County Housing and Service Inventory Survey."
'" James D. Wright and Beth A. Rubin, "Is Homelessness a Housing Problem?" Housing
PolicyDebate 2 (1991): p.953.
`�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Kim Hopper, a social scientist and the former president of the National Coalition
for the Homeless, suggests that the shift from a goods-producing to an information-
producing society and the exportation of labor-intensive jobs outside the country have
resulted in wage polarization. At the same time, he notes, federal support for new
construction of low-income housing has alI but evaporated. Thus, he concludes, "the
structural roots of the problem lie in the changes that have taken place over the past two
decades in the labor and housing markets in the United States...The upshot, terrifying in
its simplicity, is the contemporary delineator of homelessness: income insufficient to
afford available housing."
The Affordable Housing Crisis
Compazed with earlier in the decade, homeless persons in 1997 were "more than
twice as likely to find the lack of affordahle housing a barrier to having their own
place. This finding is indicative of what is now a generally accepted fact: that
Ramsey County (as well as the rest of the metropolitan area) is facing a serious affordable
housing crisis.
The lack of low income housing can lead to homelessness and keep homeless
persons from obtaining permanent shelter. Shelter residents aze forced to stay longer,
which, in turn, creates a bottleneck in the continuum of caze system. While the lack of
affordable honsing is but one of a number of causes of homelessness, as Wright and
Rubin observe, "every route out of homelessness must sooner or later pass through stable,
secure and affordable housing." 3 '
35 Kim Hopper, "Homelessness Old and New: The Matter of Definition," Housing Policy DebaYe,
2 (1991): p.770.
36 Wilder Reseazch Center, Seventh Annual Repart, p. v.
;' Wright and Rubin, pps. 938-39.
30
St. Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
• ♦ � .I
Availability
Housing options for the poor are becoming increasingly limited due to the
shortage of units. The foliowing section discusses public housing, the private rental
mazket and homeownership opportunities for income-stressed households.
PUBLIC HOUSING
The St. Paui Public Housing Agency (PHA) owns and manages over
approximately 4,300 federally subsidized rental apartment and homes throughout the
City, providing more than 10,000 people with decent, affordable, quality housing. The
average annual household income of PHA residents is about $12,000 for families and
$8,000 for hi-rise residents, or approxirnately 20% of the area median.
Approximately 3,400 households aze on the waiting list for public housing. The
waiting list for hi-rise units for single, elderly and disabled persons is relatively short
(housing is likely to be secured within three-to-six months). Families, however, must
wait between one and three years for an available unit. The annual turnover rate is below
20%, and the average stay in public housing is six to seven years.
Federal housing subsidies have declined so dramatically over the past decade that
no new public housing construction is anticipated in the City of St. Paul or elsewhere in
the County in the foreseeable future.
' The St. Paul Public Housing Agency reports that the area median income in 1998 is
$60,800 for a family of four and $43,600 for a single person.
31
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Home(ess Services Report
and Ptan
••
THE SECTION 8 PROGRAM
Section 8 is a federal housing subsidy program administered locally by the St.
Paul Pubiic Housing Agency for privately-owned rental homes and apartrnents in the city,
and by the Metropolitan Council Housing and Redevelopment Authority (Metro HRA)
for rental units in suburban Ramsey County. There aze two principal forms of the
program: the Tenant-Based Program and Project-Based Program.
Tenant-Based Program
The PHA administers more than 3,400 Section 8 certificates and vouchers in St.
Paul, while Metro HRA administers more than 750 certificates and vouchers in suburban
Ramsey County. Participants aze responsible for finding privately-owned rental housing
which meets Section 8 program requirements (e.g., habitability standazds, rent
guidelines). When a tenant finds a property owner willing to accept Section 8, the tenant
pays approximately 30% of her/his income for rent and utilities, and the PHA pays the
difference -- the rent subsidy -- directly to the owner.
At any given time, 300-500 households are "shopping" with certificates and
vouchers issued by the St. Paul PHA for rental apartments or homes that will accept the
Section 8 subsidy program. Shoppers must use the certificates or vouchers within 120
days of receipt or else must turn them back to the issuing agency. The waiting list for
PHA Section 8 assistance ranges from 1,000 to 2,500; Metro HRA's current waiting list
is estimated to be 600 residents of Ramsey County.
Not all Section 8"shoppers" will fmd units within the allowed 120 days. The St.
Paul PHA reports that, in 1997, one-quarter of those obtaining certificates and one-fifth
" HUD sets "Fair Market Rent" limits for the Section 8 certificate program, currently $504
per month for a one-bedroom unit; $644 for a two-bedroom unit; and $872 for a three-
bedroom unit. The total cost of the rent, including utilities, cannot exceed those limits. The
Section 8 voucher program allows tenants to decide the amounts of income they wiil spend on
rent, since the subsidy amount is based on a fixed standard rather than on the rent of the unit
selected. A participant may spend more than 30% of income to rent a more expensive
apartment, or less than 30°/a if a less expensive apartment may be ]ocated. Tenant-based
Section 8 certificates and vouchers are "portable" (i.e., tenants can use them in another
jurisdiction).
32
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
of those obtanung vouchers will be unable to "lease up," while Metro HRA reports that
only one in seven who receive either a Section 8 certificate or voucher will be able to
lease up.
The tight Twin Ciries rental market, combined with other factors, make it difficult
for families to find units where they can use their SecUon 8 assistance. Some families
reject the few available apartments because of their location, surroundings or condition.
Some properry owners refuse to accept Section 8 subsidies, due in part to their
dissatisfaction with both the requirements and limitations of the Section 8 program.
One study shows a 10% decline over the last two yeazs in property owners willing to
accept Section 8 certificates. 41
More specifically, racial discrimination appears to be a barrier for Section 8
participants to fmd housing. For example, Metro IIRA's most recent statistics reveal that
while 54% of its Section 8 certificates aze issued to people of color, these families aze
successful in utilizin those certificates only 34% of the time.
HiJD has proposed making available, nationwide, an additional 50,000 portable
housing vouchers to help families making the transition from welfare to work,
specifically where housing assistance is essential for obtaining or retaining employment.
However, it is uncertain whether increasing the availability of vouchers in this mazket
will alleviate the difficulties faced by low-income persons seeking housing.
Project-Based Program
Subsidies provided through the project-based Section 8 program aze building-
specific and remain with the property. Unfortunately, many low income housing units
available through this program may soon be lost. As many as 2,200 of these units in
40 For instance, some property owners perceive the paperwork to be inordinately burdensome.
Others would prefer that the issuing agency (i.e., St. Paul Public Housing Agency or Metro
HRA) have greater responsibility for Section 8 certificate holders when problems arise.
^' See Community Action for Suburban Hennepin, "The Ever Shrinking Market for Section 8
in Suburban Hennepin County" (Aopkins: Community Action for Suburban Hennepin,
October 1997).
42 Diane Stone, Metro HRA Grants Administrator, telephone interview, August 4, 1998.
43 As with the tenant-based program, recipients pay 30% of their income toward rent. The
program pays the difference.
33
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9�t-��o
Ramsey County aze at risk of conversion to market rate rentals, and therefore in jeopardy
of becoming beyond the reach of many of the families who now reside in them."'
PRIVATE MARKET RENTAL HOUSING
Simply stated, too many applicants vie for too few units in today's private rental
mazket. The metrowide rental vacancy rate "has fallen steadily from about 6.5% in 1990
to about 2 percent today — so low that it represents virtually full occupancy.s (At about
1%, the vacancy rate is even lower in the City of St. Paul.)
Demand for affordable rental units, especially in suburban communities, is being
driven, in part by Minnesota's robust economy and the dire need employers for workers,
especially those at the lower end of the income spectnun. Thus, the development of
housing affordable to low-wage workers may be seen as an economic development
strategy. For instance, a recent study by the Citizens League notes that:
Subwban businesses are having difficulty finding workers,
especially for low-skill positions, and the lack of
affordable housing in suburban communities is widely
cited as one of the responsible factors. The end result for
employers is poorer service, an inability to fill job orders,
and other problems that have a very real impact on the
bottom line for businesses.
00 Compiled from data supplied by the Minnesota Housing Partnership and Community
Action for Suburban Hennepin's report, "Privately Owned Federally Subsidized Housing in
Minnesota," March 31, 1998. The potential ]oss of these units as affordable housing is a
result of an opportunity for owners to prepay mortgages and, in doing so, opt out of the Section 8
program.
45 Dave Beal, "Apartment vacancies show no sign of rising," St. Paul Pioneer Press, March
6, 1998; available from http:/fnewslibrary.in£a.net/ppf; Internet, accessed March 6, 1998.
46 Gary Cunningham and Steve Keefe, Help Wanted: More Opportunities than People
(Minneapolis: The Citizens League, November 1998); available from http://www.citizensleague.ned
studies/labor-shortage/report.htm; Intemet, accessed January 7, 1999.
34
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Citizens League report goes on to suggest that "the business community can
be the lever breaking the logjam on affordable housing in the metro region, advocating
for affordable housing on the basis that it is a critical component to the health of local
business. "'
The Livable Communities Act, enacted in 1996, was intended to reduce the gap
between need for and availability of lower income housing in suburban communities.
However, a number of factors, including the voluntary nature of its provisions, how
"affordabiIity" is defined, and the goalsetting and benchmarking methodology, the
promise of the law has not and will not be fulfilled. According to a recent study by the
University of Minnesota's Center for Urban aud Regional Affairs, that in fact the
unintended consequence of its implementation is "[t]he aggregate result of the program
will be a decline [emphasis added] in the percentage of the Twin Cities azea housing
stock that is affordable."'
Given current market conditions, unless action is taken, it appeazs that production
of new units will not keep pace with the need anytime soon. By the yeaz 2000, according
to estimates, the areawide gap in affordable rental units wili have increased 50% since
1996, to a total shortfall of neazly 25,400 units.
HOMEOWNERSHIP
Some homeownership opportunities ezcist, but they aze severely Pimited, and are
generally unavailable to households at the lower end of the income spectruui. Furkher,
production goals for owner-occupied affordable housing, established under the Livable
Communities Act, aze expected to fall short by neazly 7,500 units.
°' Ibid.
" Edwazd G. Goetz and Lori Murdock, Losing Ground: The Twin Cities Livable
Communities Act and Affordable Housing (Minneapolis: Center for Urban and Regional
Affairs, I998), p. I.
49 Beal, March 6, 1998.
so Ibid. Owner-occupied housing affordable at 80% of ineVO area median income (i.e.,
$48,600 in 1998) ranges up to $120,000.
35
St. PauURamsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
f4-��o
Habitat for Humanity is one of several programs that provide decent and
affordabie homeownership opportunities in the Twin Cities. Working families with
incomes of between $12,000 and $25,000 annually may qualify for a Habitat home.
Applicant families aze carefizlly screened to ensure optimal chances of success. In
Ramsey County, Habitat for Humanity builds or rehabilitates 20 to 25 houses per year,
representing about half of its metrowide production. The metrowide waiting list consists
of about 250 families. Habitat is seeking to doubie its capacity to produce affordable
housing in Ramsey Counry.
The primary limitation to Habitat's ability to produce more affordable housing
units is the existing process by which available properiy is made available for Habitat
use. That process impedes the expeditious transfer of available land or property. Habitat
also relies on corporate sponsorship and volunteer labor to construct its housing. While
there are many willing corporate contributors and a wealth of community volunteers,
building capacity in each of these azeas will enable Habitat to achieve its goal.
This year, Ramsey County participated for the first time in a Habitat project,
joining forces with the City of St. Paul and the St. Paul Companies to construct a house in
the Frogtown neighborhood. This effort stands as a model of collaboration among the
pubiic, private and nonprofit sectors that can and should be replicated. Among the
participants was Ramsey County Community Corrections Department's Sentence to
Service Program, which possesses untapped potential to provide an ongoing supply of
volunteer labor for Habitat projects.
Affordability
The limited housing that is available is unaffordable to approximately 67% of
Ramsey County households earning $30,000 or less; of those, 17% pay more than 50% of
their income towazd housing."
51 Wilder Research Center, Entering the 21" Century (Saint Paul: Amherst H. Wilder
Foundation, March 1997), p. 11. According to U.S. Census data, the median household
income for Ramsey County is $32,043.
�
St. Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
For households at lower income levels, the affordability crisis is even more
severe. As Table 3 below shows, housing is unaffordable to almost 27,000 or 74% of
Ramsey County households earning an hourly wage of $9.20 (or $20,000 annually) Sz
Table 3.
Number and Percentage of Househoids Eaming Less Than
$20,000 Unable to Afford Housing
Cities in Tofai Number Unabte Percent Unabfe
Ramsey County Households to Afford Housing to Afford Housing
Arden Hills 118 85 72°fo
Falcon Heights 392 260 66%
Lauderdale 269 212 79%
Mounds View 423 374 88%
New Brighton 1,111 832 75%
North Oaks 12 12 100%
North St. Paul 613 435 71%
Roseville 1786 7,425 80%
St. Anthony (pt.) 347 322 94%
St. Paul 28,044 20,S15 73%
Shoreview 247 216 87%
Vadnais Heights 85 77 91%
White Bear township 57 43 84%
White Bear Lake (pt.) 970 708 78%
Ramsey County 36,110 26,822 74%
Source: Mevopolitan Council, Report !o the Legisl¢ture on AJfordable ¢nd Lije-Cyc(e Kousing in the
Twim Cities Metropolitan Area, November 1996.
Siting of Affordable Aousing
Over the last twenty yeazs, poverty has become more concentrated in inner city
areas of the Twin Ciries. According to the University of Minnesota's Institute on Race
52 Metropolitan Council, Report to the Legislarure on Affordable and Life-Cycle Housing in
the Twrn Cities Metropolitan Area (Saint Paul: Metropolitan Council, November 1996),
Part II, Appendix Tahle 2.
53 Edwazd G. Goetz, Hin Kin Lam, and Anne Heitlinger, There Goes the Neighborhood
(Minneapolis: University of Minnesota Center for Urban and Regional Affairs, 1996), p, 6.
37
St. Paul/Ramsey County
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q9-a�o
and Poverty, the percentage of all persons living in concentrated poverty increased almost
700% from 1970 to 1990, with signifzcantly higher increases for persons of color.
Clearly and unquestionably, the condition of concentrated poveriy has a number
of deleterious consequences for both the residents of these communities and society in
general. The Institute on Race and Poverty, in its 1997 report, Examining the
Retationship Between Housing, Education, and Persistent Segregation, declares that, in
neighborhoods marked by concentrated poverty, "all residents face substantial limitations
to life chances"
Significantly, research findings indicate that St. PauPs District Councils generally
favor "a strategy...that couples: (1) the need to reinvest and build inner city
neighborhoods and (2) programs to help people find affordable housing."
In applying such an approach, investment subsidized housing developed by
nonprofit organizations seems to hold promise. A 1996 University of Minnesota study
found that this type of subsidized housing: (1) enhances the property value of nearby
residential property; (2) leads to a reduction in crime; (3) attracts long-time Minnesotans;
and (4) fosters not transience but greater family stability.
Another study of subsidized housing in Maryland and Virginia reached a similaz
conclusion, finding that, in Montgomery County, Maryland and Fairfas County, Virginia
communities where policies to create subsidized housing within non-subsidized housing
developments has created significant sections of mixed-use housing stock, "the presence
or proximity of subsidized housing made no difference in the housing values" of property
in these communities.
54 Institute on Race and Poverty, Examining the Relationship Between Housing, Education,
and Persistent Segregation (Minneapolis: Institute on Race and Poverty, February 1998),
p. 40.
ss Ibid., p. 8.
56 g�ko Associates, p. 4.
s ' Goetz, et. al., There Goes the Neighborhood, p. 79
58 Joyce Siegel, The House Next Door (Washington, D.C. The Innovative Housing Institute,
1998) available from http://www.inhousing.org/housenex.htm; Internet, accessed
January 9, 1999.
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and P(an
At the same time, the development of income-integrated and mixed-use housing is
an approach that could be effective in both increasing the low income housing stock and
decreasing concentrations of poverty. Policies emphasizing the creation of housing
opportunities across income strata and family size and type are fundamental to the
reinvigoration of inner city neighborhoods as well establishment of new avenues for
diversity in suburban communities. Such policies might include the provision of
incentives for developers incorporaring a certain percentage of low-income housing units
in developments or the increased use of government bonding authority to create housing
affordable to low-wage workers.
As in a fmancial investment plan, diversification is the wisest approach to
ensuring a sound and healthy portfolio.
Similarly, a thoughtful policy with respect to demolition and rehabilitation is
warranted. According to a University of Minnesota/Neighborhood Planning for
Community Revitalization report, there aze 475 vacant houses on the City's official
vacant housing Iist at any given time. Many studies confirm that the existence of
vacant properties can have adverse economic consequences for municipalities and
constituents. Not only dces vacant housing result in the erosion of the 1oca1 t� base (in
St. Paul, 40% of the City's taac base rests on residential property) and create additional
costs to municipalities, but also it depresses values of adjacent homes by as much as
$10,000 and nearby houses by as much as $2,500 bo
Expediting the process by which vacant and abandoned properties can be
transferred to developers, whether for-profit or not-for-profit, would provide a wide range
of benefits: to government by moving property back onto tax rotls more quickly; to
developers by enabling more rapid initiation of projects; and, most of all, to people in
need of low income housing.
59 Edwazd G. Goetz, Kristin Cooper, Bret Thiele, Hin Kin Lam, The Fiscal lmpacts of the St.
Paul HOUSES TO HOMES Piogram (Minneapo[is: University of Minnesota Center for
Urban and Regional Affairs/Neighborhood Planning for Community Revitalization,
February 1997), p. 1.
fi0 Ibid., p. 12. The impact of vacant housing on adjacent and nearby property is derived
from Ana Moreno, Cost Effectiveness ofMortgage Foreclosure Prevention, (Minneapolis:
Family Housing Fund, November 1995), p. 16.
39
St. Paul/Ramsey CounTy
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and Homeless Services Report
and Plan
9�-a��
Landlord/T'enant Issues
Prospecrive renters aze facing increasing frustration in their attempts to find rental
housing. Lack of a ceniralized system to identify available units, lack of education
regarding tenant rights and responsibilities, and poor rental and credit histories pose
substantial barriers to many homeless and low-income apartment seekers. In addition,
certain tenant screening practices — such as requiring applicants to pay multiple
application fees or requiring "earnest money" down payments — raise questions of
faimess.
At the same time, owners and prospective owners of low-income rental property,
a portion of whom constitute the vital base of small business owners in the City and
County, often find it difficult to: (1) negotiate the maze of regulations; (2) obtain
accurate and timely information concerning owner rights and responsibilities; (3) leam
how to maintain crime-free buildings; (4) obtain advice conceming, among other things,
sound business practices, taY codes, housing codes, and Section 8; and (5) obtain swift
and acceptable outcomes for disputes with tenants without resorting to expensive and
time consuming court proceedings.
Further, property owners who might be willing to rent to low-income consutners
with less-than-perfect rental histories or other issues and barriers consistently express the
need for assurances that a social services support network is available to them at all times
to address problems that may arise.
Given these circumstances, there is a clear need for a centralized and coordinated
system to provide: (1) a metrowide link between apartment seekers and property owners
with available units; (2) ready access to social services supports; (3) resource information
concerning rights and responsibilities which is timely and easily accessible to both
tenants and property owners; (4) access for property owners to sound business advice and
training on how to maintain crime-free dwellings; and (5) an adjudication system for
disputes that provides a legitimate and less costly altemative to court.
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Need to Link Owners and Renters
The HousingLink— a nonprofit entity created to develop, unplement and manage a
Fair Housing Mobility Clearinghouse, mandated under the Hollman v. Cisneros Consent
Decree — provides the infrashucture to establish the resource needed to connect
aparhnent seekers with available apartment openings metrowide. This project, which is
just getting under way, is already working with the St. Paul Housing Inforxnation Office
and other local groups. While the need for ongoing funding is an issue, this new etttity
holds the very real potential to fill one of the most pressing needs for owners and renters:
a seamless system for listing and locaring available units throughout the . entire
metropolitan azea.
Need for Access to Social Services
Interviews with property owners confum that the ready access to social workers
and case managers creates a greater willingness to rent to and retain tenants placed by
public and nonprofit social service agencies (e.g., clienis coping with mental illness or
chemical dependency). Thus, there is a great need to establish better linkages between
low income housing owners and the sociaUhomeless services delivery networks in
Ramsey County.
Need for Information and Education
The more knowledgeable the owner, the greater the chance that rental property
can be a profitable inveshnent and provide decent, secure and affordable housing for
people. The more educated the renYers, the greater the chance that they will be
responsible tenants, avoid disputes, and understand and exercise their rights when
disputes do arise.
Moreover, tenants with questionable rental histories are in dire need of education
and certification so that they may cure their records an@ obtain another chance to become
responsible and self-reliant. Education is a key recommendation contained in Strategies
to Reduce Nuisance Crimes in Our Neighborhoods: A Report to the 199� Legislature,
61 The Consent Decree was the result of a settlement entered into by the parties to a lawsuit
brought by fourteen low-income families of color and the Minneapolis NAACP alleging that
the Minneapolis Public Housing Authority, among others, had engaged in illegal housing
segregation.
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� • • ./
submitted by, among others Ramsey County Attorney Susan Gaertner. The zeport calls
for "education [that] would unprove the management of rental properties and decrease
nuisance acrivity."
There are some avenues available today for both landlord and tenant training. For
instance, the St. Paul Housing Information Office, the St. Paul Police Department, the
Minnesota Multihousing Association, the St. Paul Tenants Union and the St. Paul
Association of Responsible Landlords, to name a few, provide education and assistance.
What is missing is central coordination and provision of seamless service, regazdless of
the request or the requester.
The Need for Alternative Dispute Resolution
When disputes arise about nonpayment of rent, unacceptable tenant behavior or
failure on the part of a property owner to make repaiFs, the parties to the dispute have
very few, if any, options other than expensive and time consuming court proceedings.
The present system forces the filing of a complaint before a dispute can be settied or
adjudicated. Moreover, even when disputes are settled an pretrial conferences, ar when
the claim is found to be meritiess, the tenant's rental history is marred by the mere fact
that an Uniawful Detainer (UD) has been filed.
The aforementioned District Attorneys' report endorses and suggests there is
broad support for the concept of altemative dispute resolution for non-drug or crime
related issues, including nonpayment of rent. It recommends a reduced fee for filing,
with settlement agreements not being recorded as Unlawful Detainer actions. 64
bZ Michael Freeman, Susan Gaertner, and the Nuisance Law Working Group, Strategies to
Reduce Nuisance Crimes in Our Neighborhoods: A Report to the 1997 Legislature (January
1997), p. 19.
63 An Unlawful Detainer is a filing by a property owner in housing court for remedy. Though
often perceived as a judgment, in and of itself, it is purely an allegation.
64 Freeman, et. al., Strategies to Reduce Nuisance Crimes in Our Neighborhoods: A Report to
the1997Legislature, pp.16-17.
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St. Pau]JRamsey County
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and Plan
lnsufficient Wages
Wages have not kept pace with housing costs. The Family Housing Fund fmds
that, in the metropolitan area, a family "would have to earn $24,840 per yeaz ($12 per
hour) to afford to rent a two-bedroom apartment or $33,000 per year {$16 per hour) to
afford to buy a three-bedroom house.i Typical salaries for people employed as
cashiers, clerks, child care workers, home health aides, housekeepers, medical assistants,
receptionists, cooks, tellers, teacher aides and school bus drivers aze often below that
which would render apartments or homes affordable.�
Minimum wage earners have an even more difficult time obtaining and
maintaining housing that is affordable. As the chart below shows, a substanfial gap
exists between the salary of a minimum wage earner and the income needed to afford a
typical two-bedroom apartrnent and three-bedroom house.
Chart 10. Income Compared to Housiag Affordability
$35,000
$30,000
$25,000
$20,000
$75,000
$i0,000
$5,000
$0
Source: Family Housing Fund, "7'he Need for AfFordable Housing in the Twin Cities,"
Oc[Ober 1997.
65 Family Housing Fund, Working Doesn't Always Pay for a Home (Minneapolis: Family
Housing Fund, December 1997), p. 1.
� Ibid., p. 4.
43
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Annual Eamings Needed for Two- Needed for
at Minimum Bedronm Apt Three-8edroom
Wage House
q9-a�d
These figures have serious implications in the post-welfare reform world, where
Minnesota Family Investment Program (MFIP) participants aze ofren moving into entry
level, minimum wage jobs.
Mental ll/ness and Chemical Dependency
Mental illness and chemical dependency aze other, serious roadblocks to homeless
families and individuals struggling to stabilize their lives. Not surprisingly, homeless
individuals "aze aY greater risk and exhibit higher levels of severe mental iilness, alcohol
and/or other drug abuse, and chronic physical ailments than their counterparts in the
domiciled population." Since many among the homeless population are uninsured, the
costs to society to treat these illnesses are substantial.
Mental Illness
The most recent studies suggest that mental illness is a significant problem for
nearly one-third of the adult homeless and unaccompanied youth populations 6 It is
estimated that homeless persons with a mental illness "have a tluee times higher risk of
death than the general population.i
In general, these with a serious mental iilness use about half (47%) of the total
amount of services in Ramsey County directed toward homeless persons. Specifically,
two key findings have emerged from the 1998 Ramsey County Survey:
Almost all (93%) of life skills training directed towazd
homeless persons aze tazgeted to homeless persons
with a mental illness.
6 ' Deborah L. Dennis, Irene S. Levine and Fred C. Osher, "The Physical and Mental Health
Status of Homeless Adults," Housing Policy Debate 2 (1991): p. 815. The authors identify
viral and upper respiratory diseases, traumatic injuries, skin disorders, nutritional disorders,
hypothermia, hypertension, advanced dental and periodontal disease, venereal disease,
tuberculosis, hepatitis, and AIDS as those diseases more commonly occurring among the
homeless population than among the general population.
Wilder Research Center, Minnesota Statewide Survey of Persons Without Permanent
Shelter, Volume I: Adults and Their Children, p. xiii and Wilder Research Center,
Minnesota Statewide Survey of Persons Without Permanent Shelter, Volume 11:
Unaccompanied Youth, p. 23.
69 E. Fuller Torrey, Out of the Shadows (New York: John Witey & Sons, Inc., 1997), p. 17.
44
St. Paul/Ramsey County
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and Plan
2. The vast majority (72%) of companion services for the
homeless are provided to homeless persons with a
mental illness.
Chemical Dependency
Drug and/or alcohol abuse are much more likely to be prevalent among homeless
single men and unaccompanied youth than among homeless families, although there is a
growing incidence of crack-addicted single women, with or without children. Recent
data indicate that more than four in ten homeless men and neazly one-quarter of homeless
women reported chemical dependency problems. In addition, the likelihood of women
reporting a stay at a substance abuse treatment faciliTy within a month of entering a
transitional housing setting has "increased six-fold, from 3 percent in 1991 to 19 percent
in 1997.""
Not surprisingly, say experts, "the rigors of homelessness magnify or rekindle old
[alcohol or drug] problems and create new ones."' Reseazchers have concluded that
"[a]lcohol-dependent homeless people...appeaz to have histories of recurrent and enduring
homelessness."
The 1998 Ramsey County Survey indicates that, on average, chronic substance
abusers use 27% of the total homeless services provided Countywide. However, they
receive only 13°l0 of the total financial management skills and just 1% of the all the life
skills training available for the homeless.
' Wilder Reseazch Center, Minnesota Statewide Survey ofPersons Without PermanenP
Shelter, Volume I: Adults and Their Children, p. xiii
" Ibid.
' James Baumohl and Robert B. Huebner, "Alcohol and Other Drug Problems Among the
Homeless," Housing Policy Debate 2(1991): p. 838.
" Ibid, p. 844.
45
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and Plan
9 9 a�o
Multiply Diagnosed
It is estunated that at least 50% of homeless persons with mental illness aze dually
diagnosed with an alcohol or drug abuse problem. People with a mental illness and/or a
chemicai dependency may also be HIV-positive. Thus, the dually diagnosed represent a
significant portion of the homeless population.
The 1948 Ramsey County Survey found that:
♦ Just over half (53%) of all employment services
available to the homeless go to those who aze multiply
diagnosed.
Fifteen percent (15%) of the financial management
services for the homeless aze provided to this
population.
�
♦ Only 1% of life skills training provided in the County for
homeless persons aze accessed by the muitiply diagnosed.
Domestic Violence
The disruption to the lives of individuals and families caused by domestic abuse.
both physical and emotional — cannot be overstated.
In 1997, about 2,800 women and children had need to use the 86 beds currently
available in Ramsey County for victims of domestic abuse. Almost b0°lo were African-
American; about one-fifth (21%) were white; 11% Native American, 5% Hispanic; and
2% Asian. Of the total, about one-third (35%) were women alone, two-thirds (65%)
women with children in shelter.
According to the Wilder Research Center, the number of women and children in
battered women's shelters has increased every yeaz, and almost doubled over the last five
yeazs. The 1998 Ramsey County survey indicated that 59% of transitional housing
users are victims of domestic violence.
i4 W ilder Research Cenier, Seventh Annual Report, p. 45.
'S Ibid., p. iv.
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and Plan
Domestic violence also impacts minor mothers. Since, at this time, there is no
shelter available for them, these women often must make an equally unacceptable choice
between remaining in an unhealthy environment or temporarily relinquishing custody of
their children while they seek refuge in a youth shelter.
Racial Discrimination
Insidious and perhaps the most difficult to overcome is the barrier to housing and
stability presented by racial discrimination. Several Twin Cities studies reveal that, when
searching for rental housing, people of color receive dispazate and lesser treahnent more
than 50% of the time.
Further, according to Professor Stuart A. GabriePs analysis of a number of
studies, there is "widespread statistical evidence of racial and neighborhood disparities in
mortgage lending..,."" These and other studies document what focus group participants
report: there is a correlation betrveen racism and homelessness.'
There are legitimate barriers to the production of low-cost housing (such as land
availabiiity and construction costs). However, institutional barriers — incIuding zoning
' See Minnesota Fair Housing Center, Report on the Fair Housing Audit of the Hrghland Park
Community in the City ofSt. Paul (St. PauL Minnesota Fair Housing Center, November 1997);
Minnesota Fair Housing Center, Fair Housing Audit: A Community Audit Testing for Racial Bias
in Rental Housing in Yhe Cilies of Bloomington, Burnsville and Saint Cloud (St. Paul: Minnesota
Fair Housing Center, December 1997); and Minnesota Fair Housing Center, Housing
Discrimination: A Report on the Rental Practices in Two Minneapolis Communities, (St. Paul:
Minnesota Fair Housing CenTer, December 1996).
" Stuart A. Gabriel, "Urban Housing Poticy in the 1990s," Housing Policy Debate 7 (1996): p.
685. Among oihers, Gabriel points Yo the Home Mongage Disclosure AcY study of data from
1978 through 1990 which revealed that, afrer controlling for income, African Americans and
Hispanics were up to two-thirds more likely to be rejected for loans than whites, and the 1992
Boston Federa] Reserve Bank study that found widespread discrimination In Yhe mortgage
application process in the Boston area.
' See The African American Working Group, Reviving the Dre¢m: An Ajrocentric
Perspective on Homelessness in Ramsey County (St. Paul: African American Working
Group, March 1995), p. 3.
47
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and Plan
99-a�o
and other regulatory and land use provisions, lending and real estate practices, as well as
community opposition — serve to derail attempts to develop affordable housing."
"In short," conclude Robert W. Burchell and David Listokin of Rutgers
University in their 1995 article in Housing Policv Debate, "housing discrimination
comprises a series of severe obstacles to equal housing oppommities."
Community Support for New and Additional Services
According to a survey conducted of the District Councils in the City of St. Paul,
most would support the location of facilities in their districts for battered women,
homeless youth, developmentally disabled persons, and persons with mental illness or
HIV/AIDS. $'
Prevention Strategies
Emphasis on homeless prevention strategies is widely recognized as sound public
policy. A prime example of this approach is the creation by the Minnesota State
Legislature in 1993 of the Family Homeless Prevention and Assistance Program, which
provides, on a biennial basis, grants to counties to fund community agency programs that
prevent homelessness or assist currently homeless persons.
' Such mning practices may include square footage requirements for new homes and lots;
restrictions or limitations to multifamily housing; maximum density restrictions; two-car
garage requirements for new housing; development fees and service connection charges.
(See Institute on Race and Poverty, p. 51.)
80 Robert W. Burchell and David Listokin, "Influences on United States Housing Policy,"
Housing Podicy Debate, 6(1995), p. 585.
$' Biko Associates, p. 3
s � In 1998, an interim yeaz between FHPAP funding cycles, the Minnesota Legislature
appropriated an additional $300,000 for family homeless prevention and assistance
programs.
Cf:j
St. PauVRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Steadily increasing over the last six years, homeless prevention services now
account for more than one-third (37%) of the total funding distributed in Ramsey County
under the FHPAP program. Helping people remain in their homes and ensuring that they
maintain stabiliry once they achieve it are fundamental prevention appmaches.
Averting evictions and condemnations are two ways of curbing homelessness.
Other prevention activities — including the provision of health care, food, access to phone
service, fumiture and transportation — can help to move homeless individuals and
families towazd employment, stabiliTy and self-sufficiency, while helping them to avoid
any recurring episodes of homelessness.
Homeless prevention activities conducted under Ramsey County's Family
Homeless Prevention and Assistance Program aze both successful and cost-effective.
Ninety-seven percent (97%) of the more than 4,500 people in 1,214 families who
received prevention services between 1995 and 1997 did not have to resort to using
shelter. Evaluators estimated that about $4.00 was saved for every $1.00 invested in
prevention services.
Preservation of existing low income housing is also an important homeless
prevention strategy. It is particularly important at this time to focus on housing
preservation, as thousands of units of low-income housing subsidized by the U.S.
Department of Housing and Urban Development aze :n jeopazdy of being lost as a result
of mortgage prepayments and the conclusion of long-term leases with the federal
govemment 85
Another proactive approach to prevenring homelessness is to identify those most
at risk of becoming homeless and fashion progruns and intervention strategies before
homeIessness occurs. According to analyst Eric N. LindbIom, prior homelessness or time
spent in foster care, a mental hospital, prison, ttte armed services, or inpatient treatment
for mental illness or drug or alcohol abuse aze "strong predictors of ever becoming
83 These services are provided by various agencies serving the homeless, including Health
Care for the Homeless, Twin Cities Community Voice Mail, Catholic Chazities, and a
number of food shelves.
84 Ramsey County, Family Homeless Prevention & Assistance Project: Annual Report (St.
Paul: Ramsey County Community Human Services Deparhnent, October 20, 1997), p. 6.
85 The 1998 Minnesota Legislature appropriated $10 million for efforts to preserve this type
of affordable housing.
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q9-a�o
homeless...." One azea of focus could be prisons, where, in Minnesota, about 3,000
adults are released into the community each year. Lindblom proposes a multi-stage
prevention strategy. First, predictors should be utilized to pinpoint those most likely to
become homeless among individuals about to be released from institutional settings.
Second, the institutions and local agencies should work together, prior to release of the
individuals identified, to assure that housing and other social services necessary for
smooth reintegration into the community aze provided.
86 Eric N. Lindblom, "Toward a Comprehensive Homelessness-Prevention Strategy, " Housing
Policy Debate 3 (1991): pps. 960, 962.
87 Minnesota Department of Corrections, "Adult Inmate Profile;" available from http:/www.
corr.state.mn.us/adultl.hhn; Internet, accessed Ju�e 19, 1998.
88 Lindblom, pps. 981-82.
FY17
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�, � . . .r
Chapter N
The Five-Year Plan
The SG PauURamsey Counry Five-Year Low Income Housing and Homeless
Services Ptan sets forth recommendations that, taken together, seek to make significant
inroads toward:
� Preventing homelessness;
� Assisting those who are or will become
homeless; and
� Filling the needs for housing and homeless
services identified during the planning
process.
Based on the foregoing discussion and analysis, the Oversight Committee
proposes the following series of recommendations, grouped under four broad categories:
(1) Homeless Prevention, (2) Shelter and Housing; (3) Homeless Services; and (4)
Funding.
51
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HOMELESS PREVENTION
Prevention strategies work, as evidenced, for anstance, by program evaluations of
the Family Homeless Prevention and Assistance Program_ They aze not only successful,
but also cost-effective in combating homelessness.
Homeless prevention may take many forms. The following presents several
homeless prevention initiatives designed to keep at-risk people and families from
becoming homeless and save valuable and expensive societal resources.
Recommendation 1
Plze Cify and County Should Establish a
St. Paul/Ramsey County Landlord-Tenant
Education and Dispute Resolution Program
Discussion
There is a need to provide a comprehensive, coordinated and centralized system
by which both property owners and renters can receive timely, accurate and accessible
information and education on a range of subjects, and obtain inexpensive and credible
dispute resolution services designed specificaliy to be a preferable alternative to housing
court.
The program would bring together in a cohesive consortium existing agencies and
organizations — such as the Community Stabilization Project; the Dispute Resolution
Center; HousingLinl� Lutheran Social Service's Housing Resource Center; the Minnesota
AIDS Project; the Minnesota Multihousing Association, the St. Paul Association of
Responsible Landlords; the St. Paul Housing Court; the St. Paul Tenants Union; the St.
Paul Police Departsnent's Crime Free Multihousing Program; and Southem Minnesota
Regional Lega1 Services — presently involved in providing housing linkage services,
information, education, advocacy or dispute resolution services to property owners and
tenants.
52
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and Plan
It may also entail the development of new services where they do not already
e�st, or the emergence of an umbrella entity to coordinate all services. The vision is to
provide seamless service by providing a single point of entry that would be universally
accessible for any hovsing need articulated by any renter or owner.
It could be physically located at the St. Paul Housing Information Office, which
has expressed preliminary interest in serving as host agency, provided addifional sources
of funding could be secured.
Recommendation 2
The County Should Act to Improve
Coordination of Youth Services in Ramsey County
Discussion
Providers of services for youth tend to operaTe in mutually exclusive clusters.
Those dealing with youth in the corrections system, youth with mental illnesses and/or a
chemical dependency, homeless youth, youth in the child welfare system, and teen
parents generally aze disconnected from each other.
Although some planning processes already exist, these are insufficient to
providers the comprehensive coordination among the various agencies, both
governmental and nongovernmental, serving youth. Most importantly, tracking and
information sharing may prevent or address many of the problems that lead young
persons into homelessness.
The outcome envisioned by this recommendation could be achieved
by improving existing structures or creating a new one. The County
should take the initiative to bring together all organizations serving
youth, identify overlaps and gaps, and work to ensure that necessary
sexvices are rendered in the most efficient and cost-effective manner.
53
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Recommendation 3
The City and the County Should Continue, Support and
Ezpand Efforts to Reduce Disparities in Housing and
Homeless Services Provided to People of Color
Discussion
People of color aze the predominant users of shelter. In contrast, non-white single
adults comprise only 25% of h�ansitional housing users. With respect to public housing
subsidies, even though half of those receiving Section 8 certificates are persons of color,
these persons are able to utilize those certificates only one-third of the time. Finaily,
racial discrimination is cited by many as a barrier to obtaining permanent housing.
Some work has begun which is intended to investigate and remedy these
conditions. For example, Ramsey County and the City of St. Paul have taken the lead in
planning an interjurisdictional analysis of impediments to fair housing. These effort�
should be continued, supported and expanded.
Recommendation 4
The City and County Should Urge the Legislature to
Establish a Statewide Homeless Prevention Planning Council
Discussion
Research suggests that certain predictors, such as prior episodes of homelessness
among people who are institutionalized, may signal post-release problems in achieving
housing stability. There is a need to connect organizations/institutions (especially
prisons) that work with individuals prior to release with those in communities that can
assist individuals after release. A multiagency group, including State, local and provider
agencies, should be established to develop strategies for stahilizing individuals upon
FZ�
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Five-Year Low-Income Housing
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and Plan
release. Implementation of such strategies would be primarily designed to identify
locarional choices for housing throughout the State, link individuals with needed services,
and, overall, avert future homeless episodes.
SHELTER AND HOUSING
The following presents several proposals to develop new shelter options that
address the particularly pressing issue concerning the rapidly growing homeless
poputation_ Implementing these initiatives will require coordinated efforts of the public,
private and nonprofit funders and agencies to obtain and leverage necessary resources and
utilize them in the most efficient manner.
In addition, a series of recommenda6ons aze proposed that, taken together, form a
coherent and rationate policy direction for creation of more transitional and permanent
supportive units and the preservation and development of low income mazket rate
housing. The recommendations azound the development of more mazket rate housing
look outward to the state and metropolitau region, as well as inward to the city and
county, for long-term solutions to the affordable housing crisis.
EMERGENCY SHELTER
Recommendation 5
The Counfy Shou[d Facilitate the Provision of
Emergency Shelter with a Family Reunification Focus
for Unaccompanied Youth
Discussion
Existing providers aze generally serving youth for whom family reunification is
not an option. However, since fanuly problems are the primary reason for the sharp
increase in the homeless youth population, there is a need to establish a facility where
homeless youth may remain safe and where comprehensive eazly intervention strategies,
the goals of which aze the resolution of fanuly conflicts and the reunification of families,
may be initiated.
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E�sting youth shelters aze provided by nonprofit organizations, often with the
support of local, state and federal subsidies. The same approach should be used to create
this needed service.
Recommendation 6
Tl:e County Shou[d Work to Deve[op Additiona!
Emergency S/:elter Options for Homeless Youth When
Family Reunification Efforts are Ex/:austed
Discussion
The return of youth to the home is not always feasible. Currently, there are only
16 emergency shelter beds available for homeless youth, whereas the 1998 Ramsey
County Survey indicated that there are hundreds of youth on any given night who are in
need of a safe place to sleep. Intensive services, including after-shelter care planning and
resolution of emancipation issues, wiil be required to accompany shelter services if the
needs of homeless youth in this category are to be sufficientiy met.
Recommendation 7 .
The Counfy Should Facilitate the Development of a
IO-bed Shelter for Minor Parents and Their Children
Discussion
At the present time, there are no emergency shelters for minor parents. These
young people face great difficulty in keeping the family intact. Often the result is
separation of the family and placement of young children in foster care. The
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
development of such a facility would assist in the maintenance of the family unit while
providing necessary services, including after-shelter caze planning, for youth in this
category.
TRANSITIONAL HOUS/NG
Recommendation 8
The City and County Should Faeilitate Development of.•
♦ 100 Units of Transitiona[ Housing for Families
♦ 100 Uni1s of Transitional Hnusing fnr SingleAdu/fs
♦ 50 Units of Transitional Housing for Youth
Discussion
With a documented need of almost 800 units of transitio:ial housing for families,
single adults and unaccompanied youth, the modest goal of closing the gap by just about
one-third over the next five yeazs is both reasonable and achievable. Implementation of
this initiative will require the collaborntion of city and county planners and agencies, as
well as the cooperation of funders and providers, to assure that adequate financial
resources and services are in place to expand existing programs and develop new ones.
Permanent Supportive Housing
Recommendation 9
The City and County Should Facilitate Development of•
♦ 400UnitsofPermanentSupportiveHousingforSingleAdults
♦ 200 Units of Permanent Supportive Housing for Families
♦ SO Unifs of Permanent Supportive Housirtg for Youth
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and Homeless Services Report
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Discussion
These housing projects would target the chronically homeless, who aze currently
frequent users of high-cost, publicly-funded emergency and crisis services, such as
shelter, hospital emergency rooms, detoxification facilities, and jails. These individuals
and families could be served more cost-effectively in permanent housing with support
services.
LOW INCOME MARKET RATE HOUSING
Recommendation 10
The City ¢nd County Skould Support Corztinued Legislative
Funding Dedicated to the Preservation of Existing
Federal[y Subsidized Low Income Housfng
Discussion
The supply of subsidized housing is being threatened by the potential conversion
of hundreds of Section 8 units to market rate. During the 1998 session, the Minnesota
Legislature appropriated $10 million for the preservation of existing federally subsidized
housing. The legislature should be encouraged to continue this trend by appropriating
funding in each of the next five yeazs dedicated to this purpose.
Recommendation 11
The City and County Should Establish a Joint Policy to
Preserve Existing Nonsubsidized Low Income Housing Stnck
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St. Paul/Ramsey Couney
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Discussion
Given the critical need for low income housing in Ramsey County and the City of
St. Paul, all efforts should be taken to preserve existing stock. City and County planners
should develop a set of strategies to cany out this poiicy, including the assurance that
resources are adequate to: encourage compliance with code; maintain effective code
enforcement activities; prevent the deterioration of housing stock; achieve cost-effective
rehabilitation of deteriorating properties; and improve management capacities of rental
property owners.
Recommendation 12
The City and County Should Create
an Affordab[e Housing Owners �4dvisory Group
Discussion
There aze a number of existing private market and nonprofit properiy owners who
ate interested in providing affordable housing. They indicate that the system currently in
place impedes the acquisition, rehabilitation or redevelopment of properiy which could
provide addirional affordable housing opportunities.
TYus a@visory group, envisioned to consist of both private and nonprofit owners
and developers, would work with city and county officials to conduct a thorough review
of existing impediments to the acquisition of properties — including housing codes,
zoning laws and ordinances, fee structures, and other government procedures. The
advisory group would develop proposals to streamline the administrative process. Other
endeavors in which the consortium could engage might include developing new funding
ideas, such as subsidy pools, fostering income-integrated development, and offering
mentoring services to new and potential low-income housing providers.
59
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Recommendation 13
Tlze City and County Sltould Encourage the Development
ofPrivate Market Low Income Housi�eg Tltroughout tl:e
City, County and 1/:e Region
By
• Adopting a mixed-use, mixed-income policy
New developments should feature the availability of units that aze suited for a
variety of family sizes and a range of income levels, including moderate and low-income
households. Innovative and creative approaches, including the provision of "density
bonuses" to developers, the establishment of inclusionary zoning practices, and the
increased use of government bonding authority to create housing affordable to low-wage
workers, should be fostered.
• Deve[oping Mechanisms to Bring the Resources and Expertise
of the Business Community to Bear to Integrate More
Homeless and Formerly Homeless Persons into the Workforce
By and lazge, homeless persons want to work, and, to a lazge extent, the
homeless population may be seen as an untapped labor pool. This initiative seeks to
build on existing human resources through partnerships with employers. Impediments
preventing more homeless persons &om successfully integrating into the labor market
include the lack of access to stable, affordable housing and inadequate transportation
linking job seekers and employers. Incentives should be developed to encowage
empioyers to participate in pro}ects that support a stable labor pool.
• Urging the Legislature to Establish Stronger Incentives to
Improve tl:e Effectiveness of the Livable Communities Act
The Livable Communities Act, though well-intended, has not been as
effective as predicted in producing affordable housing across the metropolitan azea.
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and Homeless Services Report
and Plan
Further, what housing is being produced under its provisions is unafFordable to those at
the tower end of the income spectrum. Bold action needs to be taken by the legislature to
establish more effective incentives that will increase the units that are produced in the
suburban communities in the seven-county metropolitan azea.
• Supporting the Gaal of Habitatfor Humahify to Double its
Production Capacity in Ramsey County
Habitat for Humanity builds ar rehabilitates 20 to 25 houses per yeaz in
Ramsey County, while its metrowide waiting list consists of about 250 families. Habitat
for Humanity has set for itself a goal to double its producUOn capacity in Ramsey County
over the nea�t several yeazs. This proposal calls for enhancing partnerships to solicit the
support and participation of more corporate sponsors and volunteers to assist Habitat for
Humanity to achieve its goal.
HOMELESS SERVICES
Without vital services, many homeless persons will fail to gain stability and
establish self-sufficiency. The objective of the following recommendations is to fill gaps
identified during the planning process in the provision of services to homeless persons
throughout Ramsey County.
Recommendation 14
The County Should Work to Increase Capacfty ofAgeneies
to Deliver Basic Services Essential to Breaking
the Cycle of Homelessness
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and Homeless Services Report
and Plan
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Discussion
Formerly homeless persons and families indicate that access to basic necessiries
required to find and keep employment — such as stable housing, transportarion, clothing,
fiirniture, food, and health caze — is critical to establishing and maintaining stability and
avoiding repeat bouts of homelessness. For instance, helping people access clothing for
and trausportation to interviews can help to assure the acquisition and retention of
employment. Obtaining fiirniture can enable homeless families to leave shelter more
rapidly once housing is secured. Providing access to food shelves can mean that a family
does not have to choose between buying food and making rent payments. Increasing the
capacity of service delivery in these areas can help individuals and families to become
and remain self-sufficient.
Recommendation 15
The County Should Facilitate the Provision
of More Intensive Case Management, Counseling
and Financial Management Services
Discussion
One of the striking findings of the planning effort was that, across all populations,
there is a substantial shortage of case management, counseling and financial management
services. Logic dictates that the more services of this nature that can be provided, the
less the chance of recidivism and the greater the chance ciients have of achieving self-
reliance. Existing programs need additional resources to be able to achieve lower client-
to-staff ratios. In general, mare services need to be directed towazd families while,
specifically, single adults require more financial management services.
Recommendation 16
The Counry Shou[d Develop Mechanisms to Improve
Linkages Between Property Owners and Social Service Providers
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Discussion
Properiy owners interviewed indicated a willingness to offer affordable housing to
persons with mental illness, substance abuse issues and imperfect rental histories,
providing there is ready access to social service systems and networks in the event that
pmblems arise. The establishment of a formal system to link property owners with the
goveinment and nonprofit social services networks would be helpful in maintaining and
expanding the pool of housing available to homeless and low-income persons and
families in Raznsey County. Other ideas broached include the establishment of a risk
pool to recompense properry owners for unrecoverable expenses incurred if damage is
done to apartrnents. These strategies strengthen the ability of the community to focus on
the behavior of individual tenants rather than taint an entire building and discourage the
further provision of affordable housing at a property.
Recommendation 17
Low Income, Tra�rsitianal and PermaneHt Supportive Housing
Developers and Homeless Service Providers Shou[d Seek
Partnerships wifh Yeterans Service Organizations
Discussion
Homeless veterans comprise a significant portion of the populauon in need.
There are a variety of veterans service organizations (e.g., the Minnesota Department of
Veterans Affairs, the VA Medical Center, the Minnesota Assistance Council for
Veterans, the Veterans Center, the VFW, the American Legion, Disabled American
Veterans, the State Veteraus Home Boazd, locaI veterans service offices) that bring not
only expertise and sensitivity in working with homeless veterans, but also resources and
funding from govenuuent and other sources. Housing or service pmviders should
explore opportunities to partner with veterans service when developing or expanding
housing or service programs. Such partnerships can increase capacities, enhance
services, meet multiple needs, and leverage funding that can benefit providers and clients
alike.
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Recommendation 18
The City and County Should Provide or Seek Outside Funding
to Increase the Hours and Days They are Open
Discussion
Scazce funding limits the number of hours providers of youth drop-in services aze
able to stay open. Providers indicate a need to expand hours of operation until 8:00 p.m.,
seven days a week. Given the dramatic increase in homelessness among unaccompanied
youth, extending the hours during which assistance and a temporary safe haven are
available may provide some relief to the increasingly vexing problem of stabilizing these
at-risk young persons.
Recommendation 19
The County Should Assess the Feasibility
of Creating a Centralized System
of Intake, Assessment and Record Keeping
Discussion
The 1998 Ramsey County Survey indicated that, on average, every client seen in
the homeless service delivery system receives seven assessments. While, in some cases,
there may be good reasons for the provision of multiple assessments, there may also be an
opportunity to streamline service, avoid duplication, save costs and reduce the burden on
clients.
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Recommendation 20
The County Shou[d Seek Mechanisms to Ensure tl:at
Cu[tural Competency Trainfng is Given to Service Provide�s
Discussion
According to homeless persons participating in focus groups conducted during the
planning process, the most successful approach to providing service is to do so in a
manner that is nonjudgmental, respectful, supportive, and culturally-specific. Providing
training in these skills can enhance the probabiliry of successful interventions by service
providers.
Recommendation 21
The County Should Seek Mechanisms to Ensure
that Necessary Technical and Financial Resources
Are Provided to Agencies of Color
Discussion
Support service agencies operated primarily by people of color indicate a need for
technical assistance and access to resources. This recommendation is intended to bolster the
ability of such agencies to deliver culturally-specific services in communities and to people of
color.
65
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Fundinq
Critical to the success of the pian is the ability to gamer new resources and
leverage existing funding. A variety of federal, State, local and private entities distribute
a number of different grants. What is needed is a mechanism to increase coordination
and avoid duplication among the various funders and, using the Five-Year Plan as a
guide, direct funding appropriately to address the hierazchy of priorities. The following
recommendation is intended to establish such a mechanism.
Recommendation 22
The County Should Create a Funders Council
Discussion
It is proposed that, under City and County coordination, a Funders Council be
created to improve and provide a guiding vision to the system by which funding decisions
aze made. The Council would work in concert to make sure that a coherent system of
allocating grants is established that solicits targeted proposals and packages
appropriations, to the extent possible, to areas identified as priorities under the Five-Year
Plan. It is expected that the effective operation of the council would result in a
streamlined process for applicants.
Members of the Funders Council would include, but not be limited to: City of St.
Paul; Corporation for Supportive Housing; Family Housing Fund; Federal Emergency
Management Agency Board; Metropolitan Council; Minnesota Department of Chiidren,
Families and Learning; Minnesota Department of Human Services; Minnesota
Department of Veterans Affairs; Minnesota Housing Finance Agency; Ramsey County;
St. Paul Companies; St. Paul Foundation; U.S. Department of Housing and Urban
Development; and United Way.
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St. PaullRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
This body would be encouraged to seek the counsel of an advisory group of
currently stable, formerly homeless individuals who would identify the elements that
have enabled them to attain and maintain stability. Such advice would help to inform
funding decisions.
Through the establislunent of this body, enormous strides could be made in
coordinating funding; avoiding duplications, conflicts or gaps in funding; ensuring the
most efficient use of fmancial and staff resources; and simplifying the system for
organizations seeking funding.
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99—a��
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January 9, 1999.
"Suburban efforts not enough to reach goals." Pioneer Press. January 7, 1998.
Available from http://www.pioneerpress.com/seven-days/6/ opinion/
docs/019482.htm. Internet accessed January 12, 1998.
Taylor, Kimberly Hayes. "Empty-promise land." Star Tribune. February 22,
1998, pps. Al, A8.
Tilsen, Terry. Minnesota Supportive Housing Demonstration Program One-Year
Evaluation Report. St. Paul: Wilder Research Center, June 1998.
Toney, E. Fuller. Out of the Shadows. New York: John Wiley & Sons, Inc., 1997.
U.S. Bureau of the Census. Administrative Records and Methodology Research Branch.
County Population Estimates by Race and Hispanic Origin - 4/1/90 to 7/1/96;
available from http://www.census.gov/population/estimates/county/crl�/
chrmn96.text; accessed June 9, 1998.
United States Census Bureau. 1990 U.S. Census Data. Database C90STF3A;
available from http://venus.census.gov/cdrom/lookup/896200098; accessed
May 26, 1998.
United States Census Bureau. 1990 U.S. Census Data. Database C90STF3A;
available from h±tp://venus.census.gov/cdrom/lookup/896200846; accessed
May 26, 1998.
United States Census Bureau. 1990 U.S. Census Data. Database C90STF3A;
available from http://venus.census,gov/cdrom/lookup/896201037; accessed
May 26, 1998.
United States Census Bureau. 1990 U.S. Census Data. Database C90STF3A;
availabte from http://venus.census.gov/cdrom/lookup/901296831; accessed
July 24, 1998.
United States Census Bureau. 1990 U.S. Census Data. Database C90STF3A;
available from http://venus.census.gov/cdrom/lookup/901297528; accessed
July 24, 1998
United States Department of Housing and Urban Development. Continuum of
Care for the Homeless. Washington, D.C.: U.S. Depaztment of Housing and
Urban Development. Available from http://www.hud.gov/cpd/comcare.html.
Internet accessed January 2, 1998.
� • • .•
United States Department of Housing and Urban Development. "Section 8 Program Fact
Sheet." Washington, D.C.: U.S. Department of Housing and Urban Development_
Available from: http://www.hud.gov/section8.htm1. Internet accessed January 2,
1998.
Wilder Research Center. Emergeney Shelters, Transitional Housing, and Battered
Women's Shelters Data Collection Project, Seventh Annual Report. St. Paul:
Amherst H. Wilder Foundation, June 1998.
Wilder Research Center. "Homelessness: A Continuum of Needs and Services."
findings St. Paul: Amherst H. Wiider Foundation, 1996.
Wilder Research Center. Entering the 21" Century. Saint Paul: Amherst H. Wilder
Foundation, March 1997.
Wilder Research Center. Minnesota Statewide Survey of Persons Without
Permanent Shelter, Volume I.• Adults and Their Children. St. Paul: Amherst
H. Wilder Foundation, June 1998.
Wilder Research Center. Minnesota Statewide Survey ofPersons Without
Permanent Shelter, Volume II: Unaccompanied Youth. St. Paul: Amherst
H. Wilder Foundation, July 1998.
Wilder Research Center. Minnesota's Youth Without Homes. St. Paul: Amherst
H. Wilder Foundation, March 1997.
Wilder Research Center. "Report on Social Trends." findings St. Paul: Amherst
H. Wilder Foundation, 1996.
Wright, James D., and Beth A. Rubin. "Is Homelessness a Housing Problem?"
HousingPolicyDebate 2 (1991):937-956.
L9
G9-a�o
Appendix A
Oversight Committee
Name
Gwen Chandler Rhivers
7im Coulthard
OrpaniZation
YWCA of St. Paul
Minnesota Assistance Council for Veterans
Margaret A. Demco Minnesota Housing Finance Agency
Ron Elwood, Co-Chair Ramsey County Community Human Services Department
Mary Lou Egan Ramsey County Community Development Office
Mary Ford Ramsey County Community Human Services Department
Tom : ulton
Kurt Koehler
Rod Gustafson
Greg Horan
Mari Moen
Susan Phillips
Tom Sanchez, Co-Chair
Carl Scheider
Diane Stone
Gabrielle Strong
Family Housing Fund
Ramsey County Community Human Services Department
YWCA of St. Paul
MinnesotaJSt. Paul Coalitions for the Homeless
Corporation for Supportive Housing
Lutheran Social Services
St. Paul Planning & Economic Development Department
St. Paul Companies
Metropolitan Council HRA
Ain Dah Yung
1
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Appendix B
DATA SOURCES AND RESEARCH
METHODOLOGY
In an effort to base the St. PauURamsey County Five Year Housing and
Homeless Services Plan on sound information, the Plan's Oversight Committee retained
staff and consultants to assemble existing data about homelessness and affordable
housing in Ramsey County, and to conduct research and focus groups to fill in existing
gaps in knowledge on these issues. The data gathering process attempted to:
1) Describe the current system to serve homeless persons in Ramsey
County;
2) Describe the peopie using homeless support services, and the
people who aze not using these services but who need them;
3) Discem the state of affordable housing in Ramsey Ceunty;
4) Identify key trends in affordable housing and the homeless support
system that will inform the planning process.
Key Data Sources on Homelessness and Homeless Persons in Ramsey County
1. 1998 Ramsey County Housing and Service Inventory Survey
In order to ensure the broadest possible community participation in
the Five Year planning process, to obtain the most accurate representation of the
County's inventory of housing and services for homeless individuals, and to
provide the Plan's Oversight Committee with valuable data not reflected in the
other sources, staff from the Ramsey County Community Human Services
Department and the Corporation for Supportive Housing prepared and disseminated
an extensive survey of the organizations in Ramsey County that serve and/or house
homeless persons or persons at risk of homelessness. Modeled on the survey used
for the 1997 U.S. Department of Housing and Urban Development's Continuum of
Care planning process, the 1998 Ramsey County Housing and Service Inventory
Survey was significantly expanded to cover more services and housing settings and
to capture more data on the users of services and housing. Every survey recipient
received follow-up phone contact to ensure consistency in interpreting the survey
across all agencies.
1
There are a number of service sectors that do provide some service to
homeless persons, however, that were noY suroeyed. For example, neither food
shelves nor agencies that provide employment readiness training were surveyed,
and employment training programs were surveyed only when the agency in
question also provided an array of other, non-employment related services.
A second survey, designed to obtain data on the existing geographic
distriburion of services and to determine community attitudes towards the location of
new facilities, was distributed by Biko Associates to each of the 17 District Councils
in the City of St. Paul.
2. Annual Reports from Wilder Research Center's Emergency
Shelters, Transitional Housing and Battered Women's Shelters
Data Collection Project
In June 1998, the �Ider Research Center (WRC) released the Seventh
Annual Report on its effort to collect data on homeless adults and their children who
use emergency shelters, transitional housing, and battered women's shelters in Ramsey
County. These reports provide detailed information on the sheltered populations,
including demographic data (e.g., gender, race, age, education level), prior living
arrangements, patterns of shelter use, and housing outcomes. The WRC has been
coIIecting most of these data since 1991.
For the purposes of the St. Paul/Ramsey County Five Yeaz Planning
Process, the key limitarions of these reports aze that they do not present data on the use
of services by homeless people and they do not present information on permanent
supportive housing.
3. Office of Economic Opportunity's Quarterly Shelter Survey
The Office of Economic Opportunity (OEO) of the Minnesota
Department of Children, Families and Learning conducts a quarterly survey of
emergency sheIters, transitional housing programs, battered women's shelters, and
agencies providing motel vouchers across Minnesota. Since 1985, its quarterly
reports have documented the sheltering activities provided by these organizations
for one night every February, May, August, and November. For the purposes of
this report, staff requested a breakout of Ramsey County's data. These data, set
against the backdrop of statewide data from this survey, provide an invaluable
source of longitudinaI analysis of the shelter and transirional housing use in
Minnesota.
2
�/ 9 - a�a
Similar to the Wilder Annual reports, the main limitations of the Quarterly
Shelter Survey for the purposes of the five-year planning process is that it does not
account for the use of services by homeless persons, it does not account for
permanent housing or permanent supportive housing, and it surveyed a shorter list
of agencies than are represented in the data gathering survey completed specifically
for the Five Year Plan.
Focus Groups and Interviews
Focus groups were held and interviews were conducted by Biko
Associates to gather qualitative information from opinion leaders, stakeholder
organizations and users of the homeless services delivery system. At these sessions,
information was sought regazding views about the problems of and solutions to
homelessness.
Focus groups were held with the following groups:
♦ African American women in transitional housing
♦ Homeless American Indian men, women and youth
♦ Homeless unaccompanied youth
♦ Homeless single men (including Veterans)
♦ Homeless people with HIVIAIDS
♦ Homeless families
♦ Property Owners and Managers
Interviews were conducted with:
♦ Honorable Jerry Blakey, St. Paul City Council Member
♦ Honorable Andy Dawkins, Minnesota State Representative
♦ Honorable Dino Guerin, Ramsey County Commissioner
♦ Honorable Susan Haigh, Chair, Ramsey County Boazd of Commissioners
♦ Anonymous Shelter Provider and Service Provider
♦ Jobs Now Coalition
♦ McKnight Foundation
♦ St. Paul Area Council of Churches
♦ Oversight Committee Members
Interviews with Drop-in Centers and Outreach Workers
Staff from the Corporation for Supportive Housing conducted a series
of interviews with staff of drop-in centers and outreach workers. Because the data
from the surveys referenced above applies to shelterea' homeless populations, these
3
interviews were focused on identifying the characteristics of the unsheltered subset
of the homeless population, and the needs and barriers that this group confront.
Interviews were held with directors or staff (including outreach workers) of: Union
Gospel Mission; Listening House; the ACCESS program; of Catholic Chazities'
Dorothy Day Center, Streetworks.
0
.�
. .�
Appendix C
Lzst of Recommendations
PREVENTION
1) The City and County Should Establish a St. Paul/Ramsey County
Landlord-Tenant Education and Dispute Resolution Program
2) The County Should Act to Improve Coordination of Youth
Services in Ramsey County
3) The City and the County Should Continue, Support and
Expand Efforts to Reduce Disparities in Housing and
Homeless Seruices Prouided to People of Color
4) The City and County Should Urge the Legislature to
Establish a Statewide Homeless Prevention Planning Council
EMERGENCY SHELTER
5) The County Should Facilitate the Provision of Emergency
Shelter with a Family Reunification Focus for Unaccompanied Youth
6) The County Should Work to Develop Additional Emergency Shelter
Options for Homeless Youth When Family Reunification Efforts are
Exhausted
7) The County Should Facilitate the Development of a 10-bed
Shelter for Minor Parents and Their Children
TRANSITIONAL HOUSING
8) The City and County Should Facilitate Development of.
♦ 100 Units of Transitional Housing for Families
♦ 100 Units of Transitional Housing for Single Adults
1
♦ 50 Units of Transitional Housing for Youth
PERMANENT SUPPORTIVE HOUSING
9) The City and County Should Facilitate Development of.•
♦ 400 Units of Permanent Supportive Housing for Single Adults
♦ 200 Units of Permanent Supportive Housing for Families
♦ 50 Units of Permanent Supportive Housing for Youth
LOW INCOME MARKET RATE HOUSING
10) The City and County Should Support Coniinued Legislative
Funding Dedicated to the Preservation of Existing Federally
Subsidized Housing
11) The City and County Should Establzsh a Joint Polzcy to
Preserve Existing Nonsubsidized Low Income Housing Stock
12) The City and County Should Create an Affordable Houszng
Owners Advisory Group
13) The City and County ShouZd Encourage the Development
of Private Market Low Income Housing Throughout the
City, County and the RegionBy
• Adopting a mixed-use, mfxed-income policy
• Developing Mechanisms to Bring the Resources and
Expertise of the Business Community to Bear to
Integrate More HomeZess and Formerly Homeless
Persons into the Workforce
• Urging the Legislature to Establish Stronger Incentives
to Improve the Effectiveness of the Livable Communities
Act
• Supporting the Goal of Habitat for Humanity to Double
its Production Capacity in Ramsey County
2
99-a�a
HOMELESS SERVICES
14) The County ShouZd Work to Increase Capacity of Agencies
to Deliver Basic Services Essential to the Cycle of HomeZessness
IS) The County Should Facilitate the Provision ofMore Intensive Case
Management, Counseling and Financial Management Services
16) The County Should Develop Mechanisms to Improve Linkages
Between Property Owners and Social Service Providers
17) Low Income, Transitional and Permanent Supporiive Housing
Developers and Homeless Service Providers Should Seek
Partnerships with Veterans Service Organizations
18) Youth Drop-in Centers Should Seek Funding to Increase
the Hours and Days They are Open
19) The County Should Assess the Feasibility of Creating a
Centralized System of Intake, Assessment and Record Keeping
20) The County Should Seek Mechanisms to Ensure that
Cultural Competency Trafning is Given to Service Providers
22) The County Should Seek Mechanzsms to Ensure lhat
Necessary Technical and Financial Resources Are Provided
to Agencies of Color
FUNDING
23) The County Should Create a Funders Council
3
� ��
lnterdepartmental Memorandum
CTIY OF SAII�T PAUL
TO: CiTy Council Members
FROM: Brian Sweeney�� •. �
r ...�..w a .
l/
DATE: May 26, 1999
RE: Replacement Housing
`�j-�Go
Attached is the report you requested regarding the City's replacement housing policy outlined in
Chapter 93 of the Administrative Code.
Following our presentation at the City Council meeting May 26, and after you have a chance to
read the report, you will understand that Chapter 93 is very narrow in its focus as it relates to
housing, and afFordabie housing, within the city, and how it impacts the activities of City
departments and agencies. Chapter 93 only applies to housing, commercial, o�ce or indusirial
development projects in which the City/HRA provides financing assistance, and where the units
lost and replaced are affordable to households with incomes not exceeding 55% ofthe area
median income. Chapter 93 does not apply to other City projects involving pazks, public works,
code enforcement and schools.
In order to put the discussion I expect we will have in context, I believe it is important to
comment on the lazger housing picture during the last ten years. Note the following brief
introductory comments.
Supply and Demand for Affordable Housing and Recent Policy
The rental vacancy rate in Saint Paul was 7.1 percent in 1989; today it is in the
neighborhood of 2 percent. This is the cleazest overall indicator of the relationship of
supply to demand. For rental housing, a vacancy rate in the neighborhood of five to six
percent is generally considered desirable for a healthy mazket. A vacancy rate this low
means that choice will be quite limited for most households in the market, and owners
will be able to keep rents high even for units of lower quality.
Because of the mazket and the trend for the first half of the 1990s, the 1990 housing plan
did not put an emphasis on additions to the supply. It did emphasize preserving
affordable housing and, where additions could be made, adding to the supply of units for
lazge families. Lazge family rental needs are typically the most difficult to meet.
r�
, . , _ f�
• Today, with the vacancy rate as low as it is, affordable rental needs for any household
size are difficult to meet.
• The 1990 policy supported increasing housing assistance, particularly assistance such as
Section 8 certificates and vouchers that give households the ability to rent in the private
market.
• Beginning in 1996, and until recently, the City's policy, as expressed in the Council
adopted Housing Action Program, was to "continue to refrain from construction of new
multi-family low income housing units within the City of Saint Paul."
• Untii 1994, there were federal, state and local replacement housing requirements. Up to
that time PED prepazed annual reports regarding replacement housing activities. After
1994, with the repeal of the state replacement housing legislation, and the City policy of
refraining from constructing low income rental housing, we have not done annual reports.
Housing Numbers-Current Estimates
Housing units in the city: 117,000
Affordable housing in the city: (based on a report we provided to the HRA in September
1998) of the 55,021 single family properties, 94% are affordable to households with
incomes at 100% of the azea median income; neazly 60% of the single family properties
are affordable to households at 50% of area median which currently is $31,800 for a
family of four. The estimated current Saint Paul median income is $46,500.
The average rent for apartsnent units in Saint Paul is affordable to families at 50% of the
area median income.
Assisted (subsidized) housing in the city: there is approximately 15,000 publicly-assisted
housing units within the city, affordable at various income levels from 30% to 80% of
area median income.
For the period 1989-1998:
1,147 units have been constructed (including non-residential buildings converted
to housing)
329 vacant units have been rehabilitated (involving assistance from the City)
1,381 units have been demolished
95 units aze the net additional units
�replacem
. � , •"
City Council
:wr_�a���z���
May 25,1999
I. Purpose
The City Council of the City of Saint Paul by Resolution 99-260 has requested the Department of
Plaz�ning and Economic Development to report on the overall implementation over the last ten
yeazs of the Replacement Housing Policy, Chapter 93 of the Administrative Code.
II. Intent and Definition of Replacement Housing
Chapter 93 of the Saint Paul's Administrative Code was adopted July 25, 1989. Chapter 93 of
the Saint Paul Administrative Code pertains to the Replacement Housing Policy for the City of
Saint Paul for city-assisted development projects. The Housing and Redevelopment Authority of
the City of Saint Paul on August 23, 1989, approved by resolution 89-8/23-3, the City of Saint
Paul's Replacement Housing Requirements for HRA-assisted development proj ects.
� The intent of this chapter is that the City of Saint Paul finds that it is in the public interest to
promote the production and preservation of an adequate supply of decent, sanitary, safe and
affordable rental housing for low-income residents (as defined in Chapter 93 - see below). The
city desires to affect a policy and procedure whereby the potential loss of such rental housing due
to a city-assisted development project (as defined in Chapter 93 - see below) will be reviewed in
relation to the overall supply of affordable rental housing in the city, and, where appropriate,
based upon the detemunation of the City Council of the City of Saint Paul, a plan will be
developed to replace lost rental housing with housing that meet the current needs of the city's
low-income residents.
Affordable rental housing which is defined in Chapter 93, as residential rental housing units
which have not been vacant for more than two (2) yeazs, aze a legal zoning use, and have gross
rents now or at any time in the previous twelve (12) months which are not more than thirty (30)
percent of fifty-five (55) percent of the metropolitan statistical azea median as such income may
be reported by the U.S. departxnent of Housing and Urban Development, adjusted for family size.
City-assisted development is defined in Chapter 93, as any housing, commercial, office or
industrial real estate development projects, in which the city provides financial assistance or aid
in securing public financial assistance, including any federal grant administered by the city, any
city revenue bond fmancing, tax increment financing, tax levies, funds or revenues controlled by
the city, except, however, projects which (1) have values of less than one million dollars
($1,000,000); (2) result in a loss of five (5) or fewer affordable rental housing units; or (3) aze
provided to individuals for purchase, remodeling, or renovation of single-family dwellings will
not be considered °city-assisted projects" and are exempt from Chapter 93.
III. HistoryBequirements
The City ordinance went into effect on July 25, 1989. Since that tnne, PED staff has monitored
the demolition and construction/rehabilitation of afFordable rental housing within the City limits
applicable to Chapter 93. Along with the monitoring of the city requirement, PED Staff is also
required to monitor and report on affordable housing that is demolished, constructed, or
rehabilitated under the Federal Replacement Housing regulation and between 1989 and 1993 the
State of Minnesota's Replacement Housing requirement.
The Federal Govemment, State of Minnesota (1989 - 1993) and the City of Saint Paul has or has
had a Replacement Housing Requirement. Each agency's regulation, although different, has the
same overall goal in which to replace affordabie housing.
A comparison of the Federal and the Local Replacement Housing requirements can be reviewed
in Attachxnent B.
IV. List of Replacement Housing Projects
The City of Saint Paul has done 28 projects tbax displaced units or added units to the city since
1989 that aze applicable to Chapter 93. The tallies of the disQlaced units are as followed:
� 1989 - One project displaced six units (Lyton Pazk Place),
1990 - Four projects displaced 20 units (814 Selby, 298 Mazshall, 595 York & 616 Edmund),
1991 - Four projects displaced 12 units (474 Hall, 484 Lynhurst, 25 W. Winifred, & 469 Ada),
1992 - Two projects displaced nine units (917 Rice & 908 Payne),
1993 - No units were displaced,
1994 - One project displaced eight units (607 York),
1995 - No units were displaced,
1996 - No units were displaced,
1997 - No units were displaced,
1998 - One project displaced 102 units (Lakewood Apartment).
The total of 13 projects displaced 157 units.
In the same tune period, the City of Saint Paul in 15 projects created 325 units that are applicable
to Chapter 93. The tallies for the creation of units aze as follows:
1989- No units were replaced,
1990 - Two projects created 35 units ( Van Dyke Townhomes, & Hamline Pazk Townhomes)
and one project that created 50 scattered site units (PHA),
1991 - Two projects created 105 units (Mary Hall & Bradley Terrace) and one project that
created nine scattered site units (PHA),
1992 - Three projects created 59 units (Comerstone, Wabasha Terrace & Galtier) and one project
that created 16 scattered site units (PHA),
1993 - One project created one unit ( Larpentuer Avenue),
a � �a
1994 - One project created 10 units (York/Sims),
1995 - No units created,
1996 - No units created,
1997 - Two projects created 30 units (B1ufFHomes & Aim Dah Yung),
1998 - One project created 10 units (914 Thomas).
Attachment A is a tally of the total units and unit size displaced and replaced for each yeaz from
1989 to 1998 which are applicable to Chapter 93. The Attachment also indicates the overall net
effect of this tally.
A conclusion to this tally, is that there is a positive net gain in replacement of affordable rental
housing in the City of Saint Paul as required to be monitored by Chapter 93. As can be seen in
the final tally and the overall general City policy of developing affordable family rental housing,
the City removed mainly one bedroom units but replaced them with larger two, three and four
bedroom units. The over a11 increase of affordable rental housing in Saint Paul aze 168 units.
V. List of Non-Replacement Aousing Projects
Certain projects within the City of Saint Paul aze not included in the Local Replacement Housing
requirements. These projects may remove or create affordable housing units in the City of Saint
Paul, but do not meet the definition of Affordable Rental Housing applicable to chapter 93 and
� therefore not counted in the tally.
The projects that might reduce affordable housing in Saint Paul could include projects such as
housing code enforcement and nuisance properties, expansions of roads, parks, recreation
centers, creation and expansion of public schools, and any other development from outside
agencies or private developers. Removal of affordable housing could include, the Code
Enforcement Department,.under the Nuisance Ordinance that may remove structures that are
unfit for human habitation. The Real Estate Division acting on behalf of the Public Works, Parks
& Recreation, and other city departments, may purchase affordable housing for the intent to
expand roadways (Da1e Street (10 Houses)) , recreation centers (Jimmy Lee Rec Center from (55
to 65 housing units)) or parks. They may also purchase affordable housing if neighborhood
group request their assistance for an unseen problem (Hoyt-Montana Neighborhood (29 of 34
houses purchased)). The School District may remove affordable housing for the expansion of
public schools (Arlington High School (22 Houses), Jackson School (13 Houses), York
Achievement Plus School (56 Houses)). These projects aze not a housing, commercial, office or
industrial real estate development and therefore not applicable to Chapter 93.
Certain projects that created affordable housing units, which are not counted as applicable to
Chapter 93, could include rehabilitation/new construction where rents maybe slightly higher than
the Replacement Housing 30% of 55% income requirements (Low-Income Housing TaY Credits
at 60°/o, and CDBG's 80% of a median income requirement). Construction of affordable single
family homes (Houses to Homes and In-fill Housing), rents that do not exceed the 10-year rent
restrictions (Lexington-Hamline Housing Coop), and where the area mazket dictates affordable
rents (683 Hague Avenue, private developers) are also not included in this tally.
The Tally also does not include construction/rehabilitation from outside agencies (FHF, FIUD,
MFIFA, PHA) who create affordabie rental housing within Saint Paul without any CiTy/fIRE1
assistance
This tally also does not include projects that had a zero net loss of squaze footage. Cen�al
Tower, Ramsey Hill and Cathedral Hill are three examples of zero-net loss projects. In all three
examples, the total units were reduced but were increased in the respect of lazger bedroom units.
The squaze footage of each building was not reduced and the building will house the same
number of tenants. Therefore, these projects do not fall into the replacement housing
requirements. Attachment C outlines the above-mentioned examples.
Therefore, these projects and similaz projects would not trigger the Replacement Housing
requirement of the City of Saint Paul.
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REPLACEMENT HOUSING GUIDELINES AND COMPARISON
FEDERAL AND LOCAL REGULATIONS
SUMMARY OF STATU"I`ES:
FEDERAL
HCTD (the Department of Housing and Urban Development) requires replacement of a11 occupied
and vacant occupiable low/moderate income dwelling units demolished or converged to a use
other than as Low/Moderate Income Housing in connection with an activity assisted with federal
CDBG (Community Development Block Crrant) funds. A low/moderate income dwelling unit is
a unit with market rent (including utilities) not exceeding fair mazket rent (FMR) for Section 8
existing housina. Low/moderate income dwelling units include owner-occupied units which
would rent at or below FMR if they were rental. "Vacant Occupiable° means those units in
standard condition and those in substandard condition but suitable for rehabilitation. It makes no
difference how long the units have been vacant.
Replacement units for units demolished or converted with Federal CDBG funds:
• Must be provided one year before commencement of demolition or conversion activity to
three years after.
• Must contain at least the same number of bedrooms as the units which were demolished
or converted. (Six one-bedroom units may be replaced with two three-bedroom units).
• Maybe rehabilitated vacant units if the units were substandazd before rehab and the units
were vacant at least three months before the contract between the city and the property
owner.
• Maybe units in project-based Section 8 subsidy programs.
• Must be designed to remain low/moderate income dwellings for ten years.
CIT'Y
A City ordinance requires replacement of affordable rental housine which is demolished or
converted i£ 1) such loss results in a net loss in the city; or 2) the loss is of the type needed in the
city and 20 or more units; or 3) the loss is due to an activity directly funded from federal CDBG
funds. Affordable rental housing is rental housing with gross rents which are not more than 30%
of 5�% of inedian income. Units vacant less than two yeazs must be replaced. Projects with a
value of less than $1,000,000 or resulting in a loss of five or fewer units are excluded from
replacement under the city ordinance.
Replacement units for units displaced by the city or a subgrantee of the city and subject to
replacement under the city ordinance:
• Must be provided within three years of the commencement of demolition or conversion
activity.
• Must be sufficient in number and size to house at least the number of persons who could
have been housed in the units to be lost.
• Maybe provided as new construction or rehabilitated units vacant more than rivo years.
• Must be affordable for at least 10 yeazs from the date of initial occupancy.
• Maybe provided by any public agency or private development.
To better illustrate the differences in the definitions of low-income housing and the requirements
for replacement units under the two laws, the following comparison of the above informafion is
provided in the following:
REPLACEMENT HOUSING LEGISLATION: COMPARISON OF TWO LAWS
� DEFINITION
FEDERAL
LOCAL
Unit Requiring
Replacement:
Rent L'units of
Replacement Housing:
Vacant Units,
Replacement Required i£
Triggering Activity:
Low/moderate income dwelling
unit: mazket rent not exceeding
FMR for Section 8 existing
Housing, include owner
occupied units.
Section 8 Fair Market Rent
(Fair Mazket Rents (FMR))
Occupiable or substandard
but suitable for rehabilitation.
Activity using CDBG funds
which direcfly results in
demolition or conversion of
low/moderate dwelling units
to another use.
Affordable Rental Aousing:
Gross rents which aze not
more than 30% of 55% of the
median income.
30% of 55% of inedian
Vacant less than two yeazs.
Demolition or conversion of
Affordable units results in net
loss in the city or loss is of
the type needed in the city
and 20 or more units or loss
is due to an activity directly
funded from CDBG.
a� -��
Replacement Units
Defined as Newly
Constructed or:
Rehabilitated vacant units if
substandazd and vacant at least
three months prior to rehab.
Units in project-based Section 8
subsidy program.
Rehabilitated units vacant
more than two years.
Replacement Units
Affordability Beyond
Initial Occupancy:
Timing of Replacement
Units:
Configuration of
Replacement Units:
Designed to remain
affordable for ten yeazs
from date of occupancy
One year before activity
to three yeazs after
commencement of activity
Replacement with units having
at least as many bedrooms
(six 1BR units could be
replaced with two 3BR units).
Exceptions from HUD determines there is an
Replacement adequate supply of vacant low/
Requirements: moderate income dwelling units
in standard condition and available
on a nondiscriminatory basis.
Affordable for at least ten
yeazs from date of initial
occupancy.
Within three yeazs of the
commencement of demolition
or conversion activity.
Sufficient in number and size
to house at least the number
who could have been housed
in the units to be lost.
Project has a value of less
than $1,000,000 or results in
a loss of five or fewer units.
�, , ,�
ATTACHMENT C
ZERO NET LOSS OF SQUARE FOOTAGE
UNITS DISPLACED Y7NITS ADDED
TYPBBEDROOM(S) TYPEBEDROOM(S)
PROJECT EFF 1 2 3 EFF 1 2 3
Central 213 58 0 0 69 127 1 0
Towers
Ramsey 0 0 0 0 0 0 0 0
Hill
Cathedral 9 51 33 0 0 21 16 23
Hill
Bluff 4 28 31 0 0 9 21 14
Homes
TOTAL 226 137 64 0 69 157 38 37
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RESOLUTION
C�VT PAUL, M�NNESOTA �7
�
Presented
Referred To
Committee Date
RESOLUTION DIRECTING THE PREPARATION OF A REPORT ON THE
CITY'S REPLACEMENT HOUSING POLICY
1 WHEREAS, Chapter 93 of the City's Administrative Code is the City's Replacement Housing Policy
2 states that
3 The City of Saint Paul fznds that it is in the public interest to promote the production and
4 preservation of an adequate suppZy of decent, sanitary, safe and affordable rental housing for
5 low-income residents. The City desires to effect a policy and procedure whereby the potentiat
6 loss of such rental housing due to a city-assisted development project will be reviewed in
7 relation to the overall housing supply of affordable housing in the City, and where appropriate,
8 based upon the determination of the City Council of the City of Saint Pau1, a plan will be
9 developed to replace Zost rental housing with housing that meets the current needs of the City's
10 low-income residents.
11 WITEREAS, the Replacement Housing Policy has been in place since 1989; now, therefore, be it
12 RESOLVED, that the Saint Paul City Council directs the Deparhnent of Planning and Economic
13 Development to report on the overall implementation over the last ten yeazs of Replacement Hou�sing
14 Policy, Chapter 93 of the Administrative Code, on May 26, 1999.
Requested by Departinent o£
�
Form Approved by City Attomey
�
Adoprion Certified by Council Secretary
Approved by Mayor for Submission to Councff
By:
. B
Approved by Mayor: ate
B Y = j��S�.,�� i��-���� � \� � V
Ci.J, 1 _ ' ' — v ., �
� r
Adopted by Council: Date"� �2-'�{ ��'�`1
c
C'ow,c�•�_ WcvJ.r a 3 �
PERSON 8 PFiONE
L'ouHt�%membe� �o%�a. ZGG-Sl920
F
TOTAL # OF SIGNATURE PAGES
�
GREEN SHEET
oE.�u,�r nRarart
Q9-��o
r,o 63539
NItlalNbe
arvcas� .
� ❑ CRYATiONEY ❑ OIYC�iFIf �
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❑ t�111I1IJI1LfElVCFiGOt ❑ A11111CI�LfERV/ACRC
❑wwn�on,ums*+um ❑
(CLIP ALL LOCATIONS FOR SIGNATURE)
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fi� ovwai/ irr�p/trwnfa-fibit, acti.t f� /Qrf feny«'s, o�tGu Ri,olaunv.+.f ycrs%n9 /�oLi y,
Cka.p� 93 o�f� fld�w�%sti�a �'i'e•� Coda, on. May 2� �499.
PLANNING COMMISSION
CIB COMMITSEE
CIVIL SERVICE COMMISSION
flyi\79K�Pi��7
Has this persoMrm ever urorked uMer a contract fw this depaitmenl7
VES NO
Has Mia DersoNfirtn eVer been a ci[Y emPbYee?
YES NO
poes this persoMnn poesess a sldll not normallypossessed by any artent aty employee'7
VES NO
Isthis persoMrtm atar0eied vendof�
YES NO
COST/REVENUE BUDGETED (CIRCLE ONE)
SOURCE
ACTMTY NUMBER
VES NO
INFORMATION (IXPWN)
99-a�a
ST . PAUL/RAMSEY COUNTY
FIVE-�E�iR LOW INCOME HOUSING
AND HOMELESS SERVICES
REPORT AND PLAN
►-�
January 1999
�q- a � a
TABLE OF CONTENTS
EXECUTIVE SUMMARY
ChapterL
INTRODUCTION
Organization of the Report and Plan
Key Trends
Chapter II:
THE CURRENT SYSTEM
The Continuum of Care
Housing
Services
Funding for Homeless Services and Programs
Acquisition of Properties
New Development
Chapter IIL•
HOMELESSNESS INRAMSEY COUNTY
Background
Who are Ramsey County's Homeless?
Single Adults
Homeless Veterans
Persons with HIV/AIDS
Families
Unaccompanied Youth
The Invisible Homeless
Causes of Homelessness
The Affordable Housing Crisis
Insufficient Wages
Mental Illness and Chemical Dependency
Domestic Violence
Racial Discrimination
Community Support for New and Additional Services
Prevention Strategies
Chaprer rv
FITjE YEAR PLAN
1
3
3
6
7
6
10
12
13
13
14
14
16
17
20
21
22
25
27
28
29
42
43
46
47
48
48
51
BIBLIOGRAPHY
APPENDICES
Appendix A Oversight Committee
Appendix B Data Sources and Research Methodology
Appendix C List of Recommendations
LIST OF CHARTS AND TABLES
Chart 1. Emergency Shelter Capacity
Chart 2. Transitional Housing Capacity
Chart 3. Permanent Supportive Housing Distribution
ChaR 4. Emergency Shelter Use in Ramsey County,
Single Adults and Families, 1997
Chart 5. Battered Wo�meds Shelter Use, 1997
7
9
10
14
IS
Chart 6. Transitional Housing Use in Ramsey County, 1997 15
ChaR 7. Comparison of Single Female Emergency Shelter Users 18
with Single Female Transitional Housing Users, 1997
Chart 8. Race of Adults with Children Entering Emergency Shelter, 1997 23
Chart 9. Race of Children Entering Emergency Shelter, 1997 23
Chart 10. Income Compared to Housing Affordability 43
Table 1. Males and Females Alone Entering Emergency Sheker, 1997 18
Tabfe 2. Racia[ and Ethnic Composition of Homeless Youth, Statewide 26
Table 3. Number and Percentage of Households Earniug 36
Less than $20,000 Unable to Afford Housing
� 9-a�o
EXECUTIVE SUMMARY
Homelessness continues to plague both its victims and the community as a whole
despite the efforts of dedicated local, State and national funders, service providers,
elected officials and advocates. Between 1991 and 1997, an estimated 30,000 different
persons accessed emergency shelters, battered women's shelters, and transitional housing
programs in Ramsey County.
Reseazch conducted during this planning effort revealed a range of causes and
effects of homelessness. Among the causes are: continuing and growing poverty; mental
illness; chemical dependency; domestic violence; and family strife. Racism and
discrimination must also be recognized as contributing factors. It is unlikely that it is
only a coincidence that 75% of the residents of Ramsey County's family sheiter aze
African American.
Perhaps the greatest barrier to escaping homelessness is the severe shortage of low
income, affordable housing. This condition places additional pressure on emergency
shelter and iransitional housing programs. Alleviating the housing shortage would not
only impact homelessness, but also it would benefit economic development and growth in
the city and county, since the labor shortage is having a widely acknowledged effect on
the ability of azea businesses to maintain and expand production and there is widespread
agreement that stable housing and a stable labor force aze closely linked. Moreover,
empirical evidence has shown that children's school performance declines significantly in
proportion to the instability of their living conditions.
9�1
Homelessness in Ramsey Cou_n�t
Last yeaz, about 3,600 people sought refuge in emergency homeless shelters in the
City of St. Paul and Ramsey County. One-quarter (or nearly 900) were children.
Approximately 150 persons in families were unable to be sheltered due to lack of space.
A total of 2,800 women and their children required the use of battered women's shelters.
Further, the Wilder Research Center estimates that, statewide, about 10,000
unaccompanied youth experience at least one episode of homelessness during the yeaz_
Transitional housing use has increased steadily over the last several years, due in
part to some added capacity to meet great demand. More than 1,000 persons, almost
three-quarters of whom were family members, accessed transitional housing last year.
There is a need for nearly 800 additional units.
The composition of the homeless population in Ramsey County is not
homogeneous. Single adults, families, unaccompanied youth, veterans, victims of
domestic violence, and persons of virtually every race and ethnicity ail count themselves
among the homeless. The fastest growing homeless group, however, is women and
children. In addition, the percentage of homeless persons who aze employed has
increased over the last several years.
The Plan
Recognizing and responding to these concerns, the St. Paul City Council and the
Ramsey County Board of Commissioners, in 1996, jointly endorsed a planning process
designed to assess the state of affordable housing and the homeless services delivery
system in the community, and devise a plan to address the gaps identified.
The result of this joint planning effort is this St. PauURamsey County Five-Year
Low Income Housing and Homeless Services Report and Plan. Developed on a
pazallel, and sometimes intersecting, track with the City of St. PauPs Comprehensive
Housing Plan, the Five-Yeaz Plan presents a series of recommendations grouped under
grouped under four broad categories: (1) Homeless Prevention; (2) Shelter and
Housing; (3) Homeless Services; and (4) Funding.
ii
Prevention
The recommendations around homeless prevention involve:
. The coordination and e�ansion of exisUng services to establish
a program to assist tenants and landlords so that families are
not forced into homelessness;
• The increased coordination of agencies and systems providing
services to youth;
• The continuation and expansion of efforts to reduce disparities
in housing and homeless services provided to people of color;
and
• The establishment of a Statewide Homeless Prevention Planning
Council.
Shelter and Housin�
The recommendations around shelter and housing involve:
• The provision of emergency shelter with a family reunification
focus for unaccompanied youth;
• The development of additional emergency shelter options for
homeless youth when family reunification efforts aze
e�chausted;
• The development of a 10-bed shelter for minor parents and
their children;
• The development of 100 units of transitional housing for single
adults, 100 units of transitional housing for families, and 50
units of transitional housing for youth;
• The development of 400 units of permanent supportive housing
for single adults, 200 units of permanent supportive housing
for families, and 50 units of permanent supportive housing for
youth;
iii
� 9-a�o
• The support of continued legislative funding dedicated to the
preservation of existing federally subsidized low income
housing;
• The establishment of a joint city/county policy to preserve
e3usting nonsubsidized low income housing stock;
• The creation of an Affordable Housing Owners Advisory Group;
• The development of private market low income housing
throughout the city, county and region by:
* Adopting a mixed-use, m�ed income policy;
* Tapping the resources and expertise of the business
community;
* Urging the legislature to establish stronger incentives to
improve the effectiveness of the Livable Communities Act;
and
* Supporting the goal of Habitat for Humanity to doubie its
production capacity in Ramsey County;
*
HOMELESS SERVICES
The recommendations azound homeless services involve:
• The increase of the capacity of agencies to deliver basic services
essential to breaking the cycle of homelessness;
• The provision of more intensive case management, counseling and
financial management services;
• The development of inechanisms to improve linkages between
property owners and social service providers;
• Urging all types of housing developers and homeless service
providers to seek partnerships with veterans service organizations;
• Providing or finding outside funding to. increase the hours and days
that youth drop-in centers are open;
iv
• Assessing the feasibility of creating a centralized system of intake,
assessment and record keeping;
• Seeking mechanisms to ensure that cultural competency training is
given to service providers;
• Seeking mechanisms to ensure tk�at necessary technical and financial
resources are provided to agencies of color.
Fuading
OnIy one recommendation is listed under this category, but it is perhaps
the most critical to the success of the plan. A wide variety of federal, State, local and
private enfities distribute a number of different grants. What is needed is a mechanism to
increase coordination and avoid duplication among the various funders and, using the
Five-Yeaz Plan as a guide, direct funding appropriately to address the hierazchy of
priorities. Creation of a Funders Council to work in concert to make sure that a coherent
system of allocating grants is established in which targeted proposals are solicited and
appropriafions are packaged, to the e�ent possible, to azeas idenrified as priorities under
the Five-Yeaz Plan. The effective operation of the council would, in addition, result in a
streamlined process for applicants. Through the establishment of this body, enormous
strides could be made in coordinating funding; avoiding duplications, conflicts or gaps in
funding; ensuring the most efficient use of financial and staff resources; and simplifying
the system for organizarions seeking funding.
The Five-Year Plan is an ambitious, yet achievable blueprint far
addressing both the symptoms and underlying causes of homelessness in our community.
It presents a strategy to prevent homelessness, assist those who are or will become
homeless, and fill the needs for and narrow the gaps in low income housing and homeless
services..
v
99-a�o
Chapter I
INTRODUCTION
Homelessness continues to plague both its victims and the community as a whole
despite the efforts of dedicated local, State and national funders, service providers,
elected officials and advocates. Between 1991 and 1997, an estimated 30,000 different
persons accessed emergency shelters, battered women's shelters, and transitional housing
programs in Ramsey County.' Here, as elsewhere, a constellation of issues -- some
economic, some personal -- underlie the persistent prevalence of homelessness. These
issues include poverry, mental illness, chemical dependency, domestic violence, racism
and discrimination, and, perhaps most importantly, the severe shortage of affordable
housing.
Recognizing and responding to these concerns, the St. Paui City Council and the
Ramsey County Board of Commissioners, in 1996, jointly endorsed a planning process
designed to assess the state of low income housing and the homeless services delivery
system in the community, and devise a plan to address the gaps identified.
This St. PauURamsey County Five-Year Low-Income Housing and Homeless
Services Repart and P[an (the Five-Year Plan ar the Plan) is the result of a coordinated
City/County effort, involving wide-ranging quantitative and qualitative reseazch,
conducted by and under the direction of an Oversight Committee, with the assistance of
several consultants, and the input from interested individuals and organizations.
' Wilder Research Center, Emergency Shelters, Transitional Housing, and Battered Women's
Shelters Data Collection Project, Seventh Annual Report (St. Paul: Amherst H. Wilder
Foundation, June 1998), p. iv.
Appendix A contains a list of the members of the Oversight Committee. The Family
Housing Fund provided financial support for the planning initiative, while the Corporation
for Supportive Housing provided administrative support during the planning process.
Consultant Eric Grumdahl was responsible primarily for compiling the quantitative data,
while the consulting firm Biko Associates, Inc. handled the qualitative data gathering
effort. Appendix B contains a description of the data sources and research methodology.
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Five-Year Plan, which addresses housing needs for low-income citizens and
the service needs for the county's homeless population, has been developed on a parallel,
and sometimes intersecting, track with the City of St. PauPs Comprehensive Housing
Plan, which looks at the full range of housing needs for all income levels.
In examining the underlying causes of homelessness, the housing shortage,
especially for people with incomes lower than 50% of the federal poverty Ievel, rises to
the top as the primary need to alleviate some of the pressure on working families and on
shelter providers.
Alleviating the housing shortage would not only impact homelessness, but also it
would benefit economic development and growth in the city and county, since the labor
shortage is having a widely aclrnowledged effect on the ability of azea businesses to
maintain and expand production and there is widespread agreement that stabte housing
and a stable labor force aze closely linked. Moreover, empirical evidence has shown that
children's school performance declines significantly in proportion to the instability of
their living conditions.
The Plan, in coordination with the City of St. Paul's Comprehensive Housing
Plan, proposes an overall housing strategy that combines preservarion and the
development of a mixed-income, mixed-use housing throughout the county.
The Five-Yeaz Plan contains a series of constructive, sometimes innovative
proposals. Many build on successful models that are already in place here or that have
been demonstrated to work elsewhere. The Plan represents an ambitious, yet pragmatic
blueprint designed to:
1) Help people and fanulies who aze homeless
or at risk of homelessness take control of
and responsibility for their lives and improve
their standazds of Iiving; and
2) Promote ways to increase opportunities
for homeless and low-income persons
to obtain affordable housing throughout
Ramsey County.
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
99 �°
Organization of the Report and Plan
The neact portion of this chapter contains a discussion of key trends identified
during the data gathering and reseazch portion of the planning process. Chapter II
describes the organization of the homeless service delivery system currently in place in
Ramsey County. Among the subjects covered are the Continuum of Care model;
emergency, transitional and permanent supportive housing capacities; a discussion of
homeless services; and how funding for programs aimed at homeless prevention and
assistance is presently coordinated.
Chapter III presents a thorough description of homelessness in Ramsey County. It
describes the various segments of the homeless population, discusses the many causes of
homelessness, including the low income housing shortage. Findings of the data gathering
effort and other research aze interspersed throughout this section.
Chapter IV, the final section, presents the recommendations that comprise the
proposed St. PauURamsey County Five-Year Low Income Housing and Homeless
Services Plan.
Key Trends
Three key socioeconomic and demographic trends were identified from the
reseazch conducted. They aze as follows: (1) poverty is on the rise and the income gap
between rich and poor is widening; (2) the percentage of homeless persons and families
who are working is growing; and (3) job and population growth will continue, which in
turn will increase the demand for even more affordable housing. These trends aze
discussed in more depth below.
3
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
♦ Poverty is on the rise and the income gap is wideninge
Countywide, a total of 54,000 people aze poverty-stricken; in the City of
St. Paul, more than 44,000 people (neazly 17%) live in poverty. Regardirig the
gap between rich and poor, "the disparity between the richest 20 percent and the
poorest 20 percent of families with children [Statewide] grew by 43 percent
between the late 1970s and mid-1990s, according to the Center for Budget and
Policy Priorities."
It is estimated that, in the City of St. Paul alone, there aze currenfly, 5,000
renter households in especially dire housing straits in that they aze either paying
more than half their income for housing or are living in extremeIy substandard
housing.
♦ The percentage of the hometess who are working is growing.
The percentage of homeless persons and families with full time or part
tune jobs is increasing. T'he Wilder Reseazch Center reports that, between 1994
and 1997, the percentage of homeless people employed around Yhat State
increased 30%; since 1991, the percentage rose almost 80%. At the same time,
however, "income generated from this employment is often not adequate to
support the cost of mazket rate housing." 6
' United States Census Bureau, 1990 U.S. Census Data, Database C90STF3A; available from
http://venus.census.gov/cdrom/lookup/901296831; Internet, accessed Ju1y 24, 1998 and United
States Census Bureau, 1990 U.S. Census Data, Database C90STF3A; available from
http://venus.census.gov/cdrom/lookup/901297528; Internet, accessed July 24, 1998.
° Joel Sawyer, "Gap between Minnesota rich, poor grew by 43%, group says," Star Tribune,
December 17, 1997; available from hYtp://webservl.startribune.com/cgi-bin/stOnLine/
article?thisStory=45530254; Intemet, accessed December 17, 1997.
' Kevin Diaz, "Low-income housing plan is raising questions," Star Tribune, July 28, 1998, p.
10. Housing is generally deemed affordable if it accounts for no more than 30% of household
income.
6 Wilder Reseazch Center, Minnesota Statewide Survey ofPersons Without Permanent
Shelter, Volume I: Adults and Their Chi[dren (St. Paul: Amherst H. Wilder Foundation, June
1998), p. xii.
n
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�9-a�o
♦ Continued job and population growth will necessitate the development
of even more affordable units.
Indications aze that the local economy will continue to prosper. Job
growth is expected to continue. Along with an expanding economy comes a need
for an expanding and stable workforce, for which housing stability is the linchpin.
Over the next few yeazs, the pressure to develop more low income housing,
presently in short suppiy, will only increase.
5
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�9-a�o
Chapter II
THE CURRENT SYSTEM
The Continuum of Care
Services to homeless individuals and families in Ramsey County are supplied
under a"Continuum of Care" model developed by the U.S. Department of Housing and
Urban Development (HUD) and designed to assist homeless persons to become self-
sufficient. The model identifies types of housing required at various stages of need for
individuals and families. The continuum comprises a series of progressive steps from
shelter to transitional housing to permanent housing, and includes supports where
necessary.
The components of the "Continuum of Care" may be diagrammed as follows:
Outreach
Intake
Assessment
� � �
Emergency Transitional Permanent
Shelter �` Housing — Housing
(with or without supports)
�
Permanent
Supportive
Housing
�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
HOUSING
Emergency Shelter
Emergency shelter is last resort housing. It is typically available to an individual or
family for no more than 30 days. In general, Ramsey County provides emergency shelter
services for families, while nonprofit organizations provide emergency shelter for single adults
and unaccompanied youth.
According to the most recent homeless survey, a combined total of 161 emergency
shelter beds are avai►able for single adults, families and unaccompanied youth.' About 56% of
the total capacity is available for single adults, 34% for families, and 10% for youth.
Chart 1. Emergency ShelYer Capacity
100
80
60
40
20
0
_ �
Single Adults Persons in Families Unaccompanied
Youth
Source: Wilder Research Center, Emergency Shelters, Tranritional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
WIlder Reseazch Center, Seventh Annual Report, p. 53. For families, the 55-bed capacity
reflecu the space available at the county-sponsored sheltec The St. Paul Area Council of
Churches operates an overflow service, general[y from June to October, altfiougfi in recent
years the churches have provided this service through Mazch or April. In addition, when
available, overflow shelter space is provided at the Naomi Famity Center, which is now
primarily used for Ransirional housing.
�1
St, Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
�4 a�o
In 1997, the Ramsey County Board of Commissioners resolved to build a new
Family Service Center, keeping capacity at its current level. The board moved
proactively upon ]earning that the current faciiity used to temporarily house families will
be unavailable when its lease expires on December 31, 2000. The Board's action not
only averted the potential loss of essential family shelter, but also creates the opportunity
to develop a higher quality service centerto replace the present facility.
On a parallel track, the Ramsey County Board of Commissioners and the United
Way of St. Paul have led an effort to mobilize private sector and charitable organizations
around the issue of homelessness. A fundraising campaign is under way to assist the
County in its mission to provide family shelter services and to find long-term solutions to
the vexing problem of homelessness.
Transitional Housing
Transitional housing is intended to serve individuals and families requiring stability and
support services. This type of housing is typically operated by nonprofit organizations, ofren
with financial support from federal, state or local grants, and provides lodging for a limited
period, generally no more than 24 months. Eligibility for these facilities frequently requires
residents to be working or in school. Most programs also require participants to remain chemical
free.
"1998 Ramsey County Honsing and Service Inventory Survey" (the 1998 Ramsey
County Survey), shows a total capacity of 665 transitional housing beds. The overwhelming
majoriTy of available space (about 74%) is reserved for families.
Eric Grumdahl, "1998 Ramsey County Housing and Service Inventory Survey"
Minneapolis: Corporation for Supportive Housing for the St. PauURamsey County Five-
Yeaz Plan Oversight Committee, May 1998). The survey was distributed to approximately
150 service providers in Ramsey County. The resuits of this effort provide the basis for the
recommendations contained in the Five-Yeaz Plan.
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 2. Transitional Housing Capacity
Source: Eric Grumdahl, "t998 Ramsey Counry Housing and Service Invenroty Survey."
Permaaent Supportive Housing
Permanent supportive housing combines residency wiih a strong system of
ongoing supports. This is a model that has proven successful in moving people with
chronic physical or mental problems out of homelessness. In fact, a recent study of
permanent supportive housing programs operaring in Ramsey, Anoka, Dakota and
Hennepin Counties found that, especially for the mentally ill or chemically dependent,
tlus type of housing can offer a cost-effective alternative to the "cycle of homelessness,"
which generally involves more expensive institutional caze settings.
According to 1998 Rarnsey County Survey, a total of 634 permanent supportive
housing units is available in the County, about 55% of which aze reserved for single
adults, 45% for families.
9 Terry Tilsen, Minnesota Supportive Housing Demonstratian Program One-Year Evaluation
Report (St. Paul: Wilder Reseazch Center, June 1998), p, ii.
E
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Families Atlults Youth
99-a�o
Chart 3. Permanent Supportive Housing Distribution
Source: Eric Grumdahl, "1998 Ramsey County Housing and Service Inventory Survey."
SER V/CES
Homeless persons in Ramsey County receive an assortment of services that
are offered by government, nonprofit or foundation providers. Services include:
assessment; benefits coordination; case management; companion services;
counseling; emergency/crisis assistance; financial management skills training;
food/clothinglfurniture; housing placement; information and referral; life skills
training; medical and mental health care; outreach; substance abuse treatment; and
transportation. Not all persons who are homeless require all services available.
The appropriate package of services must be assembled to address Yhe
particular set of baniers that any one individual or family face to finding housing
and achieving both stability and self-sufficiency. The 1998 Ramsey County Survey
10
St. Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Repor[
and Plan
inventoried the services provided to homeless singie adults, persons in families,
and unaccompanied youth. The results indicate some areas of strength and other
areas ihat call for additionat resources.
A particularly striking finding involves the racial composition of service
users in Ramsey County. The survey found that, on average, whites make up a
disproportionately high percentage of users of service, especially compared with
the proportion of shelter and transitional housing users they represent. For
instance, though they comprise 33% of those entering shelter, white persons use
89% of all life skills training services available for the homeless population.
Homeless Native Americans and Hispanic persons receive no life skills training
whatsoever.
Another significant finding involves the frequency of service usage in some
categories. The survey indicated that, for those homeless persons who receive an
assessment, each receives, on average, seven per year. In contrast, there appears to
be a substantial shortage of case management, counseling and financial
management services available; on average, each homeless person or family
receives only about six hours of case management, six hours of counseling, and one
hour of financial management services per year.
Discussions with currently and formerly homeless individuals brought the stark
realities of their everyday life into sharp focus. What most of us take for granted — such
as food on the table, ease of transportation, roomfuls of furniture — can be beyond the
reach of those with little or no means who aze in shelter or searching for a place to call
home. Services that provide these basic necessities aze essential to the reintegration of the
already homeless back into the mainstream, and the prevention of future episodes of
homelessness.
10 Case management is defined as a systematic process of ongoing planning, referral, service
coordination, consultation, advocacy, and monitoring through which multiple service
needs of clients are addressed. Counseling is defined as the provision of therapeutic
processes on personal, family, situational or occupational problems. Financial
management is defined as assistance — including consumer education, debt adjustment,
financial counseling, protective and vendor payments — to help individuals or families
manage their income so that they aze able to obtain the greatest amount of economic
stability. Of course, individual programs may provide more intensive hours of any or all of
these services.
11
St. Paul/Ramsey CounTy
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9q-a�o
For fanulies with mazginal incomes, access to a food shelf can mean the
difference between paying the rent and winding up homeless. Employment is the key to
maintaining stable housing, but if transportation is unavailabie or unaffordable, then the
lack or loss of income can shatter the tenuous hold a family may have on housing
stability.
Funding for Low Income Housing and
Homeless Services and Programs
Government, nonprofit and chazitable funders of housing and homeless services
programs all regulazly distribute a variety of grants. Available sources include the annual
HIJD McKinney Continuum of Care grants; the Section 8 Certificate and Voucher
Program, administered by the St. Paul Public Housing Agency and the Metropolitan
Council; federal Emergency Shelter Grant; the federal Department of Education's Title I
Program for Homeless Children and Families; the annual Federal Emergency
Management Agency's Emergency Food and Shelter Grant; the federal Community
Development Block Grant funds that aze provided to both the City of St. Paul and
Ramsey County; a number of Minnesota Housing Finance Agency (MHFA), including
the Family Homeless Prevention and Assistance Program (FHPAP) grants; several grant
programs administered by the Minnesota Department of Children, Families and Leaming;
several grant programs administered by the Minnesota Department of Human Services;
annual County appropriations for family shelter operations; several Metropolitan Council
programs; and assorted private and nonprofit contributions.
Often, these funders operate in a vacuum, establishing individual proposal rating
and grant disbursement processes each and every time funds become available.
Applicants often respond to many or a11 requests for proposals, while the funders are
generally unaware of which programs received what funding. The current system fosters
inefficient use of human and monetary resources.
In the past, attempts haue been made to connect some of the funders. In fact, this
planning effort resulted in part from a recommendation made by a group known as the
Homeless Implementation Task Force, which included among its membership the Family
Housing Fund, HUD and MHFA. These informal attempts at coordination were a step in
the right direction. However, there now is a critical need for a formal and comprehensive
12
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
mechanism to connect the funders, increase communication among them, and better
direct the funding sVeams to ensure that the dollars provided for the homeless services
delivery system are expended in the most efficient manner possible, that duplication is
avoided, and that funding is appropriately matched to the hierazchy of needs.
Acc�uisition of Pro�erties
It is now widely accepted that the Twin Cities aze facing an affordable housing
crisis. The current shortage of units affordable to low-income people makes the
preservation and prodaction of the units that do exist all the more vital. One serious
roadblock to preservation and production is the lengthy and often cumbersome process by
which abandoned, foreclosed, and taz� forfeiture properties transfer to prospective
developers. The smoother the transfer process, the faster properties can pass from
governmenY into the hands of private or nonprofit developers, and the faster additional
units can be generated. Further, the lesser the transaction costs, the greater the incentive
for the private mazket to redevelop properkies into low income or mixed use residences.
New Develo�ment
Financing is one of the keys to increasing the stock of affordable housing. Partly
because of their administrative ease, tax incentives have traditionally been seen as the
foremost spur to production. However, it may be argued that such incentives have not
been sufficient to persuade the private mazket to produce enough low income housing to
meet current demand.
Other approaches aze needed. New ideas, such as providing greater access to
government financing by nonprofit developers or creating subsidy pools tt�rough the real
estate tax surcharges, deserve a chance to be tested.
In addition, the issue of mixed use housing must be addressed. New housing is
most often geazed to a particular income bracket, despite the fact that housing analysts
13
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9'9-a��
generally agree that new development, both rental and ownership, should meet a range of
lifestyle needs and provide units that are affordable to families across a range of incomes.
The creation of income-integrated developments that can accommodate single families
and individuals, lazger families, and people with disabilities would break the current cycle
of development that perpetuates the concentration of pover[y, an economic condition
disfavored by policy makers, law enforcement officials and community residents alike.
14
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�i9-ac�o
Chapter III
HOMELESSNESS IN
RAMSEY COUNTY
i:. ,� � ��
Last yeaz, about 3,600 peopie sought refuge in emergency homeless shelter5 in the
CiTy of St. Paul and Ramsey County. One-quarter (or neazly 900) were children. The
1998 Ramsey County Survey identified 150 people in families who were unable to be
sheltered due to lack of space. An additional 2,800 women and their children zequired
the use of battered women's shelters." (See Charts 4 and 5, below.) In addition, there
has been a sharp and alarming increase in the number of unaccompanied youth seeking
shelter on any given night in Rainsey County.
Chart 4. Emergency Shelter Use in Ramsey County,
Singie Adults and Families, 1997
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housrng, and
Battered Wa�nen's Shelters, Seventh Annua/ Report, June 1998.
" Wilder Reseazch Center, Seventh Annual Report, pps. viii, x.
15
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 5. Battered Women's Shelter Use,1997
pWomen
■Children
Source: Wilder Reseazch Center, Emergency Shelters, TransitionalHousing, and
Battered Women's Shelters, Seventh Annua[ Report, June 1998.
Taansitional housing use has increased steadily over the last several years, due in part to
the addition of capacity to meet gowing demand. As showre below, more than I,000 persons,
almost three-quarters of whom were part of families, accessed transitional housing last year. The
1998 Ramsey County Survey identified a need of nearly 800 additional units.
Chart 6. Transftional Housing Use in Ramsey County,1997
Source: Witder Reseatch Center, Emergency She[ters, Transitiona! Housing, and Battered
Women's She[ters, Seventh Annua[ Report, June 1998. �
16
St. PaulBamsey County
FivaYear Low-Income Hoasing
and Homeless Services Report
and Plan
Families Females Males
q �-a�o
Emotional stress provides an additional burden for those who aze homeless.
Focus group participants described the following experiences as weighing heavily on
their emotional stability: anxiety stemming from being unsettled; anguish of watching
children unable to make and keep friends or who are the subject of abuse from
schoolmates and others; frustration with losing control of one's life; feelings of low self-
esteem; discomfort at being seen as different; and exasperation with being treated
disrespectfully.' For some, homelessness is a recurring experience. For others, it is both
a last step and a first step, the end of a cycle of despair and the beginning of a journey to
self-sufficiency.
Who are Ramsey County's Homeless?
The composition and chazacteristics of the homeless population in Ramsey
County is as varied as the causes of homelessness aze complex. Significant increases
have been noted in the appeazance of women and children in emergency shelter and
transitional housing, while the numbers of women and children accessing battered
women's shelters have been steadily rising. According to the Minnesota Department of
Children, Families and Learning (CFL), children now comprise 47% of those being
sheltered Statewide, twice the number they represented a decade ago. Further,
"[c]ompared to eazlier this decade, last year's emergency shelter population overall [in
Ramsey County] is...receiving or earning slightly more income....i
12 Biko Associates, "Report on Outreach Activities," (Minneapolis: Biko Associates, December
31, 1997), p. 32.
" Wilder Research Center, Seventh Annual Report, p. iv.
14 Kimberly Hayes Taylor, "Empty-promise land," Star Tribune, February 22, 1998, p. A8.
15 Wilder Reseazch Center, Seventh Annual Report, p. v.
17
St. PaullRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
a�d Plan
Who aze Ramsey County's homeless? They are people without resources and
support networks. They are single adults, many of whom have served their country in the
armed forces. They are families that have lost their housing due to eviction,
condemnation or the loss of utility service. They aze unaccompanied youths who cannot
remain in or return to their homes. They are women and children fleeing abuse, violence
and poverty, seazching for better jobs and better lives. Some struggle with mental illness
and drug and alcohol use. They aze from all races and ethnic backgrounds. And four out
of five aze from Ramsey County or elsewhere in Minnesota.�
SINGLE ADULTS
Single men and women comprise more than three-fifths of all those accessing
emergency shelter. The housing and service use patterns of single adults confirm that this
group comprises most of the hazdest to stabilize. More than four in ten single males will
require multiple shelter stays, an increase of almost 16% over the past two yeazs."
African Americans account for 54% of the single adult females and 44% of the
single adult males who enter emergency shelter in Ramsey County. Slightly more than
one-third of the single adult homeless population is white. Hispanic males constitute a faz
lazger proportion of the single adult male homeless population (16%) than they do of the
single adult female population (1%). Native Americans account for 4% and 3% of the
female and male single adult populations, respectively. The table below provides a racial
and ethnic breakdown of the single adult homeless population in Ramsey County.
16 Ibid.
" Ibid., p. iv.
L�'.3
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
�q a�o
Table 1. Females and Males Alone Entering Emergency Shelter,1997
Females Alone Males Alone
African American 54% 44%
White 38% 36%
Hispanic 1% I6%
Native American 4% 3%
Asian and other populations 2% <I%
Source: W ilder Research Center, Emergency Shelters, Transitional Housing, and Battered
Women's Shelters Data Collection Project, Seventh Annual Report, June 1998.
A dramatically different picture emerges when ]ooking at the race of single adult users of
transitional housing. While about half of the single adult users of emergency shelter are African
American, on average only about one in six single adult users of transitional housing is African
American.' The following compazative graph is illustrative of this pattern.
Chart 7. Comparison of Single Female Emergency Shelter Users
with Single Female Transitional Housing Users,1997
�African Americans
�Whites
Source: Wilder Reseazch Center, Emergency She(ters, Transitional Housing, and Battered
Women's Shelters Data Collection Praject, Seventh Annual Report, June 1998.
' Ibid., p. 27.
19
St. PauURamsey County
Five-Year Low-Income F3ousing
and Homeless Services Report
and Plan
Emergency Transitional
Shelter Housing
There is also a significant differential between those of Hispanic descent who use
shelter and those who use transi6onal housing. Twelve percent of all adult shelter users
aze Hispanic; however, Hispanic adults accessing transitional housing account for only
2% of the total.
With respect to the use of homeless services, the 1998 Ramsey County Survey
revealed the following facts that inform the recommendations:
♦ Single adults use the vast majority (88%) of services provided
to homeless people, despite the fact that they use only 36% of
the housing. capacity for homeless and low-income persons.
The most heavily accessed services include: case management;
food/clothing; life skills training; and mental health services.
♦ Single adults receive only about one-third (33%) of financial
management services provided to homeless persons in the
County.
Participants in a focus group consisting of single adults, convened as part of the
plauning process, voiced fiustration at the lack of affordable private market housing and
the long waiting lists to get into public housing." Additional findings from that same
focus gmup revealed that, for single men in particuiaz, estranged families, a physically,
emotionally and/or sexually abusive adolescence, and alcohol and drug dependencies aze
especially common?
19 $iko Associates, p. 38.
20 Ibid.
20
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
g4-a��
Homeless Veterans
Veterans — many of whom are dealing with Post-Traumatic Stress Disorder
resulting from their military experiences — comprise an estimated 13% of the homeless
population, according to the latest Statewide survey?' About 270 new homeless veterans
are served each yeaz in the metropolitan azea. The vast majority aze males; many aze
mentally ill and/or chemically dependent. For many veterans, alcohol and drug abuse
surfaced during or were exacerbated by military service, especially far those who served
during the Viemam era. (Vietnam veterans now comprise the largest percentage of
homeless veterans.)
Homeless men who aze veterans shaze a common history of childhood instability.
They also aze more wlnerable than their non-homeless counterparts..
A recent study revealed that homeless veterans under 55 years of age face a two times
greater risk of death — and those over 55 years old a four times greater risk — than do
non-homeless veterans.
Further, recent events have made access to services for homeless veterans more
difficult. Due to an accelerating trend towazd downsizing of VA facilities, homeless
veterans face greater competition for VA services. In addition, the shift in emphasis at
Veterans Affairs from inpatient to outpatient services has created roadblocks for those in
need of services.
Z' W ilder Research Center, Minnesota Statewide Survey of Persons Without PermanenP
Shelter, Volume I: Adults and Their Children, p. xi.
ZZ As reported by the Health Care for Homeless Veterans Outreach Team, which, on a
rotating basis, travels to various locations (including Dorothy Day Center in St. Paul) to
serve the health needs of homeless veterans.
" Marcia Martin, Heading Home: Breaking the Cycle of Homelessness Among America's
Veterans (Veterans Affairs: Veterans Affairs Northeast Program Evaluation Center, February
1997), Executive Summary.
21
St. Pau]/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Persons with HIV/AIDS
While single adults comprise the bulk of those who aze both homeless and living
with HIV/AIDS, the disease affects homeless families and youth as weIl. In fact, the
fastest growing group among the homeless population with HIV/AIDS is families, the
group for which housing is the most difficult to find. There is also an emerging problem
among homeless youth who are at risk of contracting the disease.
Serving this population presents special challenges. The need for stable housing
for people with HIV/AIDS is underscored by several factors. First, because successful
and preventative care for people with HIV/AIDS requires adherence to a complex and
highly regimented treatment plan — involving the ingestion of dozens of pills every day,
each with unique dietary requirements and timetables — having a stable home can mean
the difference between life and death. Second, the success of new therapies is enabling
HIV/AIDS patients to live longer, which, in turn, is increasing the need for housing for
this population. Finally, due to the need to remaui in close proximity to health caze and
the dangers inherent in extended travel, geographic restricrions may foreclose suburban
housing options for people with HIV/AIDS.
Cleazly, housing presents a serious problem for persons with this disease. In a
recent survey, conducted for the HIV Housing Coalirion, 45% of the respondents had
experienced homelessness and 14% were currently homeless? Transitional housing
opUOns aze generaIly limited, since such housing is primarily geazed toward families.
According to advocates, increased low income housing options and increased availability
of housing subsidies, intensive housing iniervenUOn services, and emergency housing
assistance, in that order, are the top priority needs for the HIV/AIDS homeless
population.
As a general matter, homeless people with HIV/AIDS receive about 3% of the
total homeless services provided (The percentage of the homeless population that people
with HIV/AIDS comprises is unlrnown.) However, the 1998 Ramsey County Survey
Z " Steven Gray, "HIV Housing Needs Assessment Update: A Report to the HIV Housing
Coalition" (Minneapolis: Steven Gray and Associates, February 1997), p. 5.
'� HIV Aousing Coalition, "Recommendations to the Minnesota Housing Finance Agency for
the 1998 RFP Funding Process," May 21, 1998, p. 6,
ZZ
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
gq-a��
indicated that over one-half (52%) of all assessments and about one-third (32%) of
benefit coordination services available for the homeless were provided to this population.
At the same rime, it appeazs from the survey results that other, much needed
homeless services — such as companion services and life skills training — aze less
available. For instance, only 13% of the available companion services and virivally no
life skills training available to homeless persons are reported as going to people in this
group.
FAMILIES
According to the latest Statewide Wiider Research Center survey, "{w]omen and
children represent the fastest growing segment of the homeless population.i The
shortage of housing for homeless families in general, and for large families in particulaz,
is especially acute.
In 1997, more than 1,300 persons in families (more than 900 of whom were
children) accessed emergency shelter in Ramsey County; the median length of stay was
about 12 days. Z '
Of particulaz significance is the fact, though they account for only about 6°!0 of the
entire Ramsey County population, African Americans represent about 75% of the
emergency family shelter population and almost 60% of residents in battered women's
shelters. A comparison of shelter entrants, by race, is shown below.
26 Wilder Reseuch Center, Minnesota Statewide Survey ofPersons Without Permanent
Shelter, Volume I: Adults and Their Children, p. xi.
2 ' Wilder Research Center, Seventh Annual Report, pps. 1, 20.
L►�C3
SL Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Chart 8. Race of Adults with Children Entering Emergency Shelter,1997
so^�
�o^i �a^io . . ..
_.....
_.
60%
500� . " � - - - ' -
- > -�: ,- _,: : - ':: ... . _ _ _- .
400� — -
30% :. .� • ::
20% , �. 't795.,__. _ _ . _ : , _ .
� .: . .: .: :..:. .. . a __ 3 ,� . �. . _
10%
0%
- - � . ' � 2°/n
Af. Am. White Nat Am. Hispanic Other
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
Chart 9. Race of Children Entering Emergency Shelter,1997
so^/
�o%
eo io
so^i
ao�o
30%
20%
10%
0%
Af. Am. White Nat Am. Hispanie Other
Source: Wilder Reseazch Center, Emergency Shelters, Transitional Housing, and
Battered Women's Shelters, Seventh Annual Report, June 1998.
24
St. Paul/Ramsey County
Five-Year Low-Inwme Housing
and Homeless Services Report
and Plan
99-ac�o
The Wilder Reseazch Center's Seventh Annual Report on Emergency Shelters,
Transitional Housing, and Battered Women's Shelters echoes focus group findings
concerning the reasons families find themselves in shelter. Often, a combination of
circumstances lead to a shelter stay. The lack of affordable housing, a personal or family
crisis, and economic distress aze the foremost reasons cited by families as causes of theu
homelessness. Domestic abuse is also a key contriburing factor to homelessness among
wamen and their children.
Other key fmdings of the 1998 Rainsey County Survey with respect to families
are as follows:
♦ Families use seven out of every ten emergency shelter or
transitional housing beds.
♦ Despite their significant usage of emergency shelter beds and
transitional housing beds, families receive only about 11% of
the services provided to homeless people in Ramsey County.
♦ Families receive little employment skills training, job search
assistance and life skills education available to the homeless.
♦ Families receive nearly 70% of financial management
services provided to the homeless.
While the effect of homelessness on the family unit is, to say the least, stressful,
the well-documented impact of homelessness on children is devastating and dislurbing.
From an educational perspective, many studies confirm that mobility and instability at
school quickly lead to lower academic functioning and performance. As Anne B. Shlay
concludes, among the most disturbing effects of homelessness are the "long-term
consequences for the emotional and cognitive development of children....s
UNACCOMPANIED YOUTH
28 See, for example, A Report From The Kids Mobility Project (Minneapolis: March 1998), p. 3.
Z9 Anne B. Shlay, "Housing in the Broader Context in the United States," Housing Policy
Debate 6 (1995): p.703.
25
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Repon
and Plan
Youth homelessness is a phenomenon that has risen to alazming proportions in
Ramsey County as well as in the rest of the State. This increase is consistent with the
upwazd trend that has been evident for the last decade.
The Wilder Research Center reports Yhai, Statewide, there aze approximately 730
persons 17 years old or younger without permanent shelter on any given night, and,
"approximately 1Q000 Minnesota youth experience at least one episode of
homelessness" during the year. While the exact number of homeless youth in Ramsey
County is not known, with a total capacity of onty 16 shelter beds and siac transitional
housing units, there is cleazly a gap between the need for and capacity of emergency
shelter beds and transitional housing.
In contrast to the adult homeless population, familial problems are the single
greatest cause of youth homelessness. The Wilder Reseazch Center indicates that:
More than two-thirds of homeless youth report tt�at
someone in their immediate family — usually a parent — has
problems with drugs or alcohol. More than one-third report
that their pazent(s) will not allow them to retum home. The
majority (61 percent) of homeless youth have experienced
some form of out-of-home placement, such as foster caze or
residential treatment 3
Once on the streets, life becomes increasingly more difficult for homeless youth,
and they become increasingly vulnerable, facing a significantly higher risk of exploitation
and violence.
30 Witder Research Center, Minnesota Statewide Survey of Persons Without Permanent
Shelter, Volume 77: Unaccompanied Youth (St. Paul: Amherst H. Wilder Foundation, July
1998), p. v.
" Wilder Reseazch Center, "Minnesota's Youth Without Homes" (St. Paul: Amherst H.
Wilder Foundation, Mazch I94'7), pps. 2-3.
26
St. PauURamsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
��-a��
Homeless youth come from all races and ethnic backgrounds. The following
chart shows the ethnic and cultural composition of the homeless youth population,
Table 2. Racial and Ethnic Composition of Homeless Youth, Statewide
Source: Wi]der Research Center's Minnesota Statewide Survey ojPersons Without
Permanent Shelter, Volume II: Unaccompanied Youth, July 1998.
With respect to services, survey results indicate that, with the exception of
counseling and outreach, homeless youth receive a small portion of all homeless services
provided throughout the County.
More than shelter, however, is required to address the problems facing homeless
youth. As J.T. Fest, in Street Culture: An Epistemology of Street-Dependent Youth notes,
it takes more than providing basic necessities such as shelter, food, clothing and schooling
to stabilize homeless youth. Fest asserts that assisting young persons "transition `off the
street' is about helping them make conceptual (emphasis in original), not physical
changes." He insists that young people must experience attitudinal change or "they will
remain `on the street' regazdless of their environmentai circumstances.i
Thus, the provision of safe emergency shelter or transitional housing, combined
with intensive, culturally-sensitive case management designed to change attitudes and
belief systems, is the most effective means of reaching homeless youth.
32 J. T. Fest, Street Culture: An Epistemology ofStreet-Dependent Youth (1998), p. 9.
27
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Invisible Homeless
While Ramsey County possesses a relatively rich set of daYa on its sheltered
homeless population, a segment remains unsheltered. To gather information about this
"invisible" portion of the homeless population, interviews were conducted with outreach
workers and drop-in center staffs who work with adults and unaccompanied youth.
Those conversations yielded the following insights:
♦ Unsheltered homeless people in Ramsey County aze
mainly single men and women, especially those who
are ineligible or have not applied for a variery of public
assistance programs, such as General Assistance or
Social Security Disability Insurance.
♦ There is a shortage of shelter beds, so that even
when these individuals aze located it may not be
possible to refer them to available shelter.
♦ Homeless persons with serious mental illness are
often extremely distrustful of the shelter system, are
unwilling to comply with even simple requests for
information (such as a name or signature), and may
be willing to forgo shelter as a result of their
discomfort in providing information.
♦ For severely disabled homeless people, accessing
basic preventative help or crisis intervention may be
impossible without a trusted advocate to help them
to navigate the system.
♦ The experience of homelessness breeds further
homelessness.
s The tight housing market makes tenants with any
questionable marks on their rental history less
likely to find housing. The lack of affordabte
housing contributes to the invisible homeless.
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Five-Year Low-Income Housing
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♦ Many people become homeless upon discharge from
ireatment, hospitals or the corrections system, each
of which needs to do better and more extensive
dischazge planning with at-risk individuals.
Outreach workers and day center staff suggestthat successful approaches to
serving homeless people, especially those who are distrustful of the system, is
dependent upon providing service in a nonjudgmental, respectful, supportive, and
culturally-specific manner that recognizes the personal dignity of the client.
Causes of Homelessness
There aze many underlying causes of homelessness. Seemingly, there are an
equal number of myths. One widely held misconception is that people prefer to live
without permanent shelter. It is true that, for some, poor choices lead to the condition of
homelessness, but, as sociologists James D. Wright and Beth A. Rubin point out:
One common although profoundly wrong theory can be dismissed at
once...that the homeless are homeless by choice. The amplication of
this viewpoint is that homelessness results from an exercise of
personal will, not from mental illness, substance abuse, or an
inadequate supply of low-income housing...[I]n the overwhelming
majority of cases,
homeless people live as they do because they lack the means to live in
any other way, not because they have positively chosen a life of
destitution and degradation over some attainable alternative means of
living.
33 All conclusions derived from interviews conducted by Eric Grumdahl with directors or staff,
including outreach workers, of Union Gospel Mission, Listening House, the ACCESS
program, Catholic Charities' Dorothy Day Center, and Streetworks in connection with the
"1998 Ramsey County Housing and Service Inventory Survey."
'" James D. Wright and Beth A. Rubin, "Is Homelessness a Housing Problem?" Housing
PolicyDebate 2 (1991): p.953.
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Kim Hopper, a social scientist and the former president of the National Coalition
for the Homeless, suggests that the shift from a goods-producing to an information-
producing society and the exportation of labor-intensive jobs outside the country have
resulted in wage polarization. At the same time, he notes, federal support for new
construction of low-income housing has alI but evaporated. Thus, he concludes, "the
structural roots of the problem lie in the changes that have taken place over the past two
decades in the labor and housing markets in the United States...The upshot, terrifying in
its simplicity, is the contemporary delineator of homelessness: income insufficient to
afford available housing."
The Affordable Housing Crisis
Compazed with earlier in the decade, homeless persons in 1997 were "more than
twice as likely to find the lack of affordahle housing a barrier to having their own
place. This finding is indicative of what is now a generally accepted fact: that
Ramsey County (as well as the rest of the metropolitan area) is facing a serious affordable
housing crisis.
The lack of low income housing can lead to homelessness and keep homeless
persons from obtaining permanent shelter. Shelter residents aze forced to stay longer,
which, in turn, creates a bottleneck in the continuum of caze system. While the lack of
affordable honsing is but one of a number of causes of homelessness, as Wright and
Rubin observe, "every route out of homelessness must sooner or later pass through stable,
secure and affordable housing." 3 '
35 Kim Hopper, "Homelessness Old and New: The Matter of Definition," Housing Policy DebaYe,
2 (1991): p.770.
36 Wilder Reseazch Center, Seventh Annual Repart, p. v.
;' Wright and Rubin, pps. 938-39.
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• ♦ � .I
Availability
Housing options for the poor are becoming increasingly limited due to the
shortage of units. The foliowing section discusses public housing, the private rental
mazket and homeownership opportunities for income-stressed households.
PUBLIC HOUSING
The St. Paui Public Housing Agency (PHA) owns and manages over
approximately 4,300 federally subsidized rental apartment and homes throughout the
City, providing more than 10,000 people with decent, affordable, quality housing. The
average annual household income of PHA residents is about $12,000 for families and
$8,000 for hi-rise residents, or approxirnately 20% of the area median.
Approximately 3,400 households aze on the waiting list for public housing. The
waiting list for hi-rise units for single, elderly and disabled persons is relatively short
(housing is likely to be secured within three-to-six months). Families, however, must
wait between one and three years for an available unit. The annual turnover rate is below
20%, and the average stay in public housing is six to seven years.
Federal housing subsidies have declined so dramatically over the past decade that
no new public housing construction is anticipated in the City of St. Paul or elsewhere in
the County in the foreseeable future.
' The St. Paul Public Housing Agency reports that the area median income in 1998 is
$60,800 for a family of four and $43,600 for a single person.
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and Home(ess Services Report
and Ptan
••
THE SECTION 8 PROGRAM
Section 8 is a federal housing subsidy program administered locally by the St.
Paul Pubiic Housing Agency for privately-owned rental homes and apartrnents in the city,
and by the Metropolitan Council Housing and Redevelopment Authority (Metro HRA)
for rental units in suburban Ramsey County. There aze two principal forms of the
program: the Tenant-Based Program and Project-Based Program.
Tenant-Based Program
The PHA administers more than 3,400 Section 8 certificates and vouchers in St.
Paul, while Metro HRA administers more than 750 certificates and vouchers in suburban
Ramsey County. Participants aze responsible for finding privately-owned rental housing
which meets Section 8 program requirements (e.g., habitability standazds, rent
guidelines). When a tenant finds a property owner willing to accept Section 8, the tenant
pays approximately 30% of her/his income for rent and utilities, and the PHA pays the
difference -- the rent subsidy -- directly to the owner.
At any given time, 300-500 households are "shopping" with certificates and
vouchers issued by the St. Paul PHA for rental apartments or homes that will accept the
Section 8 subsidy program. Shoppers must use the certificates or vouchers within 120
days of receipt or else must turn them back to the issuing agency. The waiting list for
PHA Section 8 assistance ranges from 1,000 to 2,500; Metro HRA's current waiting list
is estimated to be 600 residents of Ramsey County.
Not all Section 8"shoppers" will fmd units within the allowed 120 days. The St.
Paul PHA reports that, in 1997, one-quarter of those obtaining certificates and one-fifth
" HUD sets "Fair Market Rent" limits for the Section 8 certificate program, currently $504
per month for a one-bedroom unit; $644 for a two-bedroom unit; and $872 for a three-
bedroom unit. The total cost of the rent, including utilities, cannot exceed those limits. The
Section 8 voucher program allows tenants to decide the amounts of income they wiil spend on
rent, since the subsidy amount is based on a fixed standard rather than on the rent of the unit
selected. A participant may spend more than 30% of income to rent a more expensive
apartment, or less than 30°/a if a less expensive apartment may be ]ocated. Tenant-based
Section 8 certificates and vouchers are "portable" (i.e., tenants can use them in another
jurisdiction).
32
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Five-Year Low-Income Housing
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and Plan
of those obtanung vouchers will be unable to "lease up," while Metro HRA reports that
only one in seven who receive either a Section 8 certificate or voucher will be able to
lease up.
The tight Twin Ciries rental market, combined with other factors, make it difficult
for families to find units where they can use their SecUon 8 assistance. Some families
reject the few available apartments because of their location, surroundings or condition.
Some properry owners refuse to accept Section 8 subsidies, due in part to their
dissatisfaction with both the requirements and limitations of the Section 8 program.
One study shows a 10% decline over the last two yeazs in property owners willing to
accept Section 8 certificates. 41
More specifically, racial discrimination appears to be a barrier for Section 8
participants to fmd housing. For example, Metro IIRA's most recent statistics reveal that
while 54% of its Section 8 certificates aze issued to people of color, these families aze
successful in utilizin those certificates only 34% of the time.
HiJD has proposed making available, nationwide, an additional 50,000 portable
housing vouchers to help families making the transition from welfare to work,
specifically where housing assistance is essential for obtaining or retaining employment.
However, it is uncertain whether increasing the availability of vouchers in this mazket
will alleviate the difficulties faced by low-income persons seeking housing.
Project-Based Program
Subsidies provided through the project-based Section 8 program aze building-
specific and remain with the property. Unfortunately, many low income housing units
available through this program may soon be lost. As many as 2,200 of these units in
40 For instance, some property owners perceive the paperwork to be inordinately burdensome.
Others would prefer that the issuing agency (i.e., St. Paul Public Housing Agency or Metro
HRA) have greater responsibility for Section 8 certificate holders when problems arise.
^' See Community Action for Suburban Hennepin, "The Ever Shrinking Market for Section 8
in Suburban Hennepin County" (Aopkins: Community Action for Suburban Hennepin,
October 1997).
42 Diane Stone, Metro HRA Grants Administrator, telephone interview, August 4, 1998.
43 As with the tenant-based program, recipients pay 30% of their income toward rent. The
program pays the difference.
33
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9�t-��o
Ramsey County aze at risk of conversion to market rate rentals, and therefore in jeopardy
of becoming beyond the reach of many of the families who now reside in them."'
PRIVATE MARKET RENTAL HOUSING
Simply stated, too many applicants vie for too few units in today's private rental
mazket. The metrowide rental vacancy rate "has fallen steadily from about 6.5% in 1990
to about 2 percent today — so low that it represents virtually full occupancy.s (At about
1%, the vacancy rate is even lower in the City of St. Paul.)
Demand for affordable rental units, especially in suburban communities, is being
driven, in part by Minnesota's robust economy and the dire need employers for workers,
especially those at the lower end of the income spectnun. Thus, the development of
housing affordable to low-wage workers may be seen as an economic development
strategy. For instance, a recent study by the Citizens League notes that:
Subwban businesses are having difficulty finding workers,
especially for low-skill positions, and the lack of
affordable housing in suburban communities is widely
cited as one of the responsible factors. The end result for
employers is poorer service, an inability to fill job orders,
and other problems that have a very real impact on the
bottom line for businesses.
00 Compiled from data supplied by the Minnesota Housing Partnership and Community
Action for Suburban Hennepin's report, "Privately Owned Federally Subsidized Housing in
Minnesota," March 31, 1998. The potential ]oss of these units as affordable housing is a
result of an opportunity for owners to prepay mortgages and, in doing so, opt out of the Section 8
program.
45 Dave Beal, "Apartment vacancies show no sign of rising," St. Paul Pioneer Press, March
6, 1998; available from http:/fnewslibrary.in£a.net/ppf; Internet, accessed March 6, 1998.
46 Gary Cunningham and Steve Keefe, Help Wanted: More Opportunities than People
(Minneapolis: The Citizens League, November 1998); available from http://www.citizensleague.ned
studies/labor-shortage/report.htm; Intemet, accessed January 7, 1999.
34
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
The Citizens League report goes on to suggest that "the business community can
be the lever breaking the logjam on affordable housing in the metro region, advocating
for affordable housing on the basis that it is a critical component to the health of local
business. "'
The Livable Communities Act, enacted in 1996, was intended to reduce the gap
between need for and availability of lower income housing in suburban communities.
However, a number of factors, including the voluntary nature of its provisions, how
"affordabiIity" is defined, and the goalsetting and benchmarking methodology, the
promise of the law has not and will not be fulfilled. According to a recent study by the
University of Minnesota's Center for Urban aud Regional Affairs, that in fact the
unintended consequence of its implementation is "[t]he aggregate result of the program
will be a decline [emphasis added] in the percentage of the Twin Cities azea housing
stock that is affordable."'
Given current market conditions, unless action is taken, it appeazs that production
of new units will not keep pace with the need anytime soon. By the yeaz 2000, according
to estimates, the areawide gap in affordable rental units wili have increased 50% since
1996, to a total shortfall of neazly 25,400 units.
HOMEOWNERSHIP
Some homeownership opportunities ezcist, but they aze severely Pimited, and are
generally unavailable to households at the lower end of the income spectruui. Furkher,
production goals for owner-occupied affordable housing, established under the Livable
Communities Act, aze expected to fall short by neazly 7,500 units.
°' Ibid.
" Edwazd G. Goetz and Lori Murdock, Losing Ground: The Twin Cities Livable
Communities Act and Affordable Housing (Minneapolis: Center for Urban and Regional
Affairs, I998), p. I.
49 Beal, March 6, 1998.
so Ibid. Owner-occupied housing affordable at 80% of ineVO area median income (i.e.,
$48,600 in 1998) ranges up to $120,000.
35
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and Homeless Services Report
and Plan
f4-��o
Habitat for Humanity is one of several programs that provide decent and
affordabie homeownership opportunities in the Twin Cities. Working families with
incomes of between $12,000 and $25,000 annually may qualify for a Habitat home.
Applicant families aze carefizlly screened to ensure optimal chances of success. In
Ramsey County, Habitat for Humanity builds or rehabilitates 20 to 25 houses per year,
representing about half of its metrowide production. The metrowide waiting list consists
of about 250 families. Habitat is seeking to doubie its capacity to produce affordable
housing in Ramsey Counry.
The primary limitation to Habitat's ability to produce more affordable housing
units is the existing process by which available properiy is made available for Habitat
use. That process impedes the expeditious transfer of available land or property. Habitat
also relies on corporate sponsorship and volunteer labor to construct its housing. While
there are many willing corporate contributors and a wealth of community volunteers,
building capacity in each of these azeas will enable Habitat to achieve its goal.
This year, Ramsey County participated for the first time in a Habitat project,
joining forces with the City of St. Paul and the St. Paul Companies to construct a house in
the Frogtown neighborhood. This effort stands as a model of collaboration among the
pubiic, private and nonprofit sectors that can and should be replicated. Among the
participants was Ramsey County Community Corrections Department's Sentence to
Service Program, which possesses untapped potential to provide an ongoing supply of
volunteer labor for Habitat projects.
Affordability
The limited housing that is available is unaffordable to approximately 67% of
Ramsey County households earning $30,000 or less; of those, 17% pay more than 50% of
their income towazd housing."
51 Wilder Research Center, Entering the 21" Century (Saint Paul: Amherst H. Wilder
Foundation, March 1997), p. 11. According to U.S. Census data, the median household
income for Ramsey County is $32,043.
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St. Paul/Ramsey County
Five-Yeaz Low-Income Housing
and Homeless Services Report
and Plan
For households at lower income levels, the affordability crisis is even more
severe. As Table 3 below shows, housing is unaffordable to almost 27,000 or 74% of
Ramsey County households earning an hourly wage of $9.20 (or $20,000 annually) Sz
Table 3.
Number and Percentage of Househoids Eaming Less Than
$20,000 Unable to Afford Housing
Cities in Tofai Number Unabte Percent Unabfe
Ramsey County Households to Afford Housing to Afford Housing
Arden Hills 118 85 72°fo
Falcon Heights 392 260 66%
Lauderdale 269 212 79%
Mounds View 423 374 88%
New Brighton 1,111 832 75%
North Oaks 12 12 100%
North St. Paul 613 435 71%
Roseville 1786 7,425 80%
St. Anthony (pt.) 347 322 94%
St. Paul 28,044 20,S15 73%
Shoreview 247 216 87%
Vadnais Heights 85 77 91%
White Bear township 57 43 84%
White Bear Lake (pt.) 970 708 78%
Ramsey County 36,110 26,822 74%
Source: Mevopolitan Council, Report !o the Legisl¢ture on AJfordable ¢nd Lije-Cyc(e Kousing in the
Twim Cities Metropolitan Area, November 1996.
Siting of Affordable Aousing
Over the last twenty yeazs, poverty has become more concentrated in inner city
areas of the Twin Ciries. According to the University of Minnesota's Institute on Race
52 Metropolitan Council, Report to the Legislarure on Affordable and Life-Cycle Housing in
the Twrn Cities Metropolitan Area (Saint Paul: Metropolitan Council, November 1996),
Part II, Appendix Tahle 2.
53 Edwazd G. Goetz, Hin Kin Lam, and Anne Heitlinger, There Goes the Neighborhood
(Minneapolis: University of Minnesota Center for Urban and Regional Affairs, 1996), p, 6.
37
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and Homeless Services Report
and Plan
q9-a�o
and Poverty, the percentage of all persons living in concentrated poverty increased almost
700% from 1970 to 1990, with signifzcantly higher increases for persons of color.
Clearly and unquestionably, the condition of concentrated poveriy has a number
of deleterious consequences for both the residents of these communities and society in
general. The Institute on Race and Poverty, in its 1997 report, Examining the
Retationship Between Housing, Education, and Persistent Segregation, declares that, in
neighborhoods marked by concentrated poverty, "all residents face substantial limitations
to life chances"
Significantly, research findings indicate that St. PauPs District Councils generally
favor "a strategy...that couples: (1) the need to reinvest and build inner city
neighborhoods and (2) programs to help people find affordable housing."
In applying such an approach, investment subsidized housing developed by
nonprofit organizations seems to hold promise. A 1996 University of Minnesota study
found that this type of subsidized housing: (1) enhances the property value of nearby
residential property; (2) leads to a reduction in crime; (3) attracts long-time Minnesotans;
and (4) fosters not transience but greater family stability.
Another study of subsidized housing in Maryland and Virginia reached a similaz
conclusion, finding that, in Montgomery County, Maryland and Fairfas County, Virginia
communities where policies to create subsidized housing within non-subsidized housing
developments has created significant sections of mixed-use housing stock, "the presence
or proximity of subsidized housing made no difference in the housing values" of property
in these communities.
54 Institute on Race and Poverty, Examining the Relationship Between Housing, Education,
and Persistent Segregation (Minneapolis: Institute on Race and Poverty, February 1998),
p. 40.
ss Ibid., p. 8.
56 g�ko Associates, p. 4.
s ' Goetz, et. al., There Goes the Neighborhood, p. 79
58 Joyce Siegel, The House Next Door (Washington, D.C. The Innovative Housing Institute,
1998) available from http://www.inhousing.org/housenex.htm; Internet, accessed
January 9, 1999.
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Five-Year Low-Income Housing
and Homeless Services Report
and P(an
At the same time, the development of income-integrated and mixed-use housing is
an approach that could be effective in both increasing the low income housing stock and
decreasing concentrations of poverty. Policies emphasizing the creation of housing
opportunities across income strata and family size and type are fundamental to the
reinvigoration of inner city neighborhoods as well establishment of new avenues for
diversity in suburban communities. Such policies might include the provision of
incentives for developers incorporaring a certain percentage of low-income housing units
in developments or the increased use of government bonding authority to create housing
affordable to low-wage workers.
As in a fmancial investment plan, diversification is the wisest approach to
ensuring a sound and healthy portfolio.
Similarly, a thoughtful policy with respect to demolition and rehabilitation is
warranted. According to a University of Minnesota/Neighborhood Planning for
Community Revitalization report, there aze 475 vacant houses on the City's official
vacant housing Iist at any given time. Many studies confirm that the existence of
vacant properties can have adverse economic consequences for municipalities and
constituents. Not only dces vacant housing result in the erosion of the 1oca1 t� base (in
St. Paul, 40% of the City's taac base rests on residential property) and create additional
costs to municipalities, but also it depresses values of adjacent homes by as much as
$10,000 and nearby houses by as much as $2,500 bo
Expediting the process by which vacant and abandoned properties can be
transferred to developers, whether for-profit or not-for-profit, would provide a wide range
of benefits: to government by moving property back onto tax rotls more quickly; to
developers by enabling more rapid initiation of projects; and, most of all, to people in
need of low income housing.
59 Edwazd G. Goetz, Kristin Cooper, Bret Thiele, Hin Kin Lam, The Fiscal lmpacts of the St.
Paul HOUSES TO HOMES Piogram (Minneapo[is: University of Minnesota Center for
Urban and Regional Affairs/Neighborhood Planning for Community Revitalization,
February 1997), p. 1.
fi0 Ibid., p. 12. The impact of vacant housing on adjacent and nearby property is derived
from Ana Moreno, Cost Effectiveness ofMortgage Foreclosure Prevention, (Minneapolis:
Family Housing Fund, November 1995), p. 16.
39
St. Paul/Ramsey CounTy
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9�-a��
Landlord/T'enant Issues
Prospecrive renters aze facing increasing frustration in their attempts to find rental
housing. Lack of a ceniralized system to identify available units, lack of education
regarding tenant rights and responsibilities, and poor rental and credit histories pose
substantial barriers to many homeless and low-income apartment seekers. In addition,
certain tenant screening practices — such as requiring applicants to pay multiple
application fees or requiring "earnest money" down payments — raise questions of
faimess.
At the same time, owners and prospective owners of low-income rental property,
a portion of whom constitute the vital base of small business owners in the City and
County, often find it difficult to: (1) negotiate the maze of regulations; (2) obtain
accurate and timely information concerning owner rights and responsibilities; (3) leam
how to maintain crime-free buildings; (4) obtain advice conceming, among other things,
sound business practices, taY codes, housing codes, and Section 8; and (5) obtain swift
and acceptable outcomes for disputes with tenants without resorting to expensive and
time consuming court proceedings.
Further, property owners who might be willing to rent to low-income consutners
with less-than-perfect rental histories or other issues and barriers consistently express the
need for assurances that a social services support network is available to them at all times
to address problems that may arise.
Given these circumstances, there is a clear need for a centralized and coordinated
system to provide: (1) a metrowide link between apartment seekers and property owners
with available units; (2) ready access to social services supports; (3) resource information
concerning rights and responsibilities which is timely and easily accessible to both
tenants and property owners; (4) access for property owners to sound business advice and
training on how to maintain crime-free dwellings; and (5) an adjudication system for
disputes that provides a legitimate and less costly altemative to court.
.�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Need to Link Owners and Renters
The HousingLink— a nonprofit entity created to develop, unplement and manage a
Fair Housing Mobility Clearinghouse, mandated under the Hollman v. Cisneros Consent
Decree — provides the infrashucture to establish the resource needed to connect
aparhnent seekers with available apartment openings metrowide. This project, which is
just getting under way, is already working with the St. Paul Housing Inforxnation Office
and other local groups. While the need for ongoing funding is an issue, this new etttity
holds the very real potential to fill one of the most pressing needs for owners and renters:
a seamless system for listing and locaring available units throughout the . entire
metropolitan azea.
Need for Access to Social Services
Interviews with property owners confum that the ready access to social workers
and case managers creates a greater willingness to rent to and retain tenants placed by
public and nonprofit social service agencies (e.g., clienis coping with mental illness or
chemical dependency). Thus, there is a great need to establish better linkages between
low income housing owners and the sociaUhomeless services delivery networks in
Ramsey County.
Need for Information and Education
The more knowledgeable the owner, the greater the chance that rental property
can be a profitable inveshnent and provide decent, secure and affordable housing for
people. The more educated the renYers, the greater the chance that they will be
responsible tenants, avoid disputes, and understand and exercise their rights when
disputes do arise.
Moreover, tenants with questionable rental histories are in dire need of education
and certification so that they may cure their records an@ obtain another chance to become
responsible and self-reliant. Education is a key recommendation contained in Strategies
to Reduce Nuisance Crimes in Our Neighborhoods: A Report to the 199� Legislature,
61 The Consent Decree was the result of a settlement entered into by the parties to a lawsuit
brought by fourteen low-income families of color and the Minneapolis NAACP alleging that
the Minneapolis Public Housing Authority, among others, had engaged in illegal housing
segregation.
41
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
� • • ./
submitted by, among others Ramsey County Attorney Susan Gaertner. The zeport calls
for "education [that] would unprove the management of rental properties and decrease
nuisance acrivity."
There are some avenues available today for both landlord and tenant training. For
instance, the St. Paul Housing Information Office, the St. Paul Police Department, the
Minnesota Multihousing Association, the St. Paul Tenants Union and the St. Paul
Association of Responsible Landlords, to name a few, provide education and assistance.
What is missing is central coordination and provision of seamless service, regazdless of
the request or the requester.
The Need for Alternative Dispute Resolution
When disputes arise about nonpayment of rent, unacceptable tenant behavior or
failure on the part of a property owner to make repaiFs, the parties to the dispute have
very few, if any, options other than expensive and time consuming court proceedings.
The present system forces the filing of a complaint before a dispute can be settied or
adjudicated. Moreover, even when disputes are settled an pretrial conferences, ar when
the claim is found to be meritiess, the tenant's rental history is marred by the mere fact
that an Uniawful Detainer (UD) has been filed.
The aforementioned District Attorneys' report endorses and suggests there is
broad support for the concept of altemative dispute resolution for non-drug or crime
related issues, including nonpayment of rent. It recommends a reduced fee for filing,
with settlement agreements not being recorded as Unlawful Detainer actions. 64
bZ Michael Freeman, Susan Gaertner, and the Nuisance Law Working Group, Strategies to
Reduce Nuisance Crimes in Our Neighborhoods: A Report to the 1997 Legislature (January
1997), p. 19.
63 An Unlawful Detainer is a filing by a property owner in housing court for remedy. Though
often perceived as a judgment, in and of itself, it is purely an allegation.
64 Freeman, et. al., Strategies to Reduce Nuisance Crimes in Our Neighborhoods: A Report to
the1997Legislature, pp.16-17.
42
St. Pau]JRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
lnsufficient Wages
Wages have not kept pace with housing costs. The Family Housing Fund fmds
that, in the metropolitan area, a family "would have to earn $24,840 per yeaz ($12 per
hour) to afford to rent a two-bedroom apartment or $33,000 per year {$16 per hour) to
afford to buy a three-bedroom house.i Typical salaries for people employed as
cashiers, clerks, child care workers, home health aides, housekeepers, medical assistants,
receptionists, cooks, tellers, teacher aides and school bus drivers aze often below that
which would render apartments or homes affordable.�
Minimum wage earners have an even more difficult time obtaining and
maintaining housing that is affordable. As the chart below shows, a substanfial gap
exists between the salary of a minimum wage earner and the income needed to afford a
typical two-bedroom apartrnent and three-bedroom house.
Chart 10. Income Compared to Housiag Affordability
$35,000
$30,000
$25,000
$20,000
$75,000
$i0,000
$5,000
$0
Source: Family Housing Fund, "7'he Need for AfFordable Housing in the Twin Cities,"
Oc[Ober 1997.
65 Family Housing Fund, Working Doesn't Always Pay for a Home (Minneapolis: Family
Housing Fund, December 1997), p. 1.
� Ibid., p. 4.
43
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Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Annual Eamings Needed for Two- Needed for
at Minimum Bedronm Apt Three-8edroom
Wage House
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These figures have serious implications in the post-welfare reform world, where
Minnesota Family Investment Program (MFIP) participants aze ofren moving into entry
level, minimum wage jobs.
Mental ll/ness and Chemical Dependency
Mental illness and chemical dependency aze other, serious roadblocks to homeless
families and individuals struggling to stabilize their lives. Not surprisingly, homeless
individuals "aze aY greater risk and exhibit higher levels of severe mental iilness, alcohol
and/or other drug abuse, and chronic physical ailments than their counterparts in the
domiciled population." Since many among the homeless population are uninsured, the
costs to society to treat these illnesses are substantial.
Mental Illness
The most recent studies suggest that mental illness is a significant problem for
nearly one-third of the adult homeless and unaccompanied youth populations 6 It is
estimated that homeless persons with a mental illness "have a tluee times higher risk of
death than the general population.i
In general, these with a serious mental iilness use about half (47%) of the total
amount of services in Ramsey County directed toward homeless persons. Specifically,
two key findings have emerged from the 1998 Ramsey County Survey:
Almost all (93%) of life skills training directed towazd
homeless persons aze tazgeted to homeless persons
with a mental illness.
6 ' Deborah L. Dennis, Irene S. Levine and Fred C. Osher, "The Physical and Mental Health
Status of Homeless Adults," Housing Policy Debate 2 (1991): p. 815. The authors identify
viral and upper respiratory diseases, traumatic injuries, skin disorders, nutritional disorders,
hypothermia, hypertension, advanced dental and periodontal disease, venereal disease,
tuberculosis, hepatitis, and AIDS as those diseases more commonly occurring among the
homeless population than among the general population.
Wilder Research Center, Minnesota Statewide Survey of Persons Without Permanent
Shelter, Volume I: Adults and Their Children, p. xiii and Wilder Research Center,
Minnesota Statewide Survey of Persons Without Permanent Shelter, Volume 11:
Unaccompanied Youth, p. 23.
69 E. Fuller Torrey, Out of the Shadows (New York: John Witey & Sons, Inc., 1997), p. 17.
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2. The vast majority (72%) of companion services for the
homeless are provided to homeless persons with a
mental illness.
Chemical Dependency
Drug and/or alcohol abuse are much more likely to be prevalent among homeless
single men and unaccompanied youth than among homeless families, although there is a
growing incidence of crack-addicted single women, with or without children. Recent
data indicate that more than four in ten homeless men and neazly one-quarter of homeless
women reported chemical dependency problems. In addition, the likelihood of women
reporting a stay at a substance abuse treatment faciliTy within a month of entering a
transitional housing setting has "increased six-fold, from 3 percent in 1991 to 19 percent
in 1997.""
Not surprisingly, say experts, "the rigors of homelessness magnify or rekindle old
[alcohol or drug] problems and create new ones."' Reseazchers have concluded that
"[a]lcohol-dependent homeless people...appeaz to have histories of recurrent and enduring
homelessness."
The 1998 Ramsey County Survey indicates that, on average, chronic substance
abusers use 27% of the total homeless services provided Countywide. However, they
receive only 13°l0 of the total financial management skills and just 1% of the all the life
skills training available for the homeless.
' Wilder Reseazch Center, Minnesota Statewide Survey ofPersons Without PermanenP
Shelter, Volume I: Adults and Their Children, p. xiii
" Ibid.
' James Baumohl and Robert B. Huebner, "Alcohol and Other Drug Problems Among the
Homeless," Housing Policy Debate 2(1991): p. 838.
" Ibid, p. 844.
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Multiply Diagnosed
It is estunated that at least 50% of homeless persons with mental illness aze dually
diagnosed with an alcohol or drug abuse problem. People with a mental illness and/or a
chemicai dependency may also be HIV-positive. Thus, the dually diagnosed represent a
significant portion of the homeless population.
The 1948 Ramsey County Survey found that:
♦ Just over half (53%) of all employment services
available to the homeless go to those who aze multiply
diagnosed.
Fifteen percent (15%) of the financial management
services for the homeless aze provided to this
population.
�
♦ Only 1% of life skills training provided in the County for
homeless persons aze accessed by the muitiply diagnosed.
Domestic Violence
The disruption to the lives of individuals and families caused by domestic abuse.
both physical and emotional — cannot be overstated.
In 1997, about 2,800 women and children had need to use the 86 beds currently
available in Ramsey County for victims of domestic abuse. Almost b0°lo were African-
American; about one-fifth (21%) were white; 11% Native American, 5% Hispanic; and
2% Asian. Of the total, about one-third (35%) were women alone, two-thirds (65%)
women with children in shelter.
According to the Wilder Research Center, the number of women and children in
battered women's shelters has increased every yeaz, and almost doubled over the last five
yeazs. The 1998 Ramsey County survey indicated that 59% of transitional housing
users are victims of domestic violence.
i4 W ilder Research Cenier, Seventh Annual Report, p. 45.
'S Ibid., p. iv.
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Domestic violence also impacts minor mothers. Since, at this time, there is no
shelter available for them, these women often must make an equally unacceptable choice
between remaining in an unhealthy environment or temporarily relinquishing custody of
their children while they seek refuge in a youth shelter.
Racial Discrimination
Insidious and perhaps the most difficult to overcome is the barrier to housing and
stability presented by racial discrimination. Several Twin Cities studies reveal that, when
searching for rental housing, people of color receive dispazate and lesser treahnent more
than 50% of the time.
Further, according to Professor Stuart A. GabriePs analysis of a number of
studies, there is "widespread statistical evidence of racial and neighborhood disparities in
mortgage lending..,."" These and other studies document what focus group participants
report: there is a correlation betrveen racism and homelessness.'
There are legitimate barriers to the production of low-cost housing (such as land
availabiiity and construction costs). However, institutional barriers — incIuding zoning
' See Minnesota Fair Housing Center, Report on the Fair Housing Audit of the Hrghland Park
Community in the City ofSt. Paul (St. PauL Minnesota Fair Housing Center, November 1997);
Minnesota Fair Housing Center, Fair Housing Audit: A Community Audit Testing for Racial Bias
in Rental Housing in Yhe Cilies of Bloomington, Burnsville and Saint Cloud (St. Paul: Minnesota
Fair Housing Center, December 1997); and Minnesota Fair Housing Center, Housing
Discrimination: A Report on the Rental Practices in Two Minneapolis Communities, (St. Paul:
Minnesota Fair Housing CenTer, December 1996).
" Stuart A. Gabriel, "Urban Housing Poticy in the 1990s," Housing Policy Debate 7 (1996): p.
685. Among oihers, Gabriel points Yo the Home Mongage Disclosure AcY study of data from
1978 through 1990 which revealed that, afrer controlling for income, African Americans and
Hispanics were up to two-thirds more likely to be rejected for loans than whites, and the 1992
Boston Federa] Reserve Bank study that found widespread discrimination In Yhe mortgage
application process in the Boston area.
' See The African American Working Group, Reviving the Dre¢m: An Ajrocentric
Perspective on Homelessness in Ramsey County (St. Paul: African American Working
Group, March 1995), p. 3.
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and other regulatory and land use provisions, lending and real estate practices, as well as
community opposition — serve to derail attempts to develop affordable housing."
"In short," conclude Robert W. Burchell and David Listokin of Rutgers
University in their 1995 article in Housing Policv Debate, "housing discrimination
comprises a series of severe obstacles to equal housing oppommities."
Community Support for New and Additional Services
According to a survey conducted of the District Councils in the City of St. Paul,
most would support the location of facilities in their districts for battered women,
homeless youth, developmentally disabled persons, and persons with mental illness or
HIV/AIDS. $'
Prevention Strategies
Emphasis on homeless prevention strategies is widely recognized as sound public
policy. A prime example of this approach is the creation by the Minnesota State
Legislature in 1993 of the Family Homeless Prevention and Assistance Program, which
provides, on a biennial basis, grants to counties to fund community agency programs that
prevent homelessness or assist currently homeless persons.
' Such mning practices may include square footage requirements for new homes and lots;
restrictions or limitations to multifamily housing; maximum density restrictions; two-car
garage requirements for new housing; development fees and service connection charges.
(See Institute on Race and Poverty, p. 51.)
80 Robert W. Burchell and David Listokin, "Influences on United States Housing Policy,"
Housing Podicy Debate, 6(1995), p. 585.
$' Biko Associates, p. 3
s � In 1998, an interim yeaz between FHPAP funding cycles, the Minnesota Legislature
appropriated an additional $300,000 for family homeless prevention and assistance
programs.
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Steadily increasing over the last six years, homeless prevention services now
account for more than one-third (37%) of the total funding distributed in Ramsey County
under the FHPAP program. Helping people remain in their homes and ensuring that they
maintain stabiliry once they achieve it are fundamental prevention appmaches.
Averting evictions and condemnations are two ways of curbing homelessness.
Other prevention activities — including the provision of health care, food, access to phone
service, fumiture and transportation — can help to move homeless individuals and
families towazd employment, stabiliTy and self-sufficiency, while helping them to avoid
any recurring episodes of homelessness.
Homeless prevention activities conducted under Ramsey County's Family
Homeless Prevention and Assistance Program aze both successful and cost-effective.
Ninety-seven percent (97%) of the more than 4,500 people in 1,214 families who
received prevention services between 1995 and 1997 did not have to resort to using
shelter. Evaluators estimated that about $4.00 was saved for every $1.00 invested in
prevention services.
Preservation of existing low income housing is also an important homeless
prevention strategy. It is particularly important at this time to focus on housing
preservation, as thousands of units of low-income housing subsidized by the U.S.
Department of Housing and Urban Development aze :n jeopazdy of being lost as a result
of mortgage prepayments and the conclusion of long-term leases with the federal
govemment 85
Another proactive approach to prevenring homelessness is to identify those most
at risk of becoming homeless and fashion progruns and intervention strategies before
homeIessness occurs. According to analyst Eric N. LindbIom, prior homelessness or time
spent in foster care, a mental hospital, prison, ttte armed services, or inpatient treatment
for mental illness or drug or alcohol abuse aze "strong predictors of ever becoming
83 These services are provided by various agencies serving the homeless, including Health
Care for the Homeless, Twin Cities Community Voice Mail, Catholic Chazities, and a
number of food shelves.
84 Ramsey County, Family Homeless Prevention & Assistance Project: Annual Report (St.
Paul: Ramsey County Community Human Services Deparhnent, October 20, 1997), p. 6.
85 The 1998 Minnesota Legislature appropriated $10 million for efforts to preserve this type
of affordable housing.
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homeless...." One azea of focus could be prisons, where, in Minnesota, about 3,000
adults are released into the community each year. Lindblom proposes a multi-stage
prevention strategy. First, predictors should be utilized to pinpoint those most likely to
become homeless among individuals about to be released from institutional settings.
Second, the institutions and local agencies should work together, prior to release of the
individuals identified, to assure that housing and other social services necessary for
smooth reintegration into the community aze provided.
86 Eric N. Lindblom, "Toward a Comprehensive Homelessness-Prevention Strategy, " Housing
Policy Debate 3 (1991): pps. 960, 962.
87 Minnesota Department of Corrections, "Adult Inmate Profile;" available from http:/www.
corr.state.mn.us/adultl.hhn; Internet, accessed Ju�e 19, 1998.
88 Lindblom, pps. 981-82.
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�, � . . .r
Chapter N
The Five-Year Plan
The SG PauURamsey Counry Five-Year Low Income Housing and Homeless
Services Ptan sets forth recommendations that, taken together, seek to make significant
inroads toward:
� Preventing homelessness;
� Assisting those who are or will become
homeless; and
� Filling the needs for housing and homeless
services identified during the planning
process.
Based on the foregoing discussion and analysis, the Oversight Committee
proposes the following series of recommendations, grouped under four broad categories:
(1) Homeless Prevention, (2) Shelter and Housing; (3) Homeless Services; and (4)
Funding.
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HOMELESS PREVENTION
Prevention strategies work, as evidenced, for anstance, by program evaluations of
the Family Homeless Prevention and Assistance Program_ They aze not only successful,
but also cost-effective in combating homelessness.
Homeless prevention may take many forms. The following presents several
homeless prevention initiatives designed to keep at-risk people and families from
becoming homeless and save valuable and expensive societal resources.
Recommendation 1
Plze Cify and County Should Establish a
St. Paul/Ramsey County Landlord-Tenant
Education and Dispute Resolution Program
Discussion
There is a need to provide a comprehensive, coordinated and centralized system
by which both property owners and renters can receive timely, accurate and accessible
information and education on a range of subjects, and obtain inexpensive and credible
dispute resolution services designed specificaliy to be a preferable alternative to housing
court.
The program would bring together in a cohesive consortium existing agencies and
organizations — such as the Community Stabilization Project; the Dispute Resolution
Center; HousingLinl� Lutheran Social Service's Housing Resource Center; the Minnesota
AIDS Project; the Minnesota Multihousing Association, the St. Paul Association of
Responsible Landlords; the St. Paul Housing Court; the St. Paul Tenants Union; the St.
Paul Police Departsnent's Crime Free Multihousing Program; and Southem Minnesota
Regional Lega1 Services — presently involved in providing housing linkage services,
information, education, advocacy or dispute resolution services to property owners and
tenants.
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It may also entail the development of new services where they do not already
e�st, or the emergence of an umbrella entity to coordinate all services. The vision is to
provide seamless service by providing a single point of entry that would be universally
accessible for any hovsing need articulated by any renter or owner.
It could be physically located at the St. Paul Housing Information Office, which
has expressed preliminary interest in serving as host agency, provided addifional sources
of funding could be secured.
Recommendation 2
The County Should Act to Improve
Coordination of Youth Services in Ramsey County
Discussion
Providers of services for youth tend to operaTe in mutually exclusive clusters.
Those dealing with youth in the corrections system, youth with mental illnesses and/or a
chemical dependency, homeless youth, youth in the child welfare system, and teen
parents generally aze disconnected from each other.
Although some planning processes already exist, these are insufficient to
providers the comprehensive coordination among the various agencies, both
governmental and nongovernmental, serving youth. Most importantly, tracking and
information sharing may prevent or address many of the problems that lead young
persons into homelessness.
The outcome envisioned by this recommendation could be achieved
by improving existing structures or creating a new one. The County
should take the initiative to bring together all organizations serving
youth, identify overlaps and gaps, and work to ensure that necessary
sexvices are rendered in the most efficient and cost-effective manner.
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Recommendation 3
The City and the County Should Continue, Support and
Ezpand Efforts to Reduce Disparities in Housing and
Homeless Services Provided to People of Color
Discussion
People of color aze the predominant users of shelter. In contrast, non-white single
adults comprise only 25% of h�ansitional housing users. With respect to public housing
subsidies, even though half of those receiving Section 8 certificates are persons of color,
these persons are able to utilize those certificates only one-third of the time. Finaily,
racial discrimination is cited by many as a barrier to obtaining permanent housing.
Some work has begun which is intended to investigate and remedy these
conditions. For example, Ramsey County and the City of St. Paul have taken the lead in
planning an interjurisdictional analysis of impediments to fair housing. These effort�
should be continued, supported and expanded.
Recommendation 4
The City and County Should Urge the Legislature to
Establish a Statewide Homeless Prevention Planning Council
Discussion
Research suggests that certain predictors, such as prior episodes of homelessness
among people who are institutionalized, may signal post-release problems in achieving
housing stability. There is a need to connect organizations/institutions (especially
prisons) that work with individuals prior to release with those in communities that can
assist individuals after release. A multiagency group, including State, local and provider
agencies, should be established to develop strategies for stahilizing individuals upon
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release. Implementation of such strategies would be primarily designed to identify
locarional choices for housing throughout the State, link individuals with needed services,
and, overall, avert future homeless episodes.
SHELTER AND HOUSING
The following presents several proposals to develop new shelter options that
address the particularly pressing issue concerning the rapidly growing homeless
poputation_ Implementing these initiatives will require coordinated efforts of the public,
private and nonprofit funders and agencies to obtain and leverage necessary resources and
utilize them in the most efficient manner.
In addition, a series of recommenda6ons aze proposed that, taken together, form a
coherent and rationate policy direction for creation of more transitional and permanent
supportive units and the preservation and development of low income mazket rate
housing. The recommendations azound the development of more mazket rate housing
look outward to the state and metropolitau region, as well as inward to the city and
county, for long-term solutions to the affordable housing crisis.
EMERGENCY SHELTER
Recommendation 5
The Counfy Shou[d Facilitate the Provision of
Emergency Shelter with a Family Reunification Focus
for Unaccompanied Youth
Discussion
Existing providers aze generally serving youth for whom family reunification is
not an option. However, since fanuly problems are the primary reason for the sharp
increase in the homeless youth population, there is a need to establish a facility where
homeless youth may remain safe and where comprehensive eazly intervention strategies,
the goals of which aze the resolution of fanuly conflicts and the reunification of families,
may be initiated.
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E�sting youth shelters aze provided by nonprofit organizations, often with the
support of local, state and federal subsidies. The same approach should be used to create
this needed service.
Recommendation 6
Tl:e County Shou[d Work to Deve[op Additiona!
Emergency S/:elter Options for Homeless Youth When
Family Reunification Efforts are Ex/:austed
Discussion
The return of youth to the home is not always feasible. Currently, there are only
16 emergency shelter beds available for homeless youth, whereas the 1998 Ramsey
County Survey indicated that there are hundreds of youth on any given night who are in
need of a safe place to sleep. Intensive services, including after-shelter care planning and
resolution of emancipation issues, wiil be required to accompany shelter services if the
needs of homeless youth in this category are to be sufficientiy met.
Recommendation 7 .
The Counfy Should Facilitate the Development of a
IO-bed Shelter for Minor Parents and Their Children
Discussion
At the present time, there are no emergency shelters for minor parents. These
young people face great difficulty in keeping the family intact. Often the result is
separation of the family and placement of young children in foster care. The
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development of such a facility would assist in the maintenance of the family unit while
providing necessary services, including after-shelter caze planning, for youth in this
category.
TRANSITIONAL HOUS/NG
Recommendation 8
The City and County Should Faeilitate Development of.•
♦ 100 Units of Transitiona[ Housing for Families
♦ 100 Uni1s of Transitional Hnusing fnr SingleAdu/fs
♦ 50 Units of Transitional Housing for Youth
Discussion
With a documented need of almost 800 units of transitio:ial housing for families,
single adults and unaccompanied youth, the modest goal of closing the gap by just about
one-third over the next five yeazs is both reasonable and achievable. Implementation of
this initiative will require the collaborntion of city and county planners and agencies, as
well as the cooperation of funders and providers, to assure that adequate financial
resources and services are in place to expand existing programs and develop new ones.
Permanent Supportive Housing
Recommendation 9
The City and County Should Facilitate Development of•
♦ 400UnitsofPermanentSupportiveHousingforSingleAdults
♦ 200 Units of Permanent Supportive Housing for Families
♦ SO Unifs of Permanent Supportive Housirtg for Youth
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Discussion
These housing projects would target the chronically homeless, who aze currently
frequent users of high-cost, publicly-funded emergency and crisis services, such as
shelter, hospital emergency rooms, detoxification facilities, and jails. These individuals
and families could be served more cost-effectively in permanent housing with support
services.
LOW INCOME MARKET RATE HOUSING
Recommendation 10
The City ¢nd County Skould Support Corztinued Legislative
Funding Dedicated to the Preservation of Existing
Federal[y Subsidized Low Income Housfng
Discussion
The supply of subsidized housing is being threatened by the potential conversion
of hundreds of Section 8 units to market rate. During the 1998 session, the Minnesota
Legislature appropriated $10 million for the preservation of existing federally subsidized
housing. The legislature should be encouraged to continue this trend by appropriating
funding in each of the next five yeazs dedicated to this purpose.
Recommendation 11
The City and County Should Establish a Joint Policy to
Preserve Existing Nonsubsidized Low Income Housing Stnck
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Discussion
Given the critical need for low income housing in Ramsey County and the City of
St. Paul, all efforts should be taken to preserve existing stock. City and County planners
should develop a set of strategies to cany out this poiicy, including the assurance that
resources are adequate to: encourage compliance with code; maintain effective code
enforcement activities; prevent the deterioration of housing stock; achieve cost-effective
rehabilitation of deteriorating properties; and improve management capacities of rental
property owners.
Recommendation 12
The City and County Should Create
an Affordab[e Housing Owners �4dvisory Group
Discussion
There aze a number of existing private market and nonprofit properiy owners who
ate interested in providing affordable housing. They indicate that the system currently in
place impedes the acquisition, rehabilitation or redevelopment of properiy which could
provide addirional affordable housing opportunities.
TYus a@visory group, envisioned to consist of both private and nonprofit owners
and developers, would work with city and county officials to conduct a thorough review
of existing impediments to the acquisition of properties — including housing codes,
zoning laws and ordinances, fee structures, and other government procedures. The
advisory group would develop proposals to streamline the administrative process. Other
endeavors in which the consortium could engage might include developing new funding
ideas, such as subsidy pools, fostering income-integrated development, and offering
mentoring services to new and potential low-income housing providers.
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Recommendation 13
Tlze City and County Sltould Encourage the Development
ofPrivate Market Low Income Housi�eg Tltroughout tl:e
City, County and 1/:e Region
By
• Adopting a mixed-use, mixed-income policy
New developments should feature the availability of units that aze suited for a
variety of family sizes and a range of income levels, including moderate and low-income
households. Innovative and creative approaches, including the provision of "density
bonuses" to developers, the establishment of inclusionary zoning practices, and the
increased use of government bonding authority to create housing affordable to low-wage
workers, should be fostered.
• Deve[oping Mechanisms to Bring the Resources and Expertise
of the Business Community to Bear to Integrate More
Homeless and Formerly Homeless Persons into the Workforce
By and lazge, homeless persons want to work, and, to a lazge extent, the
homeless population may be seen as an untapped labor pool. This initiative seeks to
build on existing human resources through partnerships with employers. Impediments
preventing more homeless persons &om successfully integrating into the labor market
include the lack of access to stable, affordable housing and inadequate transportation
linking job seekers and employers. Incentives should be developed to encowage
empioyers to participate in pro}ects that support a stable labor pool.
• Urging the Legislature to Establish Stronger Incentives to
Improve tl:e Effectiveness of the Livable Communities Act
The Livable Communities Act, though well-intended, has not been as
effective as predicted in producing affordable housing across the metropolitan azea.
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Further, what housing is being produced under its provisions is unafFordable to those at
the tower end of the income spectrum. Bold action needs to be taken by the legislature to
establish more effective incentives that will increase the units that are produced in the
suburban communities in the seven-county metropolitan azea.
• Supporting the Gaal of Habitatfor Humahify to Double its
Production Capacity in Ramsey County
Habitat for Humanity builds ar rehabilitates 20 to 25 houses per yeaz in
Ramsey County, while its metrowide waiting list consists of about 250 families. Habitat
for Humanity has set for itself a goal to double its producUOn capacity in Ramsey County
over the nea�t several yeazs. This proposal calls for enhancing partnerships to solicit the
support and participation of more corporate sponsors and volunteers to assist Habitat for
Humanity to achieve its goal.
HOMELESS SERVICES
Without vital services, many homeless persons will fail to gain stability and
establish self-sufficiency. The objective of the following recommendations is to fill gaps
identified during the planning process in the provision of services to homeless persons
throughout Ramsey County.
Recommendation 14
The County Should Work to Increase Capacfty ofAgeneies
to Deliver Basic Services Essential to Breaking
the Cycle of Homelessness
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Discussion
Formerly homeless persons and families indicate that access to basic necessiries
required to find and keep employment — such as stable housing, transportarion, clothing,
fiirniture, food, and health caze — is critical to establishing and maintaining stability and
avoiding repeat bouts of homelessness. For instance, helping people access clothing for
and trausportation to interviews can help to assure the acquisition and retention of
employment. Obtaining fiirniture can enable homeless families to leave shelter more
rapidly once housing is secured. Providing access to food shelves can mean that a family
does not have to choose between buying food and making rent payments. Increasing the
capacity of service delivery in these areas can help individuals and families to become
and remain self-sufficient.
Recommendation 15
The County Should Facilitate the Provision
of More Intensive Case Management, Counseling
and Financial Management Services
Discussion
One of the striking findings of the planning effort was that, across all populations,
there is a substantial shortage of case management, counseling and financial management
services. Logic dictates that the more services of this nature that can be provided, the
less the chance of recidivism and the greater the chance ciients have of achieving self-
reliance. Existing programs need additional resources to be able to achieve lower client-
to-staff ratios. In general, mare services need to be directed towazd families while,
specifically, single adults require more financial management services.
Recommendation 16
The Counry Shou[d Develop Mechanisms to Improve
Linkages Between Property Owners and Social Service Providers
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Discussion
Properiy owners interviewed indicated a willingness to offer affordable housing to
persons with mental illness, substance abuse issues and imperfect rental histories,
providing there is ready access to social service systems and networks in the event that
pmblems arise. The establishment of a formal system to link property owners with the
goveinment and nonprofit social services networks would be helpful in maintaining and
expanding the pool of housing available to homeless and low-income persons and
families in Raznsey County. Other ideas broached include the establishment of a risk
pool to recompense properry owners for unrecoverable expenses incurred if damage is
done to apartrnents. These strategies strengthen the ability of the community to focus on
the behavior of individual tenants rather than taint an entire building and discourage the
further provision of affordable housing at a property.
Recommendation 17
Low Income, Tra�rsitianal and PermaneHt Supportive Housing
Developers and Homeless Service Providers Shou[d Seek
Partnerships wifh Yeterans Service Organizations
Discussion
Homeless veterans comprise a significant portion of the populauon in need.
There are a variety of veterans service organizations (e.g., the Minnesota Department of
Veterans Affairs, the VA Medical Center, the Minnesota Assistance Council for
Veterans, the Veterans Center, the VFW, the American Legion, Disabled American
Veterans, the State Veteraus Home Boazd, locaI veterans service offices) that bring not
only expertise and sensitivity in working with homeless veterans, but also resources and
funding from govenuuent and other sources. Housing or service pmviders should
explore opportunities to partner with veterans service when developing or expanding
housing or service programs. Such partnerships can increase capacities, enhance
services, meet multiple needs, and leverage funding that can benefit providers and clients
alike.
63
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
9�i-�.�o
Recommendation 18
The City and County Should Provide or Seek Outside Funding
to Increase the Hours and Days They are Open
Discussion
Scazce funding limits the number of hours providers of youth drop-in services aze
able to stay open. Providers indicate a need to expand hours of operation until 8:00 p.m.,
seven days a week. Given the dramatic increase in homelessness among unaccompanied
youth, extending the hours during which assistance and a temporary safe haven are
available may provide some relief to the increasingly vexing problem of stabilizing these
at-risk young persons.
Recommendation 19
The County Should Assess the Feasibility
of Creating a Centralized System
of Intake, Assessment and Record Keeping
Discussion
The 1998 Ramsey County Survey indicated that, on average, every client seen in
the homeless service delivery system receives seven assessments. While, in some cases,
there may be good reasons for the provision of multiple assessments, there may also be an
opportunity to streamline service, avoid duplication, save costs and reduce the burden on
clients.
.�
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
Recommendation 20
The County Shou[d Seek Mechanisms to Ensure tl:at
Cu[tural Competency Trainfng is Given to Service Provide�s
Discussion
According to homeless persons participating in focus groups conducted during the
planning process, the most successful approach to providing service is to do so in a
manner that is nonjudgmental, respectful, supportive, and culturally-specific. Providing
training in these skills can enhance the probabiliry of successful interventions by service
providers.
Recommendation 21
The County Should Seek Mechanisms to Ensure
that Necessary Technical and Financial Resources
Are Provided to Agencies of Color
Discussion
Support service agencies operated primarily by people of color indicate a need for
technical assistance and access to resources. This recommendation is intended to bolster the
ability of such agencies to deliver culturally-specific services in communities and to people of
color.
65
St. Paul/Ramsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
��-a�o
Fundinq
Critical to the success of the pian is the ability to gamer new resources and
leverage existing funding. A variety of federal, State, local and private entities distribute
a number of different grants. What is needed is a mechanism to increase coordination
and avoid duplication among the various funders and, using the Five-Year Plan as a
guide, direct funding appropriately to address the hierazchy of priorities. The following
recommendation is intended to establish such a mechanism.
Recommendation 22
The County Should Create a Funders Council
Discussion
It is proposed that, under City and County coordination, a Funders Council be
created to improve and provide a guiding vision to the system by which funding decisions
aze made. The Council would work in concert to make sure that a coherent system of
allocating grants is established that solicits targeted proposals and packages
appropriations, to the extent possible, to areas identified as priorities under the Five-Year
Plan. It is expected that the effective operation of the council would result in a
streamlined process for applicants.
Members of the Funders Council would include, but not be limited to: City of St.
Paul; Corporation for Supportive Housing; Family Housing Fund; Federal Emergency
Management Agency Board; Metropolitan Council; Minnesota Department of Chiidren,
Families and Learning; Minnesota Department of Human Services; Minnesota
Department of Veterans Affairs; Minnesota Housing Finance Agency; Ramsey County;
St. Paul Companies; St. Paul Foundation; U.S. Department of Housing and Urban
Development; and United Way.
�r
St. PaullRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
This body would be encouraged to seek the counsel of an advisory group of
currently stable, formerly homeless individuals who would identify the elements that
have enabled them to attain and maintain stability. Such advice would help to inform
funding decisions.
Through the establislunent of this body, enormous strides could be made in
coordinating funding; avoiding duplications, conflicts or gaps in funding; ensuring the
most efficient use of fmancial and staff resources; and simplifying the system for
organizations seeking funding.
67
St. PaullRamsey County
Five-Year Low-Income Housing
and Homeless Services Report
and Plan
99—a��
�:��;�,c•z ; - � .
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� • • .•
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L9
G9-a�o
Appendix A
Oversight Committee
Name
Gwen Chandler Rhivers
7im Coulthard
OrpaniZation
YWCA of St. Paul
Minnesota Assistance Council for Veterans
Margaret A. Demco Minnesota Housing Finance Agency
Ron Elwood, Co-Chair Ramsey County Community Human Services Department
Mary Lou Egan Ramsey County Community Development Office
Mary Ford Ramsey County Community Human Services Department
Tom : ulton
Kurt Koehler
Rod Gustafson
Greg Horan
Mari Moen
Susan Phillips
Tom Sanchez, Co-Chair
Carl Scheider
Diane Stone
Gabrielle Strong
Family Housing Fund
Ramsey County Community Human Services Department
YWCA of St. Paul
MinnesotaJSt. Paul Coalitions for the Homeless
Corporation for Supportive Housing
Lutheran Social Services
St. Paul Planning & Economic Development Department
St. Paul Companies
Metropolitan Council HRA
Ain Dah Yung
1
�jq-a�a
Appendix B
DATA SOURCES AND RESEARCH
METHODOLOGY
In an effort to base the St. PauURamsey County Five Year Housing and
Homeless Services Plan on sound information, the Plan's Oversight Committee retained
staff and consultants to assemble existing data about homelessness and affordable
housing in Ramsey County, and to conduct research and focus groups to fill in existing
gaps in knowledge on these issues. The data gathering process attempted to:
1) Describe the current system to serve homeless persons in Ramsey
County;
2) Describe the peopie using homeless support services, and the
people who aze not using these services but who need them;
3) Discem the state of affordable housing in Ramsey Ceunty;
4) Identify key trends in affordable housing and the homeless support
system that will inform the planning process.
Key Data Sources on Homelessness and Homeless Persons in Ramsey County
1. 1998 Ramsey County Housing and Service Inventory Survey
In order to ensure the broadest possible community participation in
the Five Year planning process, to obtain the most accurate representation of the
County's inventory of housing and services for homeless individuals, and to
provide the Plan's Oversight Committee with valuable data not reflected in the
other sources, staff from the Ramsey County Community Human Services
Department and the Corporation for Supportive Housing prepared and disseminated
an extensive survey of the organizations in Ramsey County that serve and/or house
homeless persons or persons at risk of homelessness. Modeled on the survey used
for the 1997 U.S. Department of Housing and Urban Development's Continuum of
Care planning process, the 1998 Ramsey County Housing and Service Inventory
Survey was significantly expanded to cover more services and housing settings and
to capture more data on the users of services and housing. Every survey recipient
received follow-up phone contact to ensure consistency in interpreting the survey
across all agencies.
1
There are a number of service sectors that do provide some service to
homeless persons, however, that were noY suroeyed. For example, neither food
shelves nor agencies that provide employment readiness training were surveyed,
and employment training programs were surveyed only when the agency in
question also provided an array of other, non-employment related services.
A second survey, designed to obtain data on the existing geographic
distriburion of services and to determine community attitudes towards the location of
new facilities, was distributed by Biko Associates to each of the 17 District Councils
in the City of St. Paul.
2. Annual Reports from Wilder Research Center's Emergency
Shelters, Transitional Housing and Battered Women's Shelters
Data Collection Project
In June 1998, the �Ider Research Center (WRC) released the Seventh
Annual Report on its effort to collect data on homeless adults and their children who
use emergency shelters, transitional housing, and battered women's shelters in Ramsey
County. These reports provide detailed information on the sheltered populations,
including demographic data (e.g., gender, race, age, education level), prior living
arrangements, patterns of shelter use, and housing outcomes. The WRC has been
coIIecting most of these data since 1991.
For the purposes of the St. Paul/Ramsey County Five Yeaz Planning
Process, the key limitarions of these reports aze that they do not present data on the use
of services by homeless people and they do not present information on permanent
supportive housing.
3. Office of Economic Opportunity's Quarterly Shelter Survey
The Office of Economic Opportunity (OEO) of the Minnesota
Department of Children, Families and Learning conducts a quarterly survey of
emergency sheIters, transitional housing programs, battered women's shelters, and
agencies providing motel vouchers across Minnesota. Since 1985, its quarterly
reports have documented the sheltering activities provided by these organizations
for one night every February, May, August, and November. For the purposes of
this report, staff requested a breakout of Ramsey County's data. These data, set
against the backdrop of statewide data from this survey, provide an invaluable
source of longitudinaI analysis of the shelter and transirional housing use in
Minnesota.
2
�/ 9 - a�a
Similar to the Wilder Annual reports, the main limitations of the Quarterly
Shelter Survey for the purposes of the five-year planning process is that it does not
account for the use of services by homeless persons, it does not account for
permanent housing or permanent supportive housing, and it surveyed a shorter list
of agencies than are represented in the data gathering survey completed specifically
for the Five Year Plan.
Focus Groups and Interviews
Focus groups were held and interviews were conducted by Biko
Associates to gather qualitative information from opinion leaders, stakeholder
organizations and users of the homeless services delivery system. At these sessions,
information was sought regazding views about the problems of and solutions to
homelessness.
Focus groups were held with the following groups:
♦ African American women in transitional housing
♦ Homeless American Indian men, women and youth
♦ Homeless unaccompanied youth
♦ Homeless single men (including Veterans)
♦ Homeless people with HIVIAIDS
♦ Homeless families
♦ Property Owners and Managers
Interviews were conducted with:
♦ Honorable Jerry Blakey, St. Paul City Council Member
♦ Honorable Andy Dawkins, Minnesota State Representative
♦ Honorable Dino Guerin, Ramsey County Commissioner
♦ Honorable Susan Haigh, Chair, Ramsey County Boazd of Commissioners
♦ Anonymous Shelter Provider and Service Provider
♦ Jobs Now Coalition
♦ McKnight Foundation
♦ St. Paul Area Council of Churches
♦ Oversight Committee Members
Interviews with Drop-in Centers and Outreach Workers
Staff from the Corporation for Supportive Housing conducted a series
of interviews with staff of drop-in centers and outreach workers. Because the data
from the surveys referenced above applies to shelterea' homeless populations, these
3
interviews were focused on identifying the characteristics of the unsheltered subset
of the homeless population, and the needs and barriers that this group confront.
Interviews were held with directors or staff (including outreach workers) of: Union
Gospel Mission; Listening House; the ACCESS program; of Catholic Chazities'
Dorothy Day Center, Streetworks.
0
.�
. .�
Appendix C
Lzst of Recommendations
PREVENTION
1) The City and County Should Establish a St. Paul/Ramsey County
Landlord-Tenant Education and Dispute Resolution Program
2) The County Should Act to Improve Coordination of Youth
Services in Ramsey County
3) The City and the County Should Continue, Support and
Expand Efforts to Reduce Disparities in Housing and
Homeless Seruices Prouided to People of Color
4) The City and County Should Urge the Legislature to
Establish a Statewide Homeless Prevention Planning Council
EMERGENCY SHELTER
5) The County Should Facilitate the Provision of Emergency
Shelter with a Family Reunification Focus for Unaccompanied Youth
6) The County Should Work to Develop Additional Emergency Shelter
Options for Homeless Youth When Family Reunification Efforts are
Exhausted
7) The County Should Facilitate the Development of a 10-bed
Shelter for Minor Parents and Their Children
TRANSITIONAL HOUSING
8) The City and County Should Facilitate Development of.
♦ 100 Units of Transitional Housing for Families
♦ 100 Units of Transitional Housing for Single Adults
1
♦ 50 Units of Transitional Housing for Youth
PERMANENT SUPPORTIVE HOUSING
9) The City and County Should Facilitate Development of.•
♦ 400 Units of Permanent Supportive Housing for Single Adults
♦ 200 Units of Permanent Supportive Housing for Families
♦ 50 Units of Permanent Supportive Housing for Youth
LOW INCOME MARKET RATE HOUSING
10) The City and County Should Support Coniinued Legislative
Funding Dedicated to the Preservation of Existing Federally
Subsidized Housing
11) The City and County Should Establzsh a Joint Polzcy to
Preserve Existing Nonsubsidized Low Income Housing Stock
12) The City and County Should Create an Affordable Houszng
Owners Advisory Group
13) The City and County ShouZd Encourage the Development
of Private Market Low Income Housing Throughout the
City, County and the RegionBy
• Adopting a mixed-use, mfxed-income policy
• Developing Mechanisms to Bring the Resources and
Expertise of the Business Community to Bear to
Integrate More HomeZess and Formerly Homeless
Persons into the Workforce
• Urging the Legislature to Establish Stronger Incentives
to Improve the Effectiveness of the Livable Communities
Act
• Supporting the Goal of Habitat for Humanity to Double
its Production Capacity in Ramsey County
2
99-a�a
HOMELESS SERVICES
14) The County ShouZd Work to Increase Capacity of Agencies
to Deliver Basic Services Essential to the Cycle of HomeZessness
IS) The County Should Facilitate the Provision ofMore Intensive Case
Management, Counseling and Financial Management Services
16) The County Should Develop Mechanisms to Improve Linkages
Between Property Owners and Social Service Providers
17) Low Income, Transitional and Permanent Supporiive Housing
Developers and Homeless Service Providers Should Seek
Partnerships with Veterans Service Organizations
18) Youth Drop-in Centers Should Seek Funding to Increase
the Hours and Days They are Open
19) The County Should Assess the Feasibility of Creating a
Centralized System of Intake, Assessment and Record Keeping
20) The County Should Seek Mechanisms to Ensure that
Cultural Competency Trafning is Given to Service Providers
22) The County Should Seek Mechanzsms to Ensure lhat
Necessary Technical and Financial Resources Are Provided
to Agencies of Color
FUNDING
23) The County Should Create a Funders Council
3
� ��
lnterdepartmental Memorandum
CTIY OF SAII�T PAUL
TO: CiTy Council Members
FROM: Brian Sweeney�� •. �
r ...�..w a .
l/
DATE: May 26, 1999
RE: Replacement Housing
`�j-�Go
Attached is the report you requested regarding the City's replacement housing policy outlined in
Chapter 93 of the Administrative Code.
Following our presentation at the City Council meeting May 26, and after you have a chance to
read the report, you will understand that Chapter 93 is very narrow in its focus as it relates to
housing, and afFordabie housing, within the city, and how it impacts the activities of City
departments and agencies. Chapter 93 only applies to housing, commercial, o�ce or indusirial
development projects in which the City/HRA provides financing assistance, and where the units
lost and replaced are affordable to households with incomes not exceeding 55% ofthe area
median income. Chapter 93 does not apply to other City projects involving pazks, public works,
code enforcement and schools.
In order to put the discussion I expect we will have in context, I believe it is important to
comment on the lazger housing picture during the last ten years. Note the following brief
introductory comments.
Supply and Demand for Affordable Housing and Recent Policy
The rental vacancy rate in Saint Paul was 7.1 percent in 1989; today it is in the
neighborhood of 2 percent. This is the cleazest overall indicator of the relationship of
supply to demand. For rental housing, a vacancy rate in the neighborhood of five to six
percent is generally considered desirable for a healthy mazket. A vacancy rate this low
means that choice will be quite limited for most households in the market, and owners
will be able to keep rents high even for units of lower quality.
Because of the mazket and the trend for the first half of the 1990s, the 1990 housing plan
did not put an emphasis on additions to the supply. It did emphasize preserving
affordable housing and, where additions could be made, adding to the supply of units for
lazge families. Lazge family rental needs are typically the most difficult to meet.
r�
, . , _ f�
• Today, with the vacancy rate as low as it is, affordable rental needs for any household
size are difficult to meet.
• The 1990 policy supported increasing housing assistance, particularly assistance such as
Section 8 certificates and vouchers that give households the ability to rent in the private
market.
• Beginning in 1996, and until recently, the City's policy, as expressed in the Council
adopted Housing Action Program, was to "continue to refrain from construction of new
multi-family low income housing units within the City of Saint Paul."
• Untii 1994, there were federal, state and local replacement housing requirements. Up to
that time PED prepazed annual reports regarding replacement housing activities. After
1994, with the repeal of the state replacement housing legislation, and the City policy of
refraining from constructing low income rental housing, we have not done annual reports.
Housing Numbers-Current Estimates
Housing units in the city: 117,000
Affordable housing in the city: (based on a report we provided to the HRA in September
1998) of the 55,021 single family properties, 94% are affordable to households with
incomes at 100% of the azea median income; neazly 60% of the single family properties
are affordable to households at 50% of area median which currently is $31,800 for a
family of four. The estimated current Saint Paul median income is $46,500.
The average rent for apartsnent units in Saint Paul is affordable to families at 50% of the
area median income.
Assisted (subsidized) housing in the city: there is approximately 15,000 publicly-assisted
housing units within the city, affordable at various income levels from 30% to 80% of
area median income.
For the period 1989-1998:
1,147 units have been constructed (including non-residential buildings converted
to housing)
329 vacant units have been rehabilitated (involving assistance from the City)
1,381 units have been demolished
95 units aze the net additional units
�replacem
. � , •"
City Council
:wr_�a���z���
May 25,1999
I. Purpose
The City Council of the City of Saint Paul by Resolution 99-260 has requested the Department of
Plaz�ning and Economic Development to report on the overall implementation over the last ten
yeazs of the Replacement Housing Policy, Chapter 93 of the Administrative Code.
II. Intent and Definition of Replacement Housing
Chapter 93 of the Saint Paul's Administrative Code was adopted July 25, 1989. Chapter 93 of
the Saint Paul Administrative Code pertains to the Replacement Housing Policy for the City of
Saint Paul for city-assisted development projects. The Housing and Redevelopment Authority of
the City of Saint Paul on August 23, 1989, approved by resolution 89-8/23-3, the City of Saint
Paul's Replacement Housing Requirements for HRA-assisted development proj ects.
� The intent of this chapter is that the City of Saint Paul finds that it is in the public interest to
promote the production and preservation of an adequate supply of decent, sanitary, safe and
affordable rental housing for low-income residents (as defined in Chapter 93 - see below). The
city desires to affect a policy and procedure whereby the potential loss of such rental housing due
to a city-assisted development project (as defined in Chapter 93 - see below) will be reviewed in
relation to the overall supply of affordable rental housing in the city, and, where appropriate,
based upon the detemunation of the City Council of the City of Saint Paul, a plan will be
developed to replace lost rental housing with housing that meet the current needs of the city's
low-income residents.
Affordable rental housing which is defined in Chapter 93, as residential rental housing units
which have not been vacant for more than two (2) yeazs, aze a legal zoning use, and have gross
rents now or at any time in the previous twelve (12) months which are not more than thirty (30)
percent of fifty-five (55) percent of the metropolitan statistical azea median as such income may
be reported by the U.S. departxnent of Housing and Urban Development, adjusted for family size.
City-assisted development is defined in Chapter 93, as any housing, commercial, office or
industrial real estate development projects, in which the city provides financial assistance or aid
in securing public financial assistance, including any federal grant administered by the city, any
city revenue bond fmancing, tax increment financing, tax levies, funds or revenues controlled by
the city, except, however, projects which (1) have values of less than one million dollars
($1,000,000); (2) result in a loss of five (5) or fewer affordable rental housing units; or (3) aze
provided to individuals for purchase, remodeling, or renovation of single-family dwellings will
not be considered °city-assisted projects" and are exempt from Chapter 93.
III. HistoryBequirements
The City ordinance went into effect on July 25, 1989. Since that tnne, PED staff has monitored
the demolition and construction/rehabilitation of afFordable rental housing within the City limits
applicable to Chapter 93. Along with the monitoring of the city requirement, PED Staff is also
required to monitor and report on affordable housing that is demolished, constructed, or
rehabilitated under the Federal Replacement Housing regulation and between 1989 and 1993 the
State of Minnesota's Replacement Housing requirement.
The Federal Govemment, State of Minnesota (1989 - 1993) and the City of Saint Paul has or has
had a Replacement Housing Requirement. Each agency's regulation, although different, has the
same overall goal in which to replace affordabie housing.
A comparison of the Federal and the Local Replacement Housing requirements can be reviewed
in Attachxnent B.
IV. List of Replacement Housing Projects
The City of Saint Paul has done 28 projects tbax displaced units or added units to the city since
1989 that aze applicable to Chapter 93. The tallies of the disQlaced units are as followed:
� 1989 - One project displaced six units (Lyton Pazk Place),
1990 - Four projects displaced 20 units (814 Selby, 298 Mazshall, 595 York & 616 Edmund),
1991 - Four projects displaced 12 units (474 Hall, 484 Lynhurst, 25 W. Winifred, & 469 Ada),
1992 - Two projects displaced nine units (917 Rice & 908 Payne),
1993 - No units were displaced,
1994 - One project displaced eight units (607 York),
1995 - No units were displaced,
1996 - No units were displaced,
1997 - No units were displaced,
1998 - One project displaced 102 units (Lakewood Apartment).
The total of 13 projects displaced 157 units.
In the same tune period, the City of Saint Paul in 15 projects created 325 units that are applicable
to Chapter 93. The tallies for the creation of units aze as follows:
1989- No units were replaced,
1990 - Two projects created 35 units ( Van Dyke Townhomes, & Hamline Pazk Townhomes)
and one project that created 50 scattered site units (PHA),
1991 - Two projects created 105 units (Mary Hall & Bradley Terrace) and one project that
created nine scattered site units (PHA),
1992 - Three projects created 59 units (Comerstone, Wabasha Terrace & Galtier) and one project
that created 16 scattered site units (PHA),
1993 - One project created one unit ( Larpentuer Avenue),
a � �a
1994 - One project created 10 units (York/Sims),
1995 - No units created,
1996 - No units created,
1997 - Two projects created 30 units (B1ufFHomes & Aim Dah Yung),
1998 - One project created 10 units (914 Thomas).
Attachment A is a tally of the total units and unit size displaced and replaced for each yeaz from
1989 to 1998 which are applicable to Chapter 93. The Attachment also indicates the overall net
effect of this tally.
A conclusion to this tally, is that there is a positive net gain in replacement of affordable rental
housing in the City of Saint Paul as required to be monitored by Chapter 93. As can be seen in
the final tally and the overall general City policy of developing affordable family rental housing,
the City removed mainly one bedroom units but replaced them with larger two, three and four
bedroom units. The over a11 increase of affordable rental housing in Saint Paul aze 168 units.
V. List of Non-Replacement Aousing Projects
Certain projects within the City of Saint Paul aze not included in the Local Replacement Housing
requirements. These projects may remove or create affordable housing units in the City of Saint
Paul, but do not meet the definition of Affordable Rental Housing applicable to chapter 93 and
� therefore not counted in the tally.
The projects that might reduce affordable housing in Saint Paul could include projects such as
housing code enforcement and nuisance properties, expansions of roads, parks, recreation
centers, creation and expansion of public schools, and any other development from outside
agencies or private developers. Removal of affordable housing could include, the Code
Enforcement Department,.under the Nuisance Ordinance that may remove structures that are
unfit for human habitation. The Real Estate Division acting on behalf of the Public Works, Parks
& Recreation, and other city departments, may purchase affordable housing for the intent to
expand roadways (Da1e Street (10 Houses)) , recreation centers (Jimmy Lee Rec Center from (55
to 65 housing units)) or parks. They may also purchase affordable housing if neighborhood
group request their assistance for an unseen problem (Hoyt-Montana Neighborhood (29 of 34
houses purchased)). The School District may remove affordable housing for the expansion of
public schools (Arlington High School (22 Houses), Jackson School (13 Houses), York
Achievement Plus School (56 Houses)). These projects aze not a housing, commercial, office or
industrial real estate development and therefore not applicable to Chapter 93.
Certain projects that created affordable housing units, which are not counted as applicable to
Chapter 93, could include rehabilitation/new construction where rents maybe slightly higher than
the Replacement Housing 30% of 55% income requirements (Low-Income Housing TaY Credits
at 60°/o, and CDBG's 80% of a median income requirement). Construction of affordable single
family homes (Houses to Homes and In-fill Housing), rents that do not exceed the 10-year rent
restrictions (Lexington-Hamline Housing Coop), and where the area mazket dictates affordable
rents (683 Hague Avenue, private developers) are also not included in this tally.
The Tally also does not include construction/rehabilitation from outside agencies (FHF, FIUD,
MFIFA, PHA) who create affordabie rental housing within Saint Paul without any CiTy/fIRE1
assistance
This tally also does not include projects that had a zero net loss of squaze footage. Cen�al
Tower, Ramsey Hill and Cathedral Hill are three examples of zero-net loss projects. In all three
examples, the total units were reduced but were increased in the respect of lazger bedroom units.
The squaze footage of each building was not reduced and the building will house the same
number of tenants. Therefore, these projects do not fall into the replacement housing
requirements. Attachment C outlines the above-mentioned examples.
Therefore, these projects and similaz projects would not trigger the Replacement Housing
requirement of the City of Saint Paul.
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REPLACEMENT HOUSING GUIDELINES AND COMPARISON
FEDERAL AND LOCAL REGULATIONS
SUMMARY OF STATU"I`ES:
FEDERAL
HCTD (the Department of Housing and Urban Development) requires replacement of a11 occupied
and vacant occupiable low/moderate income dwelling units demolished or converged to a use
other than as Low/Moderate Income Housing in connection with an activity assisted with federal
CDBG (Community Development Block Crrant) funds. A low/moderate income dwelling unit is
a unit with market rent (including utilities) not exceeding fair mazket rent (FMR) for Section 8
existing housina. Low/moderate income dwelling units include owner-occupied units which
would rent at or below FMR if they were rental. "Vacant Occupiable° means those units in
standard condition and those in substandard condition but suitable for rehabilitation. It makes no
difference how long the units have been vacant.
Replacement units for units demolished or converted with Federal CDBG funds:
• Must be provided one year before commencement of demolition or conversion activity to
three years after.
• Must contain at least the same number of bedrooms as the units which were demolished
or converted. (Six one-bedroom units may be replaced with two three-bedroom units).
• Maybe rehabilitated vacant units if the units were substandazd before rehab and the units
were vacant at least three months before the contract between the city and the property
owner.
• Maybe units in project-based Section 8 subsidy programs.
• Must be designed to remain low/moderate income dwellings for ten years.
CIT'Y
A City ordinance requires replacement of affordable rental housine which is demolished or
converted i£ 1) such loss results in a net loss in the city; or 2) the loss is of the type needed in the
city and 20 or more units; or 3) the loss is due to an activity directly funded from federal CDBG
funds. Affordable rental housing is rental housing with gross rents which are not more than 30%
of 5�% of inedian income. Units vacant less than two yeazs must be replaced. Projects with a
value of less than $1,000,000 or resulting in a loss of five or fewer units are excluded from
replacement under the city ordinance.
Replacement units for units displaced by the city or a subgrantee of the city and subject to
replacement under the city ordinance:
• Must be provided within three years of the commencement of demolition or conversion
activity.
• Must be sufficient in number and size to house at least the number of persons who could
have been housed in the units to be lost.
• Maybe provided as new construction or rehabilitated units vacant more than rivo years.
• Must be affordable for at least 10 yeazs from the date of initial occupancy.
• Maybe provided by any public agency or private development.
To better illustrate the differences in the definitions of low-income housing and the requirements
for replacement units under the two laws, the following comparison of the above informafion is
provided in the following:
REPLACEMENT HOUSING LEGISLATION: COMPARISON OF TWO LAWS
� DEFINITION
FEDERAL
LOCAL
Unit Requiring
Replacement:
Rent L'units of
Replacement Housing:
Vacant Units,
Replacement Required i£
Triggering Activity:
Low/moderate income dwelling
unit: mazket rent not exceeding
FMR for Section 8 existing
Housing, include owner
occupied units.
Section 8 Fair Market Rent
(Fair Mazket Rents (FMR))
Occupiable or substandard
but suitable for rehabilitation.
Activity using CDBG funds
which direcfly results in
demolition or conversion of
low/moderate dwelling units
to another use.
Affordable Rental Aousing:
Gross rents which aze not
more than 30% of 55% of the
median income.
30% of 55% of inedian
Vacant less than two yeazs.
Demolition or conversion of
Affordable units results in net
loss in the city or loss is of
the type needed in the city
and 20 or more units or loss
is due to an activity directly
funded from CDBG.
a� -��
Replacement Units
Defined as Newly
Constructed or:
Rehabilitated vacant units if
substandazd and vacant at least
three months prior to rehab.
Units in project-based Section 8
subsidy program.
Rehabilitated units vacant
more than two years.
Replacement Units
Affordability Beyond
Initial Occupancy:
Timing of Replacement
Units:
Configuration of
Replacement Units:
Designed to remain
affordable for ten yeazs
from date of occupancy
One year before activity
to three yeazs after
commencement of activity
Replacement with units having
at least as many bedrooms
(six 1BR units could be
replaced with two 3BR units).
Exceptions from HUD determines there is an
Replacement adequate supply of vacant low/
Requirements: moderate income dwelling units
in standard condition and available
on a nondiscriminatory basis.
Affordable for at least ten
yeazs from date of initial
occupancy.
Within three yeazs of the
commencement of demolition
or conversion activity.
Sufficient in number and size
to house at least the number
who could have been housed
in the units to be lost.
Project has a value of less
than $1,000,000 or results in
a loss of five or fewer units.
�, , ,�
ATTACHMENT C
ZERO NET LOSS OF SQUARE FOOTAGE
UNITS DISPLACED Y7NITS ADDED
TYPBBEDROOM(S) TYPEBEDROOM(S)
PROJECT EFF 1 2 3 EFF 1 2 3
Central 213 58 0 0 69 127 1 0
Towers
Ramsey 0 0 0 0 0 0 0 0
Hill
Cathedral 9 51 33 0 0 21 16 23
Hill
Bluff 4 28 31 0 0 9 21 14
Homes
TOTAL 226 137 64 0 69 157 38 37
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