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87-1400 WMITE - CITV CLERK .� �� PINK - FINANCE � ^F' �7 /� n �GANARV - DEPARTMENT G I TY OF SA I NT 1 A l.} L COUflCIl (' s� � BLUE — MAVOR File NO. u • — / ` � � � Council Resolution ---�� Presented By ������ � 1� -_� Referred To Committee: Date Out of Committee By Date A RESOLUTION APPROVING THE COMPREHENSIVE HOMELESS ASSISTANCE PLAN AND DIRECTING THAT IT BE SUBMITTED TO THE U.S. DEPARTMENT OF HOUSING AND URBAN DEVELOPMENT WHEREAS, on July 22, 1987, President Reagan signed into law the Stewart B. McKinney Homeless Assistance Act (The "Act") ; WHEREAS, Title IV of the Act contains five new or reauthorized housing assistance programs to be administered by the U.S. Department of Housing and Urban Development ("HUD") , specifically: Subtitle B. Emergency Shelter Grants Program Subtitle C. Supportive Housing Demonstration Program, to include both: (1) Transitional Housing Demonstration Program; and (2) Permanent Housing for the Handicapped Homeless Subtitle D. Supplemental Assistance for Facilities to Assist the Homeless Subtitle E. Section 8 SRO Moderate Rehabilitation Program WHEREAS, Subtitle A of Title IV establishes the requirements for the Comprehensive Homeless Assistance Plan (the "CHAP") ; CQUIVCILMEN Yeas Nays , Requested by De artment of: � � In Favor J �/'',= /��,�� _ __ Against BY _ Form Approved by City Attorney Adopted by Council: Date ��"""—' Certified Yassed by Council Secretary BY ��.L�.e.—�.! . By Approved by Ylayor: Date _ Approve by M bmission to Council � BY - — - . � �-�y �yoa . � WHEREAS, assistance under the various Subtitles of Title IV may not be made available to or within the jurisdiction of States, or cities that are eligible for formula grants under the Emergency Shelter Grants program ("ESG Formula Cities") , or counties that are eligible for formula grants under the Emergency Shelter Grants program ("ESG Formula Counties") that do not have a HUD-apnroved CHAP: WHEREAS, notice on the requirements and timeline for the CHAP were published in the Federal Register August 14, 1987 and require CHAP submission within ninety days of the publication of the Notice; WHEREAS, the City of Saint Paul, Minnesota (the "City") is an ESG Formula City and therefore is required to submit a CHAP to HUD no later than September 28, 1987; WHEREAS, the City has had the benefit of several reports and plans regarding homelessness in Saint Paul, including: (1) "More Than Shelter: A Joint Plan to Meet the Housing needs of Low Income, Childless, Non-Elderly Persons: A Response to the Problems of the Homeless" (October, 1985) (2) "The 1987 Report to the Saint Paul City Council and Mayor from the Overnight Shelter Board" (July, 1987) (3) "A Report to the United Way of the Saint Paul Area on the Recommendations of the Human Development Action Coalition ("HuDAC") on Long-Term Solutions to Hunger and Homelessness in the Greater Saint Paul Metropolitan Area" (May, 1987) WN�7E — CITV CLERK . � e PINK — FINANCE G I TY O F SA I NT PA U L Council . ��ANARV�— DEPARTMENT BLUE — MAVOR File NO. � / � Council Resolution Presented By Referred To Committee: Dafe Out of Committee By Date WHEREAS, the CHAP, as drafted and presented to the City Council of the City of Saint Paul, attempts to make maximum use of the reports and plans previously completed in order to present a comprehensive review of the needs of homeless persons and a coordinated approach to maximize the use of available HUD funds; WHEREAS, the CHAP Draft has been distributed to special interest groups and public and private agencies working with homeless individuals and families for their review and comment; and WHEREAS, comments which have been received by staff were presented to the City Council prior to their consideration of this resolution; NOW, THEREFORE, BE IT: RESOLVED, by the City Council of the City of Saint Paul, Minnesota that the Comprehensive Homeless Assistance Plan dated September 24, 1987 is hereby approved; and be it further RESOLVED, that the City Council hereby directs the Mayor to submit the Comprehensive Homeless Assistance Plan to the U.S. Department of Housing and Urban Development within the time-frame specified in the Federal Register dated August 14, 1987. CQU[VCILMEN Requeste/��a ent of: Yeas Drew Nays Nicosia �''� Rettman In Favor Scheibel •% __ A gai n s t B� � � Sonnen - — Weida W11SOri SEP 2 4 �87 Form Approved by City Attorney Adopted by Council: Date Certified Pas e b ncil , cre BY �- ��� By 9' � �°w'� Approved ;Vlayor: Date 8 1987 Approved y May f Subm' sion to Coun '1 _ By — 1��`� PUBt.ISHED 0 C T � - 1987 • ' �t/.$/i✓�— DEPARTMENT ���<���N° _ 06244 � . _ /1�iQ��/� I�1/�'��, CONTACT � ;���� PH�NE Y .�t� � � DATE ��� Q Q SIGN NUMBER FOR OUTING Cli All Loca�ions for Si nature :. / Department Director 3 Director of �lanaqement/Mayor Finance and Management Services Director � �City Clerk Budget Director �/ �',�.�./,�.��,,,�ii. SC.��•`i� _2 City Attorney WHAT WILL�BE ACHIEYED 8Y TAK�NG ACTION ON TNE ATTACHED MATERIALS? (Purpose% ._./ Rationale) : , ,�Y �f�' ,�,•� T�1 l•�,7��t c•�ip� /��Sd�vf� s�J oi✓ i+/�/�,� . A �[ �/�� � /I . � �, e �H/L� • / 4"��Kf•,�/�i�/(.r ►�/L I%/�.t.� � .�� � /- �/ /.ss �J1 Q �I'O ✓ � Ob �rrt�d/"I�/�tS�17L �/I�w�/ �SS�J T4 i/4 ��4 vC. .SA.yr.f .�v/. �t /�/a� ��s � 4�s�/�� ��r���.,r. �� .� �%! 4 Q �SS � A�t o r��'•vt . � �JCe ���i�'l i'� �1�tJ � �' y � COST/BENEFIT, BUDGETARY AND PERSONNEL IMPACTS ANTICIPATED: � ��/�_ �p,.�/SS ��✓�/ . yv,� •�K.�ts� /�4 �t �I�t /��4� � ,��,.r ,�iy w.// � //d a.�, � � G� Q:wq/bL a�, � � `t.rr�s/'ss SEP � 7 �gg7 ���rfs .�t � �.� . C�UNC��►�A FINANCING SOURCE AND BUDGET ACTIVITY NUhBER CHARGED OR CREDITED: (Mayor's S�gnas��"�' N ture not re- Total Amount of'Transaction: N/� quired if under $10,000) Funding Source: � '—" Activity Number: �' • ATTACHMENTS (List and Number All Attaci�nents) : _ , /, _ C.' �i�,�c c. % �Gos�./���.. . � ?, �,�a�� �,�� , � ,��,�:.�.. ,�l�.�./�ss / �¢,ss.�� /Q.,` DEPARTMENT REVIEW CITY. ATTORNEY_REVIEW s No Council Resolution Required? - '. Resolution Required? Yes No � Yes �I� Insurance Required? Insurance Sufficient? Yes No Yes No Insurance Attached:�,¢ (SEE •REVERSE SIDE F�OR INSTRUCTIONS) . � Revised 12/84 � ��7---/��O � �,���% , �OMPRFHENSIVE HOMELESS ASSISTANCE PIAN ��-��� SISTANCE ACT, N•R• 558. ILL, N.R. 1827 • - F.Y. 97) TARGET DN ELIGIBLE POPULATION USES ------------- --- CAPITAL COSTS. OPERAtING EXP'S Nln T 15X SUPPORlIYE SYCS, WI WAI�R NIA FOOD pp6RATING EXPENS£S RENTIUTILITY ASSISTANCE ' E REHAB (TOTAL COST TO BE COMPENSATED 1ST PRIORITY � NOMELESS INDIVIDUALS � BY HAP � S14KIUNIT, + FIREISAFET FAMILIES WI CHILDREN (S20M) E 1) SItAlISI2IONAL NOUSING yp�IDICAPPED HOMELESS (S15N) 2� pE�, H� -- HANDICAPPED HOMELESS DEINSTITUTIONALI2ED ($30M) (CAPITAL, OPER.EXP'S) "OTHER 5UPPORTIV£" HOUSING (S15M) 'OU?PATIENT PRIH�Y �� SUBSTANCE ABUSE TREATMEN! MENTAL HEALTN SVCS pUTREACH OUTPATIENT MENTAL HLTN T[tAINING CASE MANAGEMT SUPPORIIVE AND SUPEItVISORY SVCS E g yitEAiMlENi . FAMILIES W/ CBILDREN I___ 50X � ED 1) SUPPLENENT EMER SHELiER GRANT OR ELDERLY ___ iRANSITIONAL HOUSING YROGRAMS '� 2) ASSIS?ANCg FOR INNOVATIVS PROGRAMS (CAPITAL OR SVCS, INCLUDING CBILD CARE) � FUND EMERGENCY SVCS it�tU CN►�• CONVERSION OF SURPLUS VA SPACE PROVIDS HOMELESS CflILDREN MIYB ACCESS yp •g(tEg� APpROPRIATE PUBLIC EDUCA?ION" LITERACY TRI►INING� OUTREACH, COORDINATION prepared by: City of Salnt Paul, Mlnnesc=a , Dtlpartmenc of Planning �nd Economic Development . � ���'�"�� �OMPREHENSIVE HOMELESS ASSISTANCE P?1,N CONTENTS _ ���� � . / � . I. INTRODUCTION � II. STATEMENT OF NEED '2' III. . INVENTORY OF FACILITIES AND SERVICES � IV. STRATEGY � A. MATCHING NEEDS i11ITH AVAIIABLE SERVICES___ _ _ B. RECOGNIZING SPECIAL NEEDS = _ V. ERPIANATION OF HOW ASSISTANCE AVAIIABLE THROUGH SIIBTIT.LES B-E, � 8 _.TITLES IV WILL COMPI�MENT AND ENHANCE AVAiIABLE SEQVICES = -- =-" - -- - - - _ - - - � - - EXHIBITS - - _ ._ _ _ __ _ .— , _ -- A. Defining the Target Group --_A Diverse Population-with Different Needs - -_ _ - : -: _ -_ . _--. -.. ., ,_ >_ __ - - ---- _ --_- .. _ -- .__... B. :^ :_Background oa Hunger and Homelessness ) C. A Brief Description of tb�;�helters: - _ - - - - D. Hunger and�Homeless Service Provide�in the East Metropolitaa Area (NOTE: This includes :al�-of the City -of_Saint _Paul} - .3�i3. - _ - _ =- . _ - _ _ - - _ . _ =- . E. Resolution -of-the _City Cou�cil o£ the City:of �Sa3.nt -Pau1� Miiinescta ' = �ertaining to. the _CHAP _ REFERENCE REPORTS - - - - - - : 1.) � More Than�Sheltezt �.:A -Joint Plan to l+teet the Sousing Naads of LoM • Income�_Childless.. Non-Elderly Persons�; A B,e�ponse to tba . Problems -of t�ie gorieless (Revised. Octobar. 1985). 2.) Tha- 1987_ Aepozt to ttse Saint Paul City Council and Iiayor froa tbe Overnigh� �helter Board (July i987). _ . __ - - -_ _ -- -- - _ - 3.) A Report to ths �aited Nay of tbs Ssirt Paul Area on the . ' Recommaadations of �the HvOan Devalopmaat Action Coalition on Long- Term Solut�ans to I�uager and Homeles�aess ia=the Gzeatar Saint - • Paul liatropolitaa Araa �I4ay� 1987). � - --- - � � �-���--� COMPREHENSIVE HOMELESS ASSISTANCE PIAN �, INTRODUCTION - This Comprehensive Homeless Assistance Plan ("CHAP") has been written and submitted in order to meet the requiremeats of the Stewart B. McKiriney Homeless Assistance Act (the "Act") , Title IV, Subtitle A. The City of Saint Paul. Minnesota, through its own operating departments as well as through cooperati•�e working arrangements with local non-profit organizations ("�n-profits") , tbe Public Housing Agency of the City of Saint Paul (the "PHA") � Ramsey County government agencies (the "County") , and State of Minnesota government agencies (the "State") intends to acce�s funds available through the authorities in Subtitles B throueh E of Title IV of the �r Act to enhanc�j complement, and expand�ahere appropr a e� acilities C�C�� and services far homeless individuals and families. Specifically� the � subtitles referred ta in �he previous_ sentence include:- - -- - - - -- - _ _ _ - Subtitle B. -Emergency Shelter Grants Program _ - � _ _ - - - - _ - �ubtitle �.- _ �pportive Housing Demonstration Program:_ . . . _ 1.)_ Transitional Housing Demonstration _ _� _ _ - Program; _ �, 2.) Permanent Housing for the Handicapped _ _ gomeless - - _ -. .. _.- _.��:.�.�s Subtitle D. Supplemental Assistance for Facilities to Assist - the -Homeless _ �ubtitle E. Section 8 SRO Moderate Rehabilitation Program - -- - - -- --- - - - - ---- - -- - - - - - - _ _ For the purposes -of -thi-s CHAP,:. t�e definitionsof "homeless". "homeless individual", "shelter", and "trsnsitional housing" shall be the same as the definitionj used in. the �ct. an�the various proposed rulBS and. notices_ which have been publ-ished in the FEdesal 3tegister_.: - - _ - _ . : _ - _ _ _ _-- - - - - -- - - _ _.. -- _ - • � _ .�-�� ��� jj� �TATEMENT OF NEED For several year8� the City of Saint Paul (�he "City") has been attempting to provide facilities and services_to assist the homeless._ _A pfoneering effort_ to describe tlie needs of homeless people came together in October, 1985 - through the More Than Shelter report. t+[ere Than Shelter ha.s been a joint - fund-raising and development plan, undertaken by the Cities of Saint Paul and = Minneapolis� the Couaties of Rsmsey and Hennepin. and the Minneapolis/Saint . Paul Family Housiag Fund. a SO1(c)3 private, non-profit bousing finance � . corporation formed ia 1980 by the �Cities and the McKnight Foundation: Part II � of the More Than Shelter report defin�es one target subgroup within the homeless population -- single, non-elderlq, childless adults. The report . identifies the need to grovide a spectrum of housing/EUpportive services depending upon a person•s ability to live independently based upon a varietq of economic� sacial� mental health. psychological and physical factors (�Please see Exhibit A). • - The point� '� ' ` �f -"a �r',°•, �°-�-� -- _ - that the homeless population is a diverse group with a mix of different housing and services needs •• has not only been proven true for the single, non-elderly childless_:adu]S..�groug -but has also been evidenced among other homeless subgroups (families with children, elderly, mentally ill, and veterans). A demonstration of the varying needs of homeless people has been documented in The 1987 Report to the Saint Paul Ci�,y Council and Mavor from the Overnieht . Shelter Board (the "OSB Report"). The Saiat Paul Overnight Sheltez Board, wh�ch was created by the Mayor and City Council in . has the , primary charge to monitor usage of shelter facilities in the City and to . report annually to the or and City Couacil tt�eir recommendations on needed facilities and services� In itss summary of 1987 survey data, the QSB Regort states that: • -- The majority of homeless people expect to be without housing for less than 3 months. -- Approximately siuty percent have lived in tbe Z�ain Cities for a year or more - over a third have lived here eleven or more ysars. -- Forty percent of all of the homeless are wanting to accept help from a case�orker. -- Over three-quarters of the population do not appear to have mental health problems. -- Almost half have participated in some type of job training. � -- Sixty-three percent of the men are � on General Assistance. • -- Fiftq-nine percent of the men have looked for work within the last seven days. � -• At least two-thirds of the men do not appear to have chemical dependency problems. . -- Only 5� of the men and 2� of the women �ot want their own place to live. �� Q�,�� . S`� � aic Sve, .3 � �o�,��j ' � � ��� iy� / . ,�j� "The survey respondents remain a diverse group. All ages are represented. '/1v_ Approximately three-quarters of the shelter users on the survey night were � L men. There was a significant increase in the percentage (43� - 59$) of women who had their children in the shelter with them. Eighty percent of- the children were under age 10. However, children in the 10-13 year age bracket jumped from 5$ to 178." The OSB Report also dem nstrates that� despite advances in supplying more e r�/tr� shelters� transitional���ermanent housing, the number of requests for shelter has increased from 1986 to 19.87. An increase ia the number of "first- time" homeless persons is noted. � - - - The needs of homeless individuals and families go beyond shelter or housing alone. In May. I987� a report to the Saint Paul Area United Way was made by the Human Development Action Coalition on the problems and long-term solutions to hunger and homelessness in the greater Saint Paul metropolitan area (the "HuDAC Revort"). The Human Development Action Coalition ("HuDAC") is a task force of more than fosty rep.eser►tatives of the public, private� and nonprofit sectors in the greater Saint Paul area com�ened in October, 1986 by the Uaited Way of the ,��• Saint Paul Area. The task force, which is facilitated by the Public/Private Initiative_Project=of-the Nube�L_H,-_Humphrey-Institute_of:Public Affairs� University of Minnesota� des3.red- �o go beyond "treating symptoms of hunger and homelessness to solutions eliminating their underlying causes" and established four purposes: _ _ _- _ - - � (A) Developing a community consensus on the' causes and problems of _..,hunger.and:hom�i�asne�s;=:�_�=� _ - ==- (B) Seeking improved responses along a continuum of strategies and _ __-sErvices,� i.s.�-shott-tenn,_�ransitional, and long-term; (C) Ensuring ongoing �u�lic accountability. for the effectivepess of these strategies and services; and (D) Marshalling suppo��_,�=om_�he: public; private.,= and nonpr.ofi.t--__- sectors ia a variety-�of_ co�ui.it�wide ini-t-�atives fo� axsd with those in critical need of adequate housing, food, and/or better nutrition. , The "Backgrovitid on Hunger and Homelessaess"� contained in the HuDAC Report, " states that Saint Paul is experiencing an increase in the rnimber of women with childrea �rho--are homeless_ and _tha�-,, desgite �n _iacrpase. in the number .of food . shelves and. improved efficiency -in food df$tribution, the- nwnber--of , ' individuals being �erved i�cr:eased bet�ee� -198-5 and 1986. aad 20 per,�ent of the _ _ _ _ _ families with__children responding_to a� ,sur_v_ey _of_ Saint, Paul area food shelf _ users reported -that their c�rildren missed ane or more aneal�in the previous _ -- - -_. _ ____ . month because they lacked food. (Please see Exhibit B) . �. 3 . . ��-�,��� Taken together� the More Than Shelter report� the Q,�B Re,port� and tha �p�C Report clearly articulate tbe diverse housing/supportive service needs within -each-of the many subgroups_comprising the homeless populatioa in Saint Paul. These three reports also document the need for the assistance availabla under each of the four program subtitles in Title N of the Act, specifically: . Subtitle B. Emezgency Shelter Grants Program; � � . �,ibti_ tle C. Supportive Housing Demonstration Program, including botk►: � 1.) Transitional Housing Demonstration Program; and 2.) Permaaent Housing for Handicapped Homeless; Subtitle D. Supplemental Assistance for Facilities_to Assist_the Homeless;" aad - =- _ - :_ - _ _ : Subtitle E. Section 8 SRO I4odezate Rehabilitation Program. � ; . _ �___� �--- _ _ _ - - _._ __ --- = - -__ --- - _- -. --- _> _ - - - --- - _ _ --_ . - -- - - - - - - - ----- -- _. __ __ ------ _ - . . � .. ��.�- ���, ' III• INVENTORY OF FACILITIES SERVICES A. FACILITIES � The OSB Report includes an inventory of facilities providing emergency shelter (Please see Exhibit C). This inventory e�.� supplemented by the following information: ��S Transitional Housing * YWCA (91 I.exington Avenue) - 19 apartment units for women with children participating in the YWCA•s Progressive Housing Transitions Program. * YWCA (scattered sites) 20 units of transitional housing rented from private landlords. Permanent Housin� * American House (xxx Wacouta) 56 SRO units (new) � * Wilder Apartments at Snelling (x�c Snelling Avenue) 76 SRO units (new) * Dorothy Day (186 Old Sixth Street) - 25 SR0 units (new) * Rehabilitated SRO units (3 scattered sites) 67 SRO units * Scattered Site, 3 Bedroomf(3 sites) 47 towtihouse units for families with children; rents $250 - 300 below current market rate for 3 BR units * St. Paul Indian Housing Program (scattered sites) 11 rehabilitated single family houses for American Indian families with children; Section 8 rantal assistance for 15 years. B. SERVICES In addition to the services referenced in the OSB Report's iuventory of services and to individualized counseling/training/supportive services �' provided in con�uaction with the YWCA's transitional housing facilities� a number of organizations and programs provide assistance to homeless persons in Saint Paul. The HuDAC Revort su�marizes these services. (Please see Exhibit D). � " _ -� ��� � (;�� . � STRATEGY • Parts II (Needs) and III (Imientory) of this CHAP illustrate that although a considerable base of facilities and services exists to assist homelesa � __ __ persons� the need for housing/supportive services continues to eupand. �Lore Than Shelter� the OSB Report� and the HuDAC Report-all agree-that a - =�- - continuum of facilities and services must be maintained and added to in order to provide: _ . _ -- short-term. emergency assistance: � � � • -- •sransitional or interim assistance toward developing �� ___self-sufficiency; and . -- long-term-opportunities for persons-who can live - = - - independently. - - Four targeted sub-groups within the homeless population were specifically�_n__ referenced in the Act as_having-special needs. The=City. strategy:to provide:a-== continuum of housing/.supportive services von2d address- the needs_of-the-faur- � _ specific sub-groups as-£ollops: - - .-. _ . --_ _ - . _ : _ 1. Families with children .3#�/9leedJ for prodnction.of transitional facilities (gap=bei�aen-._ emergency_and permanent_housiag)- -. _ _ _-._.- - _ - - - _ Need.for funds to supplement operating_budgets of�existing _ _ - _ emergency shelters- ---- - _ - _ � -- � : _ - . _ =�.-� _- _ . Producti�n:of ne�o, .permanent_housing is key _ _ ___ __ , ___ More_servi�.es...{chi3.d_�ars� smpl��ment�job.��rai�ing�-�bui-�d.�se.i.�-�= . suff-icisnc�.�- ,_ - --._,s - _- _ - --- = 2. _ Elderly- --- - - _- __ _ - _-- _ - - - --- - - - Need ongoing program (iike. SRO Mod_Rehab)_to_maiatain �xiszing_ SRO housing:sLock = . � -:__-_ - -- : . - =-- _- - -_ - - __-- _ - . -. .__-�- - -_- Counseling,=CD support servicas - _. - _ : :- _ - _- _ _ "Hard-core"'homeless- (older_men) need-mo�e-emergenc3r serv�cea-- Need- for_ dave�opment .of=permaneat_bousing_�or handicappad-homeiess- � (elderly=and.non=elderiyj.-=� _-- ___ --� : _ -= - _-., -_ - __ __- ._- - 3. Mentaily ill Same needs for maintenance of existing SRO stock and production of new, perm��cl��t=�o�sing for maatally-2�andicapged=i�divi��al8=w�a== _:- : are homeless or="a� risk" of-becoming homeless: - T- - -- - � , 4. Veterans _ : - : - -- - _"_ -- - _- :- __ - -� - Counseliag=aervice�=Especialized to this sub-group) Need for transitional housiag development � � i7Ga��fllflT�ltAt .�1ElA1 f�'!."Rp��p�_• . _._-' _ - _ -,_ - '.-- _- - Case workers Employmerif=co�nsel�ng service�- - - - : = -Y_ _. _ - - - - -� --- : _ � Subst�nce=abuse-counseling =-- - - - - - _ - ._ -- - - - - --- -- � . C� �7-i��a The above-identified opportunities to either match existing facilities/services with needs or expand facilities/services is not intended to be an exhaustive listing of the facility-related or services-related activities to be uadertaken in connection with this strategy. Nor is the identification of the above-referenced targeted sub�roups intended to preclude programs, facilities� or services which would target other local sub- groups (like childless� non-elderly, single adults, handicapped persons� single parents,' etc.) . The City intends to continue to work with Nonprofits,�G1 '�IC U the PHA� the County, and the State to. maintain and, where appropriate� add N/ow� d facilities and services to meet the. needs. of`�r homeless sub�roups C�/� oK3�t witl�;`the City• - _._ _ ��t M4�.1v� . - J _ �"r�e� R ?�. :i , • � - . (��7-,�0� V. EXPIANATION OF HOW ASSISTANCE AVAIIABLE THROUGH SUBTITLES B-E. TITLE IV WILL COMPI.EMENT AND ENHANCE AVAIL(�1_F SERVICES �� Eac o the ro ram thorized under y�u,btitles B through E� Title IV, of the Act can potent a ly be use either��fihance the usefulness of current �Q•'�� facilities snd services or ill existing gaps in the provision of facilities /�p✓� or services (Please see Part IV. Strategy for a fuller discussion.). � . ' For example: , 1. �ereency Shelter Grant Proeram . Funds poteatially anailable through this program could be useful in assisting to pay ongoing operating expenses of existing �� �,c� �« shelters and in providing basis emergency e,lo�kea services^to C��y�,; homeless persons and families. While the most recent OSB Report ���� stated that additional emergeacy (excluding transitional) beds are not currently needed� the City will closely monitor the number of CF, emergency beds available (vs, aeed), particularly beds for �ingle parent families and families with children. If needed; -such facflities.would-be added. -AdditioDally,. _ Emergency-Shelter Grant Funds may be helpful in increasing the . provisiom-of supportive services (i.e. � counseling, case management� employment training� child care, etc.) to assist families with children, single adults, elderly, veterans� and � t others to build self-sufficiency. Where appropriate� new � transitional facilities or services� designed toward tlia needs of specific sub�groups, may be added. 2. Transitional Ho�ing Demonstration Prog n+� The City hopes to use funds available through this program for capital development aeeds (acquisition and rehab of transitional facilities) and for supportive services (both on-site and off- site). Transitional facilities are needed for families witti q,� children� elderly and non-elderly single adults eterans may be �� served either within these subgroups er as a discrete �ubgroup ��� entirely. Q�' , 3. Permanent Housine f�r uAT�{�a�ped Homeless " Funds available through this program would be used to iacrease the supply of affordable, appropriate housing for mentally -� ' emotionally -, and physically-handicapped persons who are either homeless or "at risk" of becoming homeless. The Citq will work , with State officials, the County and Non-profits to develop the necessary proposals. 4. sunfllemental Assistance for Facilities to Assist the Homeless Two potential uses seem�approPriate. First, where, and if� � necessary� the Supplemental Program funds potentially available rvould be used to assist pro�ects and programs being fir►anced with g - ���7��°-� funds from the Emergency Shelter Grant�Program os� the Supportive . Hou�ing Demonstration ProgramJ� the Permanent l�ousing for � Handicapped Homeless Program) . Additionally, the City hopes to use funds from the Supplemental Program to a�sist in financing innovative pro�ects or programs wliich may be structured in the near future. Special emphases for these projects aad programs -would be directed toward families with children� elderly persons� and other sub�groups who are identified as having special needs. 5. Section 8 SRO ���•���� ��d�_ `��'�` The City will work with the Public Housing Agency of the City of Saint Paul to develop a moderate rehabilitation program to - _preserve and expand the. stock of SRO housing so that funds potentially available under ttie "Section 8 SRO Mod itehab Program _ _ can be accessed.., � - - _ - - - _ _ -- _ _ ._ _ _ ...�__-- - - -_ _ _ _ -- - � � . " .� . �� � �J �'� '_.� ��.� '� �.�� � _��.� _ �'� ..� �� � �...�i � .��� _��.����r �l .i�. �..v ...�....��� .i.�..����_ .�. � _��.�_.. � � _�� ��....1 �._ �....� - -_ . . �����^� .� �'�. .� ��.v �v_���� _ ..��.J �"_ ._ _ .._��� �_��' . . ��� ..�.,.� � �.��. .��i� 4�) . ��� . � Y ' . � � _ � - ��-�7-}�� ,���liair � � NING THE TARGET GROUP - A DIVERSE POPULATION WITH �, DEFI � DIFFERENT NEEDS � The tarqet population is very heterogeneous and includes persons with very , difterent needs and capabilities. For our purposes, � � their most common characteristic is a poverty-level income which makes it difficult for them to secure decent, affordable housing. � Althouqh the group consists primarily of sinqle persons, it would � a�lso include some couples. The key demographic characteristic is that they _ do not qualify for family public housinq or AFDC � because they have no _children, nor to they typically qualify for . � social security, pension plans or elderly public housing because � they are not elderly. � The target qroup includes not only the homeless, but also persons who are inadequately housed and vulnerable to homelessness. � _ Similarly, the qroup includes not only people whose primary � � problem is an illness such as chemical dependency or a mental disorder, but also people whose primary problem is simply a lack � ot skills, abilities or opportunities to compete effectively in the job market. Many of these people are not only on the fringe � of em lo ent o ortunities but also are only marginally employ- . P Ym PP � � able. Zt these people become jobless for a long period, they are . more likely to become structurally unemployed. If unemployment � is coupled by homelessness and other survival problems, their lives disintegrate and the possibility of recovery through � education or training becomes more remote. � . � -10- t3.8/19 � ' ` � It is important to remember this diversity rather than fixing on ' a single stereotype for all people in the target qroup. Most low income, childless, non-elderly persons are neither severely � troubled nor homeless. They simply lack sufficient income to - afford decent housing. Thus, this plan contains specific � proqrams that are tailored to meet a variety of housing needs. � The discussions and - diagrams- in this. Section of the plan � illustrate these concepts. � A. The Housinq Variable - � It would_ be convenient_and dramatic to title this document "A Plan to Meet the Housinq Needs _of the -Homeless." How- �� ever, this would be a misleadinq over-simplification. Althouqh_the� plan �a�tempts . to address the- needs of_ �io�aeless � people, it also represents an etfort to address the housing � '' problems that lead_-to homelessness�.� � � -._ � � _ � -. -- -, This plan assumes :that_current proqrams ot -temporary shelter � � -- - - - _._ . _ _ _ , • � _ _ - will be adequa�e ��o-meet emergency needs, if the cities =and � the counties, with private sector. assistance, �an address underlyinq housing problems. In -this way, the cities "and � counties seek not only_to assure emergency shelter, but also � to prevent the problem of homelessness by preservinq and � expanding:.the s.u,�ply_ of aff.osdable .housing _ in general, pro- . - _ :.� - - _ - � vidinq speciali�ed .facilities. for _special populations, and � - -- - - - - • � _ -11-. f3.8/20 ' - . �--�� �yoc� � r - creatinq additional opportunities to address personal � problems. � It is important to make clear distinctions amonq three basic categories of low income persons who have housing problems: � (1) inadequately housed persons, (2) homeless persons and (3) shelterless persons. These terms must be defined and � n order to communicate effectively used with precision i � about the housinq problems of the target group. Below is a diagram and a series of definitions that are intended to � make the necessary distinctions. _-- ,,, � -FICURE 1 _ � CATEGORIES OF LOY INCOME PERSONS - _ � YNO NAVE NWSING PROBIEMS _ JNADEOUATELY NOUSEO � ----- PERSONS � � MOMELESS PERSONS _ . SNELTERLESS • � - PERSONS � . � _ . . . - � _ _ _ _ _ _ , _ _ _ . _ _ . _ _ . . � � � ' � -12_ � t3.8/21 � � - � 1. Shelterless Persons � This term refers to - someone who is not only inadequately housed and homeless, but literally without shelter. The term is self explanatory. A person with- � out shelter sleeps outdoors or- in makeshift accommoda= tions such as an abandoned building. Typically, there is no heat. In Minnesota winters, this is a life threateninq situation; at any time of year it is likely � ' � to be a deqradinq, dangerous experience and terrifyinq as well, especially if it is a first-time episode. � The shelterless issue reached a pea,k several years ago when county general assistance qrants were temporarily suspended. The reinstatement of general assistance and expanded cour�ty proqrams have alleviated this problem. � In 1984-85, there usually was adequate space in tempor- ary shelters. Those who found themselves without shel- ter were persons who suddenly lost- or lett their home, � or were newly arrived in the cities, or were experienc- �nq a disorientinq mental� breakdown or drug/alcohol episode, or who aimply declined ta stay in- a- =shelter. � � . _ 2. Homeless Persons= _ - _- - _ _ : - - - - - - _ In� �1984, the cities prepared a �proposal- to pravide � health care services to the homeless. The proposal . (which was not tunded) was submitted to the Robert Wood � Johnson Foundation and the PEW Memorial Trust. The � proposal contained_ _ the - -foYlowing - -definition- io. a homel8ss �person: - - - - - - - - - - • -y� = "A-person with no personal claim on -adequate� = � � living = space for the � purpose of - overniqht = _ - - = habitation or persons- -at high risk of having - no personal livinq space due to lack af money � - � _ _ _ -and/or personal problems.- - Included amonq the- - --- homeless or potentially-home2ess are- persons - " - staying in emerqency =s�ielters; - 1�ving out- � doors or in abandoned buildings and caves, _ . � _._ temporarily sharing __lodginq facilities with = relatives or friends due to eviction or other - - circumstances, and �persons discharged from� � = - institutional- proqrams- which do not provide - . - for housing and who are unable to afford . . housing." _ _ _ . . � . _. _ _ ._ , . _ __ _ _ __ Thus, the term homeless includes not only shelterless � pe�s"onsa-:_ bt�t-__al l__ those= -with no permar�ent address, � includinq =those who have- found temporary living- -space in an- emergency shelter, or in the home of a� friend or relative. - � - - - - = = - = _ � _ _ _ � - -13- f3.$/22 E� � � �� �7��0 c� , , - �� It is difficult to estimate the number of homeless I� persons in Minneapolis and Sair►t Paul because the ; definition includes people livinq temporarily with friends or relatives as well as street people and people livinq in emerqency shelters. Also, the home- � less population is quite transient; many people qo through repeated cycles involving short periods of ladqinq �ollowed by short periods of homelessness. � � Therefor�, there is a discrepancy between the number ot people who are homeless at a specific time and the number who experience homelessness over an extended � period. . The cities' joint health care proposal estimated that the homeless population in the Twin Cities could be as � high as 10,800. This calculation was based on a 1983 survey of shelter tacilities that yield the followinq data: � • MINNEAPOIIS (348 eeier�eney shelter beds in 1983) �w1�� / i 5,000 Unduptieated eount of 9uests at people se�vin� - � - = _ptople (emerpeac�r shtlt�r �nd board ar+d lodqinq) ��G � 2,000 Unduplicated eount of puests at chureh sites 2� Z S .S E _..-------------'__ 1,800 _Unduptieated eount of 9u�sts at Nouse o� Ch��ity �2� � � 946- �Jnduplicst�d count of ewe�9eney sheltsr 9uests •t � � _ .____._..._ ..-_-�. _ Satvstion Arey. • _ SAINT ►AUL _(380.emer�ency shelter beds in 1983)_ . � 3�6�•4s-: � 2�943 Unduplicsted count of 9uests at all Ssint P�ul ___ _ �hetttrs__.textrapolated from data indicstit�p that - = - - _ * . Mary Mslt with _62 beds served 335 unduplitated � puests and the YYCA with 40 beds served 300 undupli-. . _ eated puests) � 12,689 SUBTOUL - -1.903- �15X of Minneapolis survey respondents indieated � - they hsd stept in a Saint Paut shelt�r) . - - - _ _ _ . _ .. . . _ _ - � ' . 10,786 - - - - - - - - - - _ The health care proposal notes that one shortcominq ot � - this data .i��hat_the count is not unduplicated across facilities. - � If -a- person- moved from one tacility to . another, he/she -would be included in the � unduplicated count at each- site. � On the other hand, the survey � counted only-tY�ose people who used shelters. This does - -_== - _ � : - . _ :._ - _ _ � :- . - � . � . -14- f3.8/23 � � ' - � e livin with friends and relatives. not count thos q Thus, 10,000 is probably a reasonably conservative t estimate ot those who require emerqency housinq during . the course of a year. � One way to measure homelessness at a specific point in time - is ta examine the General Assistance caseloads. As ot April, 1985, 13,500 individuals were receivinq. General Assistance from Henriepin County. Historically, r the county estimates that approximately il� o! its GA caseload has no permanent address. This means that in any specific month, 1,500 persons receivinq GA are - , homeless. Furthermore, the county estimates that another 1,000 to 1,500 persons who choose not to access public assistance are also in need of penaanent hous- � ing. These estimates indicate that approximately 3,000 individuals are homeless in Hennepin County. Ramsey Counfiy officials estimate a total of 1,200 homeless persons -res�de in Ramsey .County.. Therefore, there are � approximately 4,-200 homeless people in Hennepin aAd Ramsey County-at - any- specific_ point- in time. It is critical to �remember _that the specific individuals who � comprise this qroup will charnge from_ month to month as new people- experience person�� or economic setbacks and become- homeless, while others solve their emergency housinq problems at least on a temporary basis. Thus, � th�_problem _o.f -homelessness will affect many more than , 4,200 persons over a period of time. . I� Feb�uary, =1�8.4,- _Hennepin_Cctunty's Office -o� Planniizq � anc� D�velogmEnt --cond�cted- -a s�rvey of- shelter occu- --�a��s-.- • A similar survey w�s _conducted in April, 1984 , by -the -Sai�t =Pau1 - C�al�tion for_ -tY�e Iiomeless. . : �The � �surveys identified the following subgroups amonq the homeless. This list illustrates the great diversity of housir�g ne�ds amonq the target qroug:- It: also shaws � that �homeles�� persons =do _ not_ .necessarily _have severe personal problems but some could live independently if = the�► -2tad -ac�equate- income and housinq choices, _ _ _ : � 1: ^Chronic �CY�emicall De endent (-47$ -in Minne.apolis =and 30� n Saint Paul cons der themselves chemi- cally dependent) - although chemical dependency � - - -�efers �to alcohol and oth.e� _drug abuse_ and depen- � ��denay;-these persons tend to be _mostly al�oholics, , -who have limited or no monetary resources. These � persons may also have emotional or mental health - problems�� and limited_. family _ties. _ _ _ 2. � Chronic- Mentali T11 (.25� in-�Minneapolis �and -32� � -^ n 8a " .�Paul -hav-e received mental health ser- vices) - these persons tend to have a history ct -- - repeated- or lonq-term hospitalization; many have a � _ -- _�; _need- �or_ psychotropic medications. These clients � -15- t3.8/24 � - . �,�--�7�-lS�i�� � I may be actively psychotic or "acting out" ; many � resist involvement: with the formal social services � system; many do nbt have a consistent medical or social services case manager to advocate for them ' or monitor their progress. 3. Chronic Unemployed (49$ in Minneapolis and 51� ir� . Saint Paul have been unemployed more than two � � years) - these are persons with no resources and very limited skills. They may also be chemically dependent or have emotional problems. � � 4. Ex-offenders - these persons may be recently • released from incarceration or may be in fliqht from law enforcement authorities; they may have � tew family ties and also may have chemical . dependency or emotional problems. � 5. Persons Evicted and/or With no Utilities - these persons tend to be v ctims of the chang�ng econ- omy. They often have exhausted all financia` resources or benefits and may have come__to thi� . � area to seek employment. _ . _ : _ __ _ . _ _ . . . - 6. Persons Displaced bv Public Action or Private � Redevelopment - This group includes those who lose their homes when a building is condemned through code enforcement. It also includes_people_who .are ' displaced by redevelopment programs. - _ � V ms of Abuse - these ersons _are _ fleein 7. icti _ p g_ ,, abusive domest c situations and often have no. � tinancial or _family resources. The majority of these persons are women and_ children.. Some may also have emotional problems. _ _ _ _- . � 8. Runaways - these persons tend to be adolescents_ who have runaway or been cast out of their- homes.- They are often the victims of_ physical or sexual_ � abuse; _ they have no or limited financial resources. _ _ . _ _ _ _ __ _ � 9. Miarant Workers .- these persons can become ---- homeless.=-because of loss of employment. They tend . to have limited or no resources and may have � language barriers. -They may be in an area seeking _employ_ment._ 10. Prostitutes_ �- these. _pe�sons- are often�. :-fleeinq- � abus ve s tuations and tend to have- _ limited financial _or fami�l.y resources:. � � _ _ _ _ . . _ - - _ _ . � -16- t3.8/25 i . � � � � � � _ li. Indi ent Disaster Victfms - these persons have � 1 mited or no resources for recoverinq their . losses. They also tend to be unemployed. . � 12. Batterers - these are persons with limited or . no resources who are under court order to leave a home where an abusive situation exists. � � 13. Persons Dischar ed From State Institutions - statew de data indicate that there were 8,847 admissions to State Mental hospitals in 1983 0! ' � persons who were mentally ill, mentally retarded or chemically dependent and there were 9,052 dis-_ ° charqes. - Because�-of the qrowinq trend to treat persona in the least restrictive environment, the � increase of discharges over admissions is expected to continue. Although there are no statewide data - indicating where discharged persons go, national � studies indicate that most persons discharqed from State instrtutions return to their families. How- ever, the Hennepin County shelter survey provided � evidence that some persons released from State _ . . - _ insti�tut�ons. _ do_ =_end ...up = �anianq � tfie--=� }�omeless� � - population. _ �_ ._ _ _ _ . _ _ _ - 3. Inndequatelv Housed Persons � _ _ . . _ , _ _ _ - - _ . _ .. _ " �This cateqory of persons includes not only shelterless . and. homeless: }�ersons,- :�ut also- .�ersc� whose housing � fails to� meet one or more of the followinq faur criteria. (These are the criteria that housinq pro- � fessionals use to determine it a person is adequately � housed. ) a. Affordable - the monthly housinq .cost leaves � enough income for other basic necessities. b. Adequately Sized - the housinq unit should have � enough living space, particularly bedrooms, to . avoid overcrowding and should provide appropriate privacy. . � c. Structurally Sound. - the housing unit should be structurally safe and in compliance with basic • housinq codes. � • � d. Located in a Suitable Livinq Environment - the unit should be in a safe building or project, and a decent neighborhood, with adequate accessibility � to necessary services. There are approximately 43,292 non-elderly, childless � households in the Twin Cities that can be classified as low income (incomes less than $10, 000/year for a single � - - -17- f3.8/26 . � . � ' �' ��-i�o c� � � Ot these sli htl person and $13,000 for a couple� . , q y over 7,000 are very low income (incomes less than � $5,000 per year) . As noted previously, all these households are qenerally ineligible for the- two major, income maintenance proqrams in our society -- social � security and AFDC; they are also ineligible for the major federally assisted housinq proqrams. Unsurpris- ingly, the Twin Citie.s Survey indicates that this �qroup has difficulty findinq adequate housinq. � Exhibit A re eats various questions trom the survey and P shows the degree of housinq problems experienced by the ' � e tarqet group. The survey aQplied only .to persons with a permanent residence; persons who were homeless at the time of the survey are not included in the totals. As � a result, the statistics understate the extent of the overall problem. The exhibit contains two columns, one for households with incomes less than $5,000 and ane for all low income households as defined by the Twin � Cities Survey. Column two includes those in column one. � A careful examination of - the - data contained in � Exhibit A shows that aftordabil�ty is the greatest problem; overcrowding, structural soundness and livinq � environment are secondary concerns. The data also illustrates why a sound, comprehensive _ • �lan that addresses the homeless issue cannot be � limited to persons wha are bomeless at a sinqle point in time. As life circumstances -change, people in the tarqet population tend -.to move fr�m one cateqory to • another in Figure 1.: Each group- is fluid. Thus, over � 2,200 households in the target population reported that they have needed emergency housing in the past year, yet all had permanent addresses at the time the survey � was conducted. In order to effectively address the problems of the homeless, the cities must stabilize and improve the housing situation of those who are inade- � quately housed. Thus,_ _the program contained in this plan contains elements- to expand and preserve the , current supply of affordable housing. � B. The Problem Variable " J. _ � - , � The ma orit of persons- in this target -population are able i y to live independently, with � little or no supportinq human � services. This rou 's = rima roblem is economic; social g P P rY P � problems are secondary. The target population also contains � -18- - t3 .8/27 � ' � � a siqnilicant nwaber o! persona with serious social problems that affect their ability to live independently. These � - people require considerable support and, in some instances, ! supervision. This qroup's primary problem is social and personal; economic issues are secondary. Althouqh it is � useful to think ot persons as fallinq- into one of these two cateqories, the model is oversimplitied in the sense that � • ersons fall somewhere between the two extremes. Also, manY P � an individual may have periods of stability when he/she is perfectly capable of independent_ living, and other periods � when support services are required. : � _ _ _ _ � Figure �2� attempts=to portray this concept: througli the use of � a continuwa, which provide� a qeneralized model. Usinq the � . same a roach;_ �igure 3, which was� prepared by Xennepin i�P_ - County staff,_ p�o9ides more precise_detail. _ _ _ � —. - - � - � - � ` - _ . - - � - _ ' � - _ - _ - _ _ _ � � _ - _ - _ - = _ _ _ _ _ . � _ - . . " - . � . .. � . � -19- f3.8/28 �, •� �\ V- T O r. C � �. 3 � � - � � � . �� � �u M � V � Y a M . �, � � O � �^.Vi � � �� � Y ` - aN w N Y � � M � yy�+ �"' � 111�j . � C • � � `' Y = O . . . � r � .�'. 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I i� M � • � � � l�Q �"` �/1 V 7 � ��..M ✓ O � � � � � f�1 , � A , _ � � � � ' � e' �7—/s��� C� i o s are • Fiqures 2 and 3 show that a variety ot housing opti n � needed in order to properly accommodats the needs ot persons � at ditferent points on the continuum. � C. Summa ' � , This section of ths plan has made two key distinctions: � � . (1) a distinction amonq those who are fnadequately housed, those who are homeless and those who are shelterless, and � w o cannot live indepen- (2) a distinction between persons h � dently because ot serious social problems and those whoss problems do not interfere with independent living. It'`=� � important to avoid the assumption that the homeless category and the persons with problems category are synonymous. Many � roblems are livinq in inadequate housinq people with severe p � and some homeless are capable ot independent livinq. The plan attempts to improve the housinq conditions tor all � • these di�terent qroups. � � � � � . ., � � �. : � . :;� : -22- f1 _R/31 • - . ,E��1/,�iT ,d � � D �7-i�a c� � L� � �ACRGROUND ON HONGER AND HOMELESSNESS . ' �'ROM A NATIONAL PERSPECTIVE Tn thsir pretaca to � Faces � Homelesanese, currantly ons ot the best books on tha subject in the Unitsd States, author� � Marjoria Hope and James Younq 'write: � � . . � In almost every major city, and in soms small towns aa � well, men, women, and childran are sleepinq in public � parks, bus and train stations, cavs�, railyards, subways, alleyways, loadinq docks, and on roottops and hsatitiq � qrates. Every wir�t�r dozsns ot Americans litsraily lrasze to death. Some have perished within siqht o! ths Whits House. Even more invisible�ar� tha evicted �amilies who huddlt together in an armary or othar sheltsr, or the batt�red wives caretully protectad lrom vanqelul husbands in w. . aoncealsd shelters, or the "throwaway kids," most o! the� abused youngstars, who stak� out a home (without heat, electricity, or runninq water) in an abandoned building. . . .' At no tim� since the Great Depression has the number o� Americans without homes been so larqe or represented such a wide cross-section o! our society as it does today. The homeless ara not only rooliess, they ars hunqry. To be aure, hunqer is more widespread than homslessnesa and has been qrowinq at a startlinq rata. The Physician Task . Fores on 8unqer reported in 1985 that "8unger is epidsmic in the Unitad States." Tha task lorce found that despite aconomic recovary, "hungar is qettit�q worsa, not battsr." Aa evidenca it cited qrowinq lines at soup kitchens and lood pantries, i.rlcreases in intant mortality, and wide- spread malnutc.rition amonq ths sldarly, intants, and the unemployed. Hungar and homel�ssnesa ara twin phenomana. Z'he family ons sess staridinq in a soupline may havs had to choosa betwaen satinq at homs o payinq the rant. Thsy � ara one step away trom the street.�Z . . , . 7 . • � - � � ���- ���� HUNGRY AND HOMELESS IN MINNESOTA AND IN THE SAINT PAUL AREA Numerous studies and reports by Minnesota researchers have conlirmed that the assertions of Hope and Younq are also true for Minnesota in general, and in the qreate= Saint Paul araa in particular. Neal Cuthbert's December, 1986, Metropolitan Council report, "Homelessness," details the increasing numbers and � . �� . qrowinq diversity ot homeless people in the metropolitan area.l3 Using information from the saint Paul Shelter Board, Cuthbert states that approximately 10,000 ditferent peopla in Saint Paul used shelters in 1986.14 � ; In a comprehensive report tor the Saint Paul YWCA, "A Report on the Homeless in the Twin Cities," Arla Budd states that, on a given day in January, 1-986, 2,000 people in the �win Cities were on the streets - 30� ot whom were in Saint Paul. 5 Of particular concern tor the YWCA are the increasinq numbers of women nnd children without homes - estimated at 20� o� the total .h�meless population. Accordinq to Budd, "many o� these female homeless are displaced hom�aakers, newly poor through death, or a breakdown in the family_ structure :(divorce, abuse) ,�16 - _ - - - - - _ _ . - Hunqer in� Mir�nesota was- recently examined in~ a •etudy� o�_ people = =_ who use emerqency food shelves by the Minnesota Food Education -� and Resource Center (MFERCj , a project of the Urban Coalition ot Minneapolis. � The study, Homegrown Hunqer, documents a steady� _ -- increase in the: number_ ot people using. food. shelves_ in. every par� o! Minnesota.l� Accordinq to_. the �tudy;- lood shelt use grew from 183,00o visit"s in 1983 to- 85o,000 visits in 1985,18 : Data from= a 1986 MFERC report indfaate that 1,061,261 visits were made to tood shelves by Minnesota:- rESidents needinq to supplement their ' food budgets with donated items - �a 19� increase from 1985. The- overall increase- trom 1982 to 1986 was-.481$. The Fiomeqrow Hunger study also noted that_ 34� ot Minnesotans in poverty must rely on food shelves each month and, even with this help, many qo hunqry. Food shel� use in the East -Saint Paul metro areas has .lollowed this statewide patterri-accordinq to MFERC: in 1985, 106,029 individuals were served; in 1986, 124,155 individuals .wsra _..-.� served, a 17� east metro� area increase in one ysar. In addition, the Homeqrown Hunqer report stated that 60� o! adults .�n its _ _ _= = Saint Paul area survey stated that household members had "missed one meal or more in the previous month because they had no lood or money to buy lood. . . [and] 20� o! households which had children ' reported that ch�ildren had .skipped one meal or more _in _the � previous month." 9 . _ _ _ : In reviewinq these stat�istics, it �is important to note that there � has been an increase in the number o� food shelves created and utilized as well as improved effici�ncy in food distribution. 8 - �EYOND THE NVMBERS: WHO ARE THE HiJNGRY AND THE HOMELESS? There is a qeneral consensus amonq those who have examined the backqrounds o� the hungry and homeless population that "every walk ot life, with every conceivable problem, all aqes, Bexes, races, [and� educational levels" are represented. Many have had , long work records and stable lives; others have histories ot � • personal problems. In the "Final Report o! the Committee on Street People," a committee chaired by Saint Paul City Council member James Scheibel in 1982, those most severely in need were described as: � . . .havinq no permanent address or housinq, lackinq marketable skills, havinq limited or no monetary resources, havinq emotional, mental, health; or hyqiene problems, havinq no tamilial ties, havinq lanquage barriers, in flight trom the law, parent or domestic abuse, havinq been evicted trom housinq or released from hospital or or treatment centers, or an alien or refuqee19 Recently, substantial increases in the number o! homeless women and children have been reported. Arla Budd's Saint Paul YWCA study describes the conditions o! homeless women in three cateqories: (1) the younq mother with children, in poverty, divorced or battered, with low job skills; (2) the middle-aged . woman, unemployed and many times mentally or emotionally unstable; and (3) the elderly woman, poverty-stricken and many times mentally i11.20 . . 9 ' . L�-�-�-,�d . g��:�'� THE NL�BERS: WHY ARE PEOPLE HUNGRY AND HOMELESS? According to Arla Budd, the causes ot the increase in homeless women lall into three cateqories: (1) breakdown ot the tamily structure involvinq divorce, separation or abandonment which. . .create poverty, foreclosure ot mortqages, eviction; (2) domestic abuse and violence causinq the victims to �leet and (3) - a reduction of weltare benefits.21 It should be kept �n mind that these "personal" causes also �all within a larqer societal context ot low-payinq employment opportunities for women and the . lack o! affordable housinq, or any housing, tor women with children who must rent. ` Federal Housinq and Urban Development classi�ications, cited by Hope and Younq, suqqest that chronic and episodic homelessness and hunqer qenerally result from: (1) chronic disabilities (alcoholism, druq abuse, mental illness) ; (2) personal criais (battered women, runaway youth) ;_ and (3) economic conditions (unemployed, welfare re,cipients) .22 . A summazy o� major s�cietnl cond�tions/trends, both nationally. and locally, which contri3�ute to hunqer and homeles�ness - - includes:� �(1) lonq-term structural unemploymant, particularly for youth and older, disglaced workers__; (2) substantial 3ncreases in sinqle-parent households.; (3) the_ encouragement o! people_ to flee abusive situations; -(4) increased substance abuse; -(.5) miqration fram farm areas to -urb,�n areas,- -and from �urb,an ._ar.ea to _urban. area, without success in finding employment; (6) tederal� reallocations ot tunds trom human service to military proqrams; (7) tightened eliqibility for public assistance; (8) continuing loss ot single room occupancy and other affordable housinq for � low-income people; (9) continuinq "deinstitutionalization" of the mentally ill, mentally retarded, or other dysfunctional persons without adequate community proqrams to assist them; � and (10) increased reliance on voluntary and philanthropic resources to respond to emerqencies when such resources are far too limited and should bs primarily provided by the public sector. These observations on the causes ot hunger and homelessness, and the diversity of the individuals who lind themselves without housinq, tood, and/or adequate nutrition, are meant to emphasize that responses seeking to eliminate these problems must be sensitive to specific conditions and circumstances. Such , sensitivity requires that stereotyped thinkinq about hunger and/or homelessness must be eliminated, and that e�forts to �uridamentally alter such conditions must always support both individual development and social change. 10 . �� �y����� - �"X�/,diT � � A 3riet Description ot the Shelten � • " ' , St. Pinl has beea served throughout 1986 aad the lirst quarter of 1987 b� six � � shelters vhich take ia individusls vho find theaselves hodeleas tor a variet� of � reaaons. In April of 1987 a nea shelter opened and at the poiat of mid summer . 1987 ve have sevea shalters in St. Psul. These st�elters are: � � ?he 1laion Coapel Miasioa, 345 E. Oniversity: • Offers bet�reea 74 - 101 beda (depending on the season). The beds are dormitory style baak beds and are� available tree to those adult Qea �ho are sober aad have atteaded tbe sission's church service. They provide an additional 25 aleepiag ■sts ia tbe lobb� to thoae vho are inebriated or arrive after eveaiag services. itio free �eals sre available vith the bed. This shelter is committed to not turaing sMa� adalt sen even tboagh their beds are tull. Sesidents are required to leave in the sorning. First co'e fint aerved. * T6e Dorot�rj Da� Sheltes, Offers 89 beda year round ia the swrth �ring of the St. Joseph's Hospitsl. Occu- pants are sob�r adult ules vho report ia by 7:00 p.s. On nights of excess deund, referrals sre ude to tbe IInion Gospel I�iission. Residents aust leave ia the �oraing. The neir-by Dorothy Day Center provides coffee and rolls plus both a oid-da� sad eveaiag seal. Priority for s bed is given to tbose �iho stayed there during the night before. Besideats sre able to store their possessioos in their rooa during the day. �a Deceaber o! 1986 Catholic Charities opened a 23 bed SSO componeat above ths �orothy Da� Center. 183 Old Sixtb Street: These, sleeping-rooroaly (S�0) uuits ire icaown as l:sodu� housing. They provide inespensi�e dovatovn rentals to loag-tes� stielter usera vho tsad been asiag the shelters as perm�neat houaing. On �iarch 1, 1987 Facodus Bousing ezpu�ded vitb aa additionsl 23 nnita vhich :re nov being operated as transitional bousing. These units are identical ia design to the S�0 nnits but aarry s si�c vonth liait on a persoas stsy. * prot�etion, �Sheltes. and R�eferral (YSB)� 840 Bee�h Street: - Currently offers 30 beds to sen, v�omen, aad childrea for initial perioda of thrersiz days. Accomsodations are apartaeat spaces, coaverted to dorm style . liviag. Jls a resvlt of recent cha�ges, applicaata sust apply atter 5:00 p.a. . througb Eaergeacy Social Service, which pays for their atay. �esideats sre not ' . required Lo leave ia the vorning. PSS faced s disraptioa of its service ia �id Msreb of 1987 whea it relocated. .� correspondtng disruption of its referral and reimbursement linkages is reported to have reduced its volume of service. Presently P.S.R. is seeking the approprisu zoaiag to uintaia coatinued operations at its aev locatioa. * Sal�stion Ars� E�ergenc� Lodge, 1471 Como Aveaues This is s new faeility. which opeaed April 10, 1987. It offers 20 beds to . adults vith children, aarried couplea, and single �en. The iaitial period of � -1- � . . sta� is three day8. ?be sta� va� be estended to 6 days. Accosaodations are . amall rooms contaiaing beds. l�esls are provided. Applicants sust apply af ter 5:00 p.s. through Eoergency Social Services, rhich psys for their stay. Besidents are not required to leave ia the soraiag. � � Wosens Advocates, 584 Grand Aveane: Offers 35 beda to battered women and their children (if aay). Length of star . may be s matter of hours to as long as 60 days. Meals are provided. Intake occurs at any time day or night. Sbclter users may remain throughout the day. �' . ' � * Cssa De Esperansa, (Address �rithheld): Offers IS beds to battered Wcmea and their cbildrea (if any�. Length of sta� may be as short as a few hours or as long as 60 days. Meala are provided. Intskt occurs at aay tise. Shelter uaers u� remain througho.ut the day. * ZDCA, 65 E. 1Gellogg Boulevard: This agency has espanded its capacity f rod 70 beds in January of 1986 to a curreat level of 90 as of Jaauary 1987. Leagth of stay is 30 days for single womea and �omen vith childrea. Coatinued resideace requires enrollaent ia their combination honsing and iatensive service programs. One hot aeal, is aerv�d sis days a Week. F3tchen facilities are available for other meal preparstioa. Zntake occura fro� 8:00 a.s. to 4:30 p.m., 1�Ionday through Frida�. Emergeac� intakea are through Esergeccy Social Services (ESS). Shelter wers vacate the residence floors at 9:30 a.m. but have lonage facilities aad phoae service available throughout the day. � . � � � ' �Xh�/,8/r' � ������ah . HUNGER AND HOMELESS SERVICE PROVIDERS IN THE EAST METROPOLITAN AREA Hattered Women�s Shelters Alexandria �iouse Community Action Cour�cil/ P.O. BoX 194 B. Robert Lewis House Circle Pinea, 1rII� 55014 4750 Nichols Road . , ' Eaqan, l�i 55122 Casa De Esparanza Women's Advocates P.O. Box 75177 584 Grand Avenue - Saint Paul, l�t 55175 Saint Paul, I�1 55102 Community Action Aqencies Ramsey Action Proqrams, Inc. 100 Market Square 509 Sibley Street Saint Paul, l�i 55101 � County Social Service Agencies Dakota County Human Servicea Ramsey County Human Ser�:. .�es Dakota County Center 160 E. Kelloqq 8oulevard . 1560 Hiqhway 55 Saint Paul, I�1 55101 Hastinqs, 1�T 55033 Dakata County Human Serv,ices Washir�qton County Social Servi�es 357 9th Avenue North 939 West Anderson Street �So. Saint Paul, I�t 55075 Stillwater, l�i 55082 Overniqht Emercen Shelters � Dorothy Day Center Union- Gospel Mission 183 Old Sixth Street 435 East University Avenue Saint Paul, �IId 55102 = --- =�- -' Saint Paul,- l�t 55101 - Man only; hot neals �erved. For men only; open yr.-round. , Open yr.-round. - - - Protection, -Shelter and Reterral Young �tomen's Christian Assoc. � 457 West �7th Street -;= - : ' 65 Eas� Kelloqq Boulevard ► Saint Paul, 1�1 55102 � - Saint Paul, I+IId 55101 For men, women and children. For women and their children. . _ _ _ ._ _ _ - - --- =_ = Open yr..-round. - . _ - . . �icrant Council Ott ces Minnesota Miqrant Council 220 South Robert Street #107 - Saint Paul, MN 55107 away/Throwawav Youth Shelters � + Ain Dah Yunq/ Cross Streets Proqram tor pur Homa Shelter Center Runaway Youth 1089 Portland Avenue St. Paul Youth Services Bureau Saint Paul, I�i 55104 421 West Uaiversity Avenue Sheltsr !or Indian youth. Saint Paul, MN 55103 TrAnsit�enal xousinq Proarams Juel Fairbariks Transitional Housinq Younq Women's Christian Assoc. 804 North Albert Street Transitional Housinq Saint Paul, MN 55104 � 91 North Lexington, Apt. #„ _ . " _ Saint Paul, I�II1 55104 United Way Agencies � - � _ American Red Cross - Capitol Community Services, Inc. St. -Faul Area Chapter . • _.__ _ _ 1021 Marion Street 100 �South Robert Street - Saint .Paul, l�i -55117 = Saint ;Paul, I�I 55107 . � --- " . �_ : - Catholic Charities of the Centro Laqal,_ Inc. . 'ot the Archdiocese ot St. Paul 179 �East Robie Street and Minneapolis � _ Saint Paul, I�i 55107 215 Old 6th Street � Saint__Paul, ZIId 55101 _ _ Chicanos Latinos Undios Community Action Council En Servicios (CLUES) 509 Sibley Street 220_ S��th Robert- Street: - ; Saint Paul, rIId 55101 Saint Paul, .1�1 55107 D.A.R.T.B. Eastside Coalition 201 North Concord 715 Edqarton Street Saint Paul, l�t 55107 Saint Paul, rII�T 55101 ` Emetqency Fund_ &ervica Episcopal Community Services 150 Eva Street - 60 Rent Street : Saint- Paul, I�i 55i0�_ Saint_ Paul, l�t - 55102 . � � �� �l7-i�ad Family Service o! Greater St. Paul Family Violence Network 333 Sibley Street P.O. Box 854 Saint Paul, 1�II1 55101 Lake Elmo, MN 55042 First Call !or He1pTM Froqtown Community Assoc. 100 South Robert Street 911 Lalond Saint Paul, 1�T 55107 Saint Paul, IrII1 55104 Guadalupe Area Project (GAP) ' �allie Q. Brown Community Center ' 381 East Robie Street 270 Rent Street Saint Paul, 1�1 55107 Saint Paul, I�Ild 55102 Hispanos En Minnesota Inner City Youth Leaque 203 Pre�cott Street 175 N. Victoria Street Saint Paul,. l�i 55107 Saint Paul, I�I 55104 International Znstitute Jewish Community C�nter - of Minnesota o= Saint Paul 1694 Como Avenue . 1375 St. Paul Avenue - Saint Paul, l�t 55108 Saint Paul, l�t 55116 Jewish Family Servica ot St. Paul Jewish Vocational Service' 1546 St. Clair Avenus 1821 Univeraity Avanua West Saint Paul, 1�T 55105 Sairlt Paul, l�i 55104 - . Mental �iaalth Asaociation ot Merriam Park Community Center Minnesota in Ramsey County 2000 St. Anthony Avsnus 1022 Grand Avenue Saint Paul, l�T 55104 Safnt Paul, 1�1 55105 Merrick Community Services Mfdway Hospital/Domestic Abuse 715 Edqerton _ 1700 University Avenue W.. ;Saint Paul, 1�1 55101 Saint Paul, 1�1 55104 � � - Midwest Special Services Minnesota Institut� on Black 900 Ocean Street - - Chemical Abusa Saint Paul, 1�T �55106 217 Mackubin Street _ Saint Paul, 1�1 55102 - Neiqhborhood House Association Neiqhborhood Justics Center 179 East Robie� Street 500 I�aurel Avsnua � - Saint Paul, l�i 55107 Saint Paul, l�t 55102 Neiqhbors, Inc. - - - The Salvation Army 222 North Concord Street 401 West 7th Street . So. St. Paul, MN 55075 Saint Paul, l�i 55102 _ St. Paul American Zndian Center St. Paul Intervention Proj�ct 341 University Avenue West 435 Aldine Street � . Saint Paul, 1�1 55103 - � Saint Paul, MN 55104 St. Paul Rehabilitation Center - St. Paul Urban Leagua - 319 Eaqle Street 401 Selby Avenua Saint Paul, 1►Qi 55102 Saint Paul, 1rII�t 55102 � St. Paul YWCA Summit-University Tean Center 65 East Kelloqq Boulevard 1063 Iqlehart Avenue � Saint Paul, I�1 55201 Saint Paul, 1rIId -55104 West Seventh Community Center Women's Advocatea 265 Oneida Street 584 Grand Avenue Saint Paul, 1�1 55102 Saint Paul, l+IId 55102 Food Shelves No. St. Paul Emerqency Food Shelf Hastinqs Food Shelves 2537 East 7th Streat 214 - 2nd Street East No. Saint Paul, 1rII� 55109 Xastinqs, �II�i 55033 Neiqhbore, Inc. Baker Community Center 222 North Concord Street 209 West Paqe Streat So. St. Paul, 1�1 55075 Saint Paul, l�t 55107 Capitol Community Services East Arsa Service Center 1021 Marion Street 1575 Ames Avenue '� Saint Paul, 1�T 55117 Saint Paul, I�T 55106 Edqewood Community Center �iallie Q. Brown Community Center 5100 No. Edqewood Drive 270 Kent Street Moundsview, rIId 55112 Saint Paul, 1�T 55102 Merriam Park Community Center Merrick Community Center 2000 St. Anthony Avenue 951 East 5th Street Saint Paul, l�i 55104 Saint Paul, I�t 55106 Neiqhborhood Housa Salvation Army }�79 East Robie Street 1105 Payne Avenue Saint Paul, I�1 55107 Saint Paul, 1rII1 55106 Salvation Army St. Paul American Indian Center 401 Wsst 7th Street 341 University Avenue Saint Paul, 1rII1 5510Z Saint Paul, MN 55103 Department ot Indian Work We The People 1671 Summit Avenua 374 Maria Avenue � Saint Paul, 1rIId 55105 Saint Paul, MN 55106 �n Site Meals • Dorothy Day Center Loaves and Fishes 183 Old 6th Street 51 West 9th Street Saint Paul, MN 55101 Saint Paul, I�II�t 55102 Neighborhood House Union Gospel Misaion 179 East Robie Street 435 University Avenue East Saint Paul, l�I 55107 Saint Paul, l�t 55101 � - sq w +� Y . � C � � s�� r �� � � a.i�i6��'Y= Y� i " � � � � ��'���3 �����"� ��� ���� �a;, ::;, � ��� ��' _ � � �� �s�` �Sy �� � �.° �;a}� � � ; •_ _ V .. s� Jy� r Sj ° �` � C wr sec � � < ��•yw t�V�r� A���C� �r� a����j�W�s�� ?+Z �7��� ' ��67��i��Y�� r.rY�� ����i��t�ria �iC�5f.5.Y � �v� � � l���2 �i. • � •'� „ AB � � k�� `.! s , s�p .����a ��� �: C ���g�� �'�j ..��fE �,s � �3� `�+ � ai��a �F € a= '� •i ° � e.! �tZ � � .� .�a�� 'C E E E �C'Q�'s7 �r•��j r�y.�. `�'� � • 'j� ��$ p fe=��� Y' +� . �.��; �.� ��� r � '��t e�'�I a. a.�3c�.Y i.H� t� � ,i�!�s ?�� € � 3 N d �.��$ �v�y�Z� . .� �.�t.!`� ' � . ���'' °� r3� �� �� � .�.� im�"'�� `r !�) �'�t7i � ��g$ a7g�i� � = �rL��� by -' ''� ; � z�� s � • �'2(� � .�� ��= �3 � O C s � E � r�t y�����..3 w M� �!� .@ �, _ � �3' $ "a * ����� :3t������ � �Itp•e ,� �j ���j Yg �� lY 1'�s � '� s 3.��� �`���e� ! a d , �� ��� '�� � �.� E V��� 7i "> � 7�7� � �� � � t 6�.�� 3� e� � � . . ��r:i�� �c,��.`a� ��3$f�: �t��$��� ���t���� �a��i= �:it�a i � � c N � - � _� �5���'��' ^�� g�� !_� .6��p��^S's, ,�`:� �.. 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REFERENCE REPORTS " The following three reports represent significant work completed locally to document the needs of homeless persons in Saint Paul� describe facilities and . sezvices, and recommend strategies and actions to respond to the problems of ' hoaeless individuals and families. � � Each of �hese three works ha� been referenced in the Saint Paul CHAP. � Select�6Ft excerpts have been included as formal exhibits. Complete copies of the reports are available from the Office of the Mayor: 1.) More Than Shelter: A Joint Plan to Meet the Housing Needs of LoM Income� Childless, Non-Elderly PersonsX; A Response to the Problems of the Homeless (Revised� October, 1985). 2.) The 1987 xeport to the Saint Paul City Council and Mayor from the Overnight SheZter Board (July 1987) . . 3.) A Report to the IInited Way of the Saint Paul Area on the Recommendations of the Human Development Action Coalition on Long- Term Solutions to Hunger and Homelessness in the Greater Saint � Paul Iietropolitan Area (May� 1987). < • .