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266984 WHITE - CITV CLERK O AINT PAl1 �66984 PINK - FINANCE �t��f� � CANARV -OEPARTMENT F IT COUI1C11 BLUE -MAYOR . � '�F_. - L File N0. cil ' olutian R Presented " Referred To Committee:, Date Out of Committee By Date WHEREAS, Pursua.nt to Minnesota Statutes 1974, Section 462.353, a municipa.lity ma.y carry on comprehensive municipa.l planning activ- ities for guiding the future development and improvement of the municipality; and WHEREAS, Pursua.nt to Minnesota Statutes , 1974, Section 462.355, the City Council ma,y adopt and amend a comp�ehensive plan or portion thereof after recommendation by the Plannin� Commission; and WHEREAS, The Planning Commission has re�ommended adoption by the City Council of a Multi-Service Plan as a portion of a com- prehensive plan; and WHEREAS, The following action by the City Council to adopt the Multi-Service Plan in no ma,nner evidences ai� intent to adopt the Comprehensive Plan of 1963 or other portion� thereof as recommended by the Planning Commission; now, therefore, be it _ . RESOLVED, That the City Council adopts the Multi-Service Plan, passed and duly recommended by the Planning; Commission after public hearing on Janua.ry 9, 1976. COU[VCILMEN Requested by'Department of: ' Yeas Nays � , Christensen ��!( }►uy� In Favor Levine Roedler _� Against BY Sylvester ' .�/��. , President HQ�( f�IpZZLC Form Approv�d by City Attorney Adopted by Co . Date M� 3 � �97� � � Certifi assed ouncil ecretary / BY � Y • Appro by Mayor• Date ; �� Approved by Mayor for Submission to Council 4 By By } �tetis��o �PR 3 t976 �� y ix . �a z� � " � ' i ' i�e : ti T f` � i � � � �~ ''�., y� � ^�� . I 4 '�'x � "y�'� a�� t t y 1 k " � y � �, i i ,,� � � � �� l " r '�� ,�+ � � � �'� ,� � i tit. ;� i .�._. , � a �, � ��: r �. . . � � '� � � � .� n �. , �( . .\, .� � y� �S :'r '° x �" - °� fra 3 s�, �'�; � p� �� . R �. t�� Ty � . .'` . + � ��k �. E ' \ - '� ' . 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'�n - k �� Y�• ' � i;'�. 7' ' L . � ,. � � , .Y - ..� � y t t,��, y��.� ! -� , .1 �� , , . � . � ` �4 Q � � �� }� .� . , � ' - ��G ri � F� + ' ..:..� 1 . , . '-. . � . . . . , " � �� . .. • 1 . "� ,a�. - , .. , l t° � ,� �� . . �� y �� - V � ,k �� .. . . . � . . � �'_i ." . _ . y_: _ � � ., '�c� 6; : � �,:; - * h r �` u � i �'x f, y� S S �� , � ` �' ��Y�.. '� F• . � I r q�Y t} •4 � i �. ( .� 1 {'•� ' . �. , t �t ��3 x ''�S �, , ti�w� � , . . .� ;F ��, t �{6;� ��•�i, � _ ' . a� � >' f.. ' TM �,�� s�: -e � � .;� . r 4 � k` � - � . e<r�� t -.4 � �.fi a S ha� ��t' . � �� l� j � / j, }' '4�� l�p x �q; ,� i, r �.� �` . _ , � �:i ' • t' aa:,,� �' (Y "y tr � � `: } �".� � . �� . . . . +� . {Y�. 1: � i F..�r. ; }� � � �} ��."r ,�3r7h'� f� � r�' � , f �;�Y� � �;y'��*�'*�. , � r: . " r , , _�.x, '-�'-`�'�'��", .. .._ . _ . . _ , . . . ._. . .,..� i _ _,.. ,. G�_ , � !� �_ ., .z CITY OF S�A��AUL OFFICE OF THE MAYOR CITY PLANNING DONALD L. SPAID AIP PLANNING COORDINATOR February 3, 1976 2.__ y �,•--; � Council President David Hozza and Members of the City Council c/o Rose Mix; City Clerk 386 City Hall St. Paul , Minnesota 55102 Dear Council Members: Attached for your consideration is a copy of a res4lution by the City Planning Commission concerning the adoption of the "Plan for Multi-Service Centers" as an amendment to the City's Comprehensive Plan. Also attached is a xeroxed copy of the "Plan for Multi-Service Centers". Because of the immediate nature of Community Development Year II discussions concerning the funding of multi-service centers in Saint Paul , it was decided to send you copies of the document before final printing so that you would have it available for yiour deliberations. After final printing and in accordance with state law, a certified copy of the Plan will be transmitted to you. Sincerely, �� Donald . Spaid Planning Coordinator DLS:mcb attachments 421 Wabasha Street, Saint Paul, Minnesota 55102 (612)-298-4151 0 . ��s��4 city of saint paul planning commission resolution . file number ��-� � �� date January 9, 1976 _ , WHEREAS, the Planning Board of the City of Saint Paul (inunediate predecessor of Planning Co��ission of the City of Saint Paul ) adopted, pursuant to law, a Comprehensi.ve Plan for the City of Saint Paul and filed such plan with the City Clerk of the City of Saint Paul in October, 1963; and WHEREAS, the Planning Department and the Planning Commission of the City of Saint Paul have made a thorough study of multi-service centers within the City � of Saint Paul in coordination with other departments of the City and in ' coordination with human service providers; and ,' WHEREAS, the study of multi-service centers was made for the purpose of amending the Comprehensive Plan which has been previously adopted by the Planning Board of the City of Saint Paul ; and WHEREAS, a public hearing was held on January 9, 1976 whereat the Planning Commission considered the reconunendation to amend the Comprehensive Plan by including a plan for multi-service centers; and I�JHEREAS, prior to saiil hearing, a notice of the time and place and purpose of the hearing was published in the official newspaper of the municipality at least ten days prior to January 9, 1976; and I WHEREAS, prior to the publication of the notice of hearing, the proposed amendment pertaining to the plan for multi-service centers was transmitted to the City Council of the City of Saint Paul ; and WNEREAS, at said public hearing, the public, the Planning Department staff, and Planning Commission members were given the oppor'tunity to completely � discuss and review the proposed amendment pertaining to the plan for multi- service centers therefore, be it - RESOLVED, that the Planning Conunission for the City of Saint Paul hereby adopts as an amendment to the Comprehensive Plan of the City of Saint Paul , the plan for multi-service centers which is attached hereto and incorporated �� . herein by reference; and be it FURTHER RESOLVED, that a certified copy of this amendment, entitled, "A Plan for Multi-Service Centers" be transmitted to the City Council of the City of Saint Paul. moved by �oseph Panqal secor�ded by Adol f Tobl er in favor �nan;n�ous against J �6��84 SUMMARY �k A multi-service center is both a concept and a physical facility. In concept it is a coordinated approach within a neighborhood to the delivery of human services needed by the residents of that area. The physical facilities that house a multi-service center may be one building or a collection of buildings in close physical proximity to each other. �k Based on a rank order analysis by census tract of fifteen indicators of possible multi-faceted socia� problems, twenty-five census tracts were identified as potential areas of need for multi-service centers. These twenty- five census tracts represent the top one-third of all census tracts in probable degree of multi-faceted social problems. ' �k Although there are multi-service centers serving many of the identified areas, there are several areas that are not within easy reach of the existing centers. Payne ' , Avenue, upper West Side, and the western Summit-University areas are the primary examples of areas not currently serviced in close proximity by a multi-service center, although an out-reach program is provided in the western Sumnit-University area by the Hallie Q. Brown Center. �k There are thirteen existing facilities that can be classified as multi-service centers. With the exception of the Jewish Community Center in Highland Park, all of the multi-service centers are located in areas with concentrations of existing human services and, for the most part, in census tracts identified as potential need areas. �� k The physical facilities of several of the existing multi- service centers substantially limit the types of programs and services that can be offered. On-site vi5its indi- cate a need for new facilities in the service areas of Capitol Community Services, West Seventh Comnunity Center, and Dayton's Bluff Community Center. �k Accessibility and flexibility are key considerations in the design of a multi-service center. �k Visibility, accessibility, and proximity are key criteria in the location of a multi-service center. �k Neighborhood residents must take an active role in the planning, programming, and operation of a multi-service • center. They must be involved in the determination of needs and in the development of specific programs to meet these needs. They must be instrumental in choosing the � , center's board of directors and in staffing the center. Neiyhborhood residents must also be actively involved in the ongoing evaluation of services and programs offered by the center. �k The City of Saint Paul should consider funding multi- service center facilities to replace existing deficient multi-service centers, and to provide faci1ities or out- reach programs in those areas of high need not adequately served by existing multi-service centers. 't 1 _ �� 8� _ _ �k No construction funds should be allocated by the city until a determination of specific needs has been completed; until these needs have been translated into specific programs; and until a site has been agreed upon. �k The city should only fund programs within multi- service centers that are recognized city ftanctions. iii _ ��Q�� TABLE OF CONTENTS � INTRODUCT ION 1 WHAT IS A MULTI-SERVICE CENTER? 4 PURPOSE OF MULTI-SERVICE CENTER 7 ANALYSIS OF NEED 9 Existing Multi-Service Centers 9 Inventory of Existing Human Services 11 Areas with Probable Multi-Faceted - Social Problems 14 - , MULTI-SERVICE CENTER MODEL 20 RECOMMENDATIONS 26 ;� _ �?�'��°� � INTRODUCTION The concept of multi-service centers is not new. Historically, it evolved from the settlement house movement of the late 1800's. Settlement houses such as Hull House in Chicago offered a variety of services to the new immigrants from Europe. After the irr�nigrants were settled and had developed their own neighborhoods, settlement houses changed to neighborhood centers. In the years which followed, however, the scope of demand for human services changed. The demands for human services that resulted from the Great Depression were regional and nationwide in scope and ►were unable to be effectively met at the neighborhood level . Because of this change in demand, the state and federal governments became more responsible far the provision of human services. A whole series of new public and private agencies became involved in the provision of an - increasingly complex web of services. Due to the nature of the system these agencies became centralized and became specialized in the delivery of specific � , human services. Consequently, human services were con- centrated, with few exceptions, in the downtown areas of the cities. The end result of this pattern was that many neighborhoods were left without much needed direct services. During the last two decades new attempts have been made to decentralize services to meet the needs of the people. "War on Poverty" programs attempted to address the plight of the cities by recognizing 'that one way to fight neighborhood decay was to decentra1ize the human services delivery system. As part of this program hundreds of neighborhood centers were built throughout the country. In addition, the Neighborhood Facilities - ��o 8� Grant Program, which was part of the Housing and Urban Development Act approved by Congress in 1965, has during the last decade provided funds for the development of neighborhood service centers. Recently a new source of funds for the development of neighborhood service centers has been established. Com- munity Development Block Grant funds have replaced many of the old categorical programs, such as the Neighbor- hood Facilities Grant Program. The decision as to how Comnunity Development Funds are to be spent is left to the discretion' of each individual municipality p:rovided these decisions meet some general federal guideTines. Thus, municipaliti�s are being forced to plan how best to use the allocated monies and must weigh the com- parative benefits of one type of facility against another. Last year, during the Community Development Block Grant - process, the City of Saint Paul received seve:ral requests � from neighborhoods for funds to develop multi-service centers. Because of this demand, and the lack of any overall city plan or policy to guide decisions in this area, the City Planning Office has begun a process through which policies, plans, and programs dealing with the general need for multi-service centers and the spectrum of services to be provided will be formulated. In this process three elements will be developed. The first is a determination of the need for multi- service centers. This includes an inventory of the location and type of existing human services offered in Saint Paul . Results will indicate where existing ser- vices are concentrated, and also where there are -2- ,��08 � _ _ _ _ opportunities for the consolidation of existing services in a multi-service center. Also, an analysis will be conductec�, by census tract, of selected characteristics that are indicators of multi-faceted social problems. This analysis will indicate general areas o�F the city where there is the need for a comprehensive anpreach to providing human services because of the complexity of the problems that exist. The second element will be the development of a Multi- Service Center Model which will include a determination ' of the base -level of services that should be provided at every multi-service center as well as criteria to be used .in making specific location and site decisions. The third element will consist of recommendations as to the role of city government in multi-service center planning, funding, and programming. -3- . �� _ _ WHAT IS A MULTI-SERVICE CENTER? . A multi-service center is both a concept and a physical facility. In concept it is a coordinated approach, within a neighborhood or community, to the delivery of human services that are needed by the residents of that area. The physical facilities that house a multi- service center may be one building or a collection of buildings in close physical proximity to each other. The single facility approach does, however, present some advantages. First, such an approach is easier to control , manage, and coordinate. Second, the one-stop approach provides the people with greater accessibili�y to all services. A multi-service center's program of service must recoynize the individuality of its service area. How- ever, there are certain types of services th�t are generally common to each multi-service center. The - major human services of a multi-service center can be divided into two components: (1 ) the core service unit, and (2) the primary supporting service unit. The core services are the basic operational services that are necessary if a center is to function ade- quately. The core services are the minimum level of human services that should be provided at each multi- service center. It is recommended that the core services unit of each multi-service center in Saint Paul should consist of: (1 ) outreach, (2) case manage- ment, (3) community organization, (4) information and referral , and (5) administration. Outreach is the component of the core service unit that actively seeks out individuals who have specific human service needs. -4- - ��Q84 Information and referral is the component of the core services unit that provides information about human services and directs people who need human services to the appropriate service providers. Community organization is the component of the core services unit that promotes community participation in both the functioning of a multi-service center and in general corrmunity problem solving. Administration is the component of the core services unit that manages the multi-service center and its distribution of human services. Case management is the component of the core services unit that offers direct counseling to an individual or individuals who are experiencing a social problem. Through case management the progress of a client's - treatment is monitored to determine the effectiveness of the service and the satisfaction of �he client. - The primary supporting services unit consists of human � services that complement and enhance the core services. The types of primary supporting service needed may differ from center to center because the specific human service needs of each service area will be different. However, there are general categories of services that can be commonly identified as primary s�pporting services. These categories are: (1 ) housing, (2) health, (3) recreation, (4) employment, (5) education, (6) day care, (7) counselin , (8) senior citizen services, (9) legal services, (10}� transportation, and (11 ) meals. The relationship between the administrative services of the core unit and the providers of primary supporting services is the key to the adequate fun�tioning of a -5- � ��8� _ multi-service center. That relationship can be formal or informal . It is suggested, however, that formal relation- ships be estaClished. The development of joint use contracts or user contracts are two possible ways of formalizing relationships in a multi-service center. By using contractual methods, the roles between administra- tive services of the core unit and providers of primary supporting service agencies are more clearly defined. The contracts can specify: (1 ) roles of individual agencies, (2) administrative responsibilities, (3) utility and rent responsibilities, and (4) maintenance and staffing responsibilities. Under this setup, the multi-service center �oncept has a better chance for success in that all agencies involved know their roles and responsibilities. There is less chance for internal stress since many of the potential conflicts would be worked out through the contract - arrangements. -6- - �6�4�� PURPOSE OF MULTI-SERVICE CENTER In urban communities, specialized health, recreation, and social services may be available. However, avail- ability does not necessarjly mean that such services are received by people who need them. There are many families and individuals who are unable or unwilling to obtain and use services which they desperately need. The purpose of a multi-service center is to make human services more readily available and accessible to the citizens of Saint Paul . This statement implies a new relationship between city government, human service providers, and citizens. The goals of a multi-service center, within the overall framework of its purpose, are: 1 . To close the gap between the present supply of _ human services and the need for additional human • services in a community. 2. To provide human services in close proximity to the people who need the services, thus making the services more visible and accessib1e to the residents. 3. To consolidate certain human services at one place within a neighborhood so that residents do not have to travel all over the city to obtain needed services. -7- _ i - ��4�� 4. To coordinate the provision of human services within a neighborhood in order to prevent unneces- sary duplication of programs and services and to insure a close working relationship between provider agencies. 5. To involve area residents in the planning, program development, and operation of each multi-service center. 6. To humanize the delivery of services through the design of the physical facility and through the establishment of an effective process of dealing with people's problems within the physical confines of their own neighborhood. 7. To provide programs and services specifically designed to meet the human service needs of the ' , people of the area. _8- . r C��'�� ANALYSIS OF NEED An up-to-date statement of the need for multi-service centers within Saint Paul is not currently available. The Human Resources Planning Council did conduct a study concerning multi-service centers in 1970. How- ever, due to the ever-changing nature of the location and types of human services, and the need for an analysis of which areas have potential multi-faceted social problems, it was necessary to reanalyze just where the demand and need for multi-service centers exist. E�xisting Multi-Service Center � The following human service agencies, as shown on Map 1 , fit the definition of a multi-service center: Name Area Served � Jewish Community Center Highland Park Merriam Park Community Center Merriam Park Martin Luther King Center Summit-University Thomas-Dale Community Center Thomas-Dale Capitol Community Center North End Jackson-Wheelock Community Center McDonough Homes h1errick Community Center Lower Payne Avenue Capitol Community Services Mt. Airy Dayton's Bluff Multi-Service Center Dayton's Bluff East Area Community Services Roosevelt Homes Neighborhood House W'est Side Guadalupe Area Project West Side West Seventh Street Community Center West Seventh -9- � -o� - �� `� - .M � � � � � ; , 0 3. 3 � � � c � � � n } o � ? c : m � � � � n c� � r. m � � O �� N �I � � v � � � � m � � c� � (A V � 3 �°-. � � � � c o Z � � � �� _ -� .. � � � � o r« � (� � cQ _ C o � � � \� � � � � � � � � � � � � ' � fD o D ' m � .� o � ? � � � •o � � n � ' � � m m C� m v 3 � -g m Rl • � �' � 'c -- o � f� z• i ° " ° � "� � � `� � s� -� � � .# W � j D � � � o � A � � c a � �D � �• � � o � N � D m %�� N n � � � o � D � � D � � D= uci ---- � � 3 �p � � < N /'— � � �D � 1 � - � � �. O a o � � a m' � • 0 3 �� - � � � � c �_ �, CA _ � .� c� � � � 3 � r. v, m . . i� � - ��4 The programs of service vary from agency to agency and are generally dictated by the needs of the various areas served. However, space and funding limitations do have a direct effect on the type and level of � programs offered. A visit to each of the existing multi-service centers was conducted as part of the inventory process. It was evident from the visits that three multi-service center facilities are in need of replacement or major expansion and remodeling. The three centers and the areas they serve are Capitol Community Center (North End) , West Seventh Corrrnunity Center (West Seventh) , and Dayton's Bluff Multi-Service Center (Dayton's Bluff). - Inventory of Existing Human Service - The first step, in an analysis of where need exists, " was to inventory the location and type af existing human services. It is virtually impossible to develop a totally complete inventory of human service providers because of the great multiplicity of agencies or groups providing the almost unlimited variety of types of services. However, it is felt that the inventory material presented in this chapter and in the appendix covers almost all of the major providers located within Saint Paul . The inventory material was developed for each of the city's various comnunities. The schools and city rec- reation facilities were not included because they are -11- _��L �w �7� � .., � ��- -�� F 1 i �` � • m mn x x O � �n �n z ° � � c� m ..... _ � � � � C C D � ... � � —�, :::�::::: ' � D � N � Z � m c m0 c� � :` ::r - m n :�'��-.----- �' .. m : � m � �; .. z - � m � � � � m � � � � __ � �� a '.�•� f � � i�� ' ' i� � _ �6��84 _ common to all areas of the city. Every community within the city has at least two locations where various human services are provided. However, of the 193 ser- vice locations identified, the great majority were concentrated in a few areas of the city. Map 2 shows the areas of concentration of existing human services as well as the locations of the various exist- ing multi-service centers. Eleven distinct areas of concentration can be identified with a multi-service center being located within each area, with �he exception of the central business district. The concentration of existing human services indicates areas where opportunities for the coordination or physi- cal consolidation of services may be the greatest. Concentration also generally indicates the location of � areas where specific needs have been identified and are, to some degree, being met. . � The proliferation of human services is indicated not only by the fact that almost 200 locations were identi- fied, or by the general geographic decentralization of services, but also by the following facts. In Saint Paul there are approximately: Thirty-two all-day care centers; Twenty-six facilities where employment training or placement take place; Forty sites where some fortn of health service is provided; -13- - �� Eleven agencies providing crisis intervention services; Thirty-nine locations for residential treatment facilities; Three agencies concerned with legal assistance; Nine agencies involved in food stamps or meal delivery; and Twenty-six agencies providing casework or group services. Areas with Probable Multi- Faceted Social F'roblems ''—S An analysis of existing services can give an excellent indication of where needs are being met to varying . degrees; however, it gives no indication of areas of • need that have not been previously identified or are not being dealt with in some manner. To try to determine where areas of need dc� exist, an analysis of various socioeconomic characteristics, thought to be indicators of multi-faceted social problems, was undertaken. Fifteen categories of information were rank ordered by census tract. Finally, each census tract was ranked from high to low with the top rank going to the census tract that showed the most potential for multi-faceted social problems. The fol- lowing indicators were used: (1 ) median rent, (2) median house value, (3) percent non-white, (4) percent -14- . � . ��Q�� unemployed, (5) median school years completed, (6) percent of households with income below poverty level , (7) percent of persons age 0-17, (8) percent of persons age 65 and over, (9) number of AFDC cases, (10) number of inedical assistance cases, (11 ) number of welfare families, (12) number of one-parent families with children 18 years of age and under, (13) total barometer crime incidents, (14) percent of illegitimate births, and (15) mortality rate for respiratory diseases. Table 1 indicates the relative ranking of each census tract. Map 3 indicates those census tracts that rank in the top one-third of all census tracts in probable degree of multi-faceted social problems. Also shown are the locations of the existing multi-service centers. As can be expected, the "priority" areas are generally ' concentrated in the central core of the city. Although there are multi-service centers serving many of the identified areas, there are several cens;us tracts that ' , are not within easy reach of existing multi-service centers. Three general categories of facility need have been identified in this planning process. The first cate- gory includes the replacement of existinq multi-service center facilities that.are physically deficient. Three existing buildings fall into this category: (1 ) Capitol Community Center, (2) Dayton's Bluff Multi- Service Center, and (3) West Seventh Street Community Center. The second category includes the construction of new facilities or the development o� outreach programs in those areas identified as having a high degree of -15- _ , . -91— � �r W � `�' � r � � w `'� W � ~ �C O� ti � • •� . � � � • . W b V 1 � • Q� ~ 1 4 � � t.. � T W , „ W , � 1 W ) � � W p �/� N W �, " O W v ' � V � � � N W [.'N T � ••��• W y � N �� 14 O ' � w :::: W N W � v A �' .�'•.�•' W " _ ��1 N N . .�� y� � N u � f , � m .�. • , 1 � �' • - � m l�'l•':•' • ' . • ' � �A'.'::: ■ � . .. • ��. •�•�•� ••� •••�•�•� � O O m � :�: . .. �p•. ;.:•.;. :;.;;.; W � . X �7 y; 'r....:.�''.`''�.•. ;��;: (A Q '��' •'�•'�� . Z � � : N � o ' ::: m :::�; :r':::�:�:�::�:�:� -< ::, •'r•y , �:v.:•:.• '�::�:ti•:�•:::•::•::•:• � D � �:U�:� � �':'•:•t. :�;,.:•: �:�:`�'' :ic�::::•.+:�::::.;.;•:: ;:;.,';: ;::;;: . ' ... c � D ..,,...:�::•..'' :��:::::::'::�:::: t::::::::::;:�: :.,�........ :;.. � y � � (n W �'�''�'�'�''' � W :: ,.,: , ..�.,,,. ..... � � Cn ;�;;:: :�'';� ,•ro•.•. •:.;;.; ,� fTl ;:e,.; �' :;:�;:.•. � ::::::::::::::• ::{�;::�:: ,.. �'•. � �:�:� .��. �:�+:�:�:�:�:� n ••�•� a Y '.�.•��•.•.• o m ��: a �..�.Y.�.�.•• P ��.'� �� .'..•,. . m .::� . Z � �� P � r m � � ,,,. � ` ,. �.,•.� � � � ,,, .. � ° :��: a � 0 � •'• ••4•• �•�.' c � � r v ... .:..... _ •• :• . : � • � , .'l• ► f- �c o • � �w,.o.. - . � �, t y ww�R�C�Q �v MA=El � y � ,,, c s ' � � ti �� _ ��Q��, TABLE NO. 1 Potential For Multi-Faceted Social P�oblems Census Census Census Rank Tract Rank Tract Rank Tract 1 29 27 44 53 22 2 5 28 69 54 20 3 40 29 45 55 56 � 4 36 30 13 56 76.02 5 55 31 28 57 52 6 61 32 46 58 18.01 7 35 33 53 59 33 8 17 34 16 60 7.02 9 54 ' 35 8 61 1 10 39 36 58 62 18.02 11 26 37 12 63 50 12 37 38 9 64 74 13 38 39 24 65 8 ' 14 14 40 2 66 76.01 • 15 15 41 32 67 64 16 60 42 67 68 65 17 59 43 21 69 66 � 18 34 44 23 70 57 " 19 27 45 68 71 fi3 20 30 46 11 72 51 21 42 47 6 73 49 22 71 48 47 74 62 23 10 49 4 75 75 24 31 50 7.01 76 48 25 72 51 19 26 25 52 70 � -17- � _ ��,�� multi-faceted social problems, but not having an existing multi-service center in close proximity. Three areas fall within this category: (1 ) Payne Avenue (census tract 310) ; (2) Upper West Side (census tracts 371 and 372) ; and (3) 4lestern Summit-University (census tracts 335, 338, and 354). The last category includes existing multi-service centers that require minor build- ing additions to meet specific program needs. All of the existing centers fall into this category in varying degrees. Top priority should be given to the following two reco�nendations. The first reeorrnnendation is that existing deficient faeilities be repZaced. These facilities already have established ongoing programs in the neighborhoods they serve, However, they are unable to operate a totally , effective program of service because of the lack of , adequate space and facilities. The seeond recorrnnendation is that neu� facili�ies be eonstructed or be deveZoped in those areas identified as having a high degree of muZti-faceted soeiaZ problems but not having an existing multi-service eenter in eZose proximity. An alternative to constructing a new multi- service center should be to establish outreach programs from the already existing centers located in the peri- phery of the need area. This would greatly reduce both capital and operating costs. -18- . . ��c�� 3 Second priority is given to minor building additions needed to meet specific program needs. Few multi- service centers have special building funds; however, the United 4Jay, Ramsey Action Programs , and other agencies may provide centers with funds for building additions upon request. -19- . � ��Q�� MULTI-SERVICE CENTER MQDEL Two schematic drawings showing possible configurations for multi-service centers have been developed. The first drawing was developed for new construction. ,The second drawing was developed for the conversion of an existing building into a multi-service center. New Building The new construction design offers the greatest possible flexibility, bpth in design and location, since it is not tied to existing structures. Two factors become apparent in the schematic of a new multi-service center: 1 . The kitchen and the centralized interior court area are designed to become one focal point for people , gathering. This area can act as a drop-in �point , for a quick lunch or coffee for those using the facility, as well as people passing by. This area has three additional values. It can become a lounge for those waiting to use a particular service. It can be used as a co�nunity meeting room. It can be used as a theatre if necessary. 2. The spacial relationships between elements are very important in this design. Each space has easy access to other complementary spaces. The compatibility of the elements allows for flexibility in' programming. -20- . . r 6�4�� The information, administration, and office components are situated irrr�nnediately adjacent to the street for easy access. Similarly, the health componen� is located for ease of access. The library is intended to be more of a "catalog center" than a traditional library. Listings of books available at the main or branch libraries would be kept at the "catalog center." People would order books at the "catalog center" and, in a day or two, the books would be delivered from the main or branch library. Thus, many of the services available at a traditional library would be provided by the "catalog center" with- out requiring a large space for storing 'books and other material . � The education, gymnasium, and day care components should all be directly related to each other. The education section would consist of very flexible �pace, capable ' of being subdivided into a variety of sizes for "class- rooms" and storage spaces. The day care section would house child care programs. The gym and recreation facility is an extremely important part of the multi- � service center. Not only does it provide indoor space for recreation programs for all ages of people but, through programming variations, the gyrr� can double as a recreation area for the day care compon�nt or can pro- vide additional space for the extension of educational programs. The outdoor recreation space is also multi- functional . Particularly important is the relationship between the day care component and the tot lot area. The theatre location also stresses flexibility. The stage can open up either into the gymnasium or the interior court area, thus allowing for a change in -21- . , ' r��Q�4 NEW STRUCTURE SCHEI�/IATIC _ _ . . : �. . �.��. �: . �. �. .� . � � �. : .�:- �� .. �. . .' : �.�. � .,• �. :.�,', �, ..' � ,;�. : : : .�;� . ;;. � ��. �. : . �. �. � � OUTSIDE RECREATION AND S�PORTS : � ��,� �.� � �� . :. .�., : �. �,.:.� :�- ..: ��.:. ., �. -:..�. �. �, �. ; . �. : :� .� � .�. : � :. �: :� :. :: .:.:., �.:� :- .: : .�. �. �:�- �. � � � .� �� . � .�� . : � � . � � �. �� : : . .�- : : .. . : . � : , : . . . : . . . . . EDUCATION GYMNASIUM . � �� : � � � � - � , . �� '`^.'. LIBRARY � THEATER . � . 4 . � . . / /�//��//� DAY ..TOT•� HEALTH � �� ` ' � , INTERIOR COURT CARE .,LOT ANO LOUN GE� �� . .� � . . KITCHEN �� - � GARAGE ADMlNISTRATI ° � OFFICES z STREET -22- � � . . :��,�� atmosphere for the seating area, depending upon whether a formal play is being staged or an informal neighborhood meeting is being held. An important part of a multi-service center is the transportation component. In order to func�ion effec- tively a multi-service center must have the capability of ' transporting small groups of people to and from specific programs. A garage area, capable of housing the entire � transportation component, is shown in the schematic. Converted Buildings There are a number of different existing buildings that can be converted into multi-service centers. Examples of � these buildings are store fronts, industrial buildings, corr�nercial buildings, vacant houses, and vacant schools. � There are two advantages of using existing structures. First, the initial capital outlay costs are lower than new construction. Second, disruption of the neighborhood would be minimal since demolition of structures would not be necessary. There are, however, a number of disadvantages in converting existing structures. It may be extremely difficult to obtain all of the needed space at one location. The flexi- bility of the internal space is severely limited because of existing structural conditions. The long-range flexibility for expansion can be hampered. -23- i �� CONVERTED RESIDENTIAL & COMMERCIAL BUILDINGS � :i, � �� . .... _ . __. . . �� a J�P '.�; p'� � � �C• ��P iNs. SPORTING GOODS � �• G�'�� OFFICE ' T : 5 s oa� MA 7'0 R STREET - . . . . . . . . . . . . . . . � � � � ,:.,; . . ." 6ROCERY STORE HWD. � . . HEALTH / GYM � . STORE FACILI?'Y RECREATION� .. � � . ORU� / � FACIl.IT Y� ` w , 't'. STORE � � ' / F-- . � � � : '.' ' . . : ' .. � � �. • .. �. . '• � .'.• • . ' .. . o � .�• �, , _� ' �`� ` � ��.. DAY.CARE N OFFS.. . � . . . . . . . . Li.1 a . . . . . . . . . . . .� . � . . ' ' RES. � � --� �P TOT KITCHENNLIBRARY �,.. • � : . ;; Q ��, LOT EDUCATION�/ . . QQy. LOUNGE�' ; . � : ' . r. • ' : ';' • ' ' . '... ' '•` , :.. '. . . • : • - ' . • ' ,', •. '. ' • • +' r • ''�� '� : . . .• • ��, • • ,I� • • •'�.�i .'• .. �.... ; RES. ". � � . . . .�� .: RES. , • : . .. � . . . , � _ . �'' : � ' � • �-- �� ' . . �• '� . � � • � � � . : � . .. . .� : . . ��' . ..° . :;� . . . . . . . . .. .. ��. '. . .t� - ' - , . :,' ' � . . `� • • • , • � . .... .. '. � .� � ,' R�S. . . . ;� .- � ` ." RES. ;�� . . '. � . : '�'. ' � � �- . . ,, . . . : ' . . ..,. ;; . . . . , . -, . . .. .. . � -. . , . -24- " r��Q�� The design for existing structures is an indication that it is possible to design a multi-service center using an existing physical plant. The design does integrate functional relationships; however, the integration is not as thorough as it should be. Special care will have to be taken to insure that the building will� be accessible to the handicapped. The schematic model shows one possible way of developing a multi-service center, using existing buil'dings. The high-volume activities--those requiring the most space-- are located' in converted commercial buildings. The more residentially-oriented activities take place in a con- verted, two-story house. The backyard of the house becomes a tot lot for the day care center. The garage houses the transportation component of the center. -25- � ' � �� . RECOMMENDATIONS It should be noted that the multi-service center is but one component of the entire human service delivery system. Multi-service centers have been identified as an excellent method of delivering a wide range of ser- vices in areas where people have a high 7eve1 of multi- faceted social problems. However, the multi-service center is not necessarily the best method for delivering human services in other areas of the city. Policy Recommendations The City of Saint Paul shall become involved in the planning, coordinating, and construction of multi- service center buildings. � Multi-service centers shall be provided only in areas with a high level of multi-faceted social needs. � The City of Saint Paul shall only fund programs within multi-service centers that are recognized Gity functions. Joint planning and joint funding of multi-service centers by the city, Independent School District #625, the United Way, and other agencies shall be promoted wherever possible. -27- . J . . �� Process Guidelines The funding of multi-service centers should be considered only if a neighborhood or community identifies a multi-service center as a high neighborhood priority. Priority for the development of multi-service centers should be based on an analysis of the fifteen indicators of multi-faceted social problems identified in this report. No construction funds should be allocated by the � city until (1 ) a site has been agreed upon, (2) a determination of specific program needs has been completed, and (3) written contracts or agree- ments have been finalized, specifically putlining � responsibilities for maintenance, utilit7es, administration, and individual programs. The Department of Community Services should take the lead role on the city's behalf in coordinating the services to be offered and in obtaining the necessary working agreements and contracts so that a complete range of programs will be available. Community Development Block Grant funds should be used to fund a staff person to act in this position. Individual multi-service center programs should be evaluated on an annual basis to determine if they -28- . • I� � ��'�� _ are accomplishing the desired objectives of the community. Evaluation criteria should be developed as part of the contractual agreement for each program. The City of Saint Paul should not be the day-to-day administrator of a multi-service center. The city should develop an agreement with other agencies or groups for the center's administration. Design Guidelines , The facility should be free of architec�ural barriers to the handicapped. The facility should be designed for maxi'mum flexibility of internal space. . � The facility should be designed to insure confidentiality. The facility should have an adequate number of off-street parking spaces. The facility should be designed not just to meet present needs, but to meet estimated needs for the next ten years. Special care will have to be taken in the facility design to insure that a feeling of security exists, both internally and externally. -29- , � � � . '`��Q l�� _ _ . The facility should be energy efficient. Locational Guidelines Location should be central to the population being served. Location should be highly visible and close to areas that attract people on a daily basis, i .e. , shopping areas, playgrounds, and schools. Location should be on, or within, one-fourth mile of public �ransit routes. Location should be within walking distance • (approximately one-fourth mile) of the primary " service. area for the center. Location should be adjacent to existing schools, recreation centers, health clinics, libraries, or other such public facilities wherever possible so that these services can be readily integrated into the multi- service center program. Existing public buildings and facilities should be utilized to the greatest degree possible in the devel- opment of a multi-service center in order to minimize new construction costs and maximize the use of previous public expenditures. -30- . + .. . .. .. . � � ., .. � c ;. � �, � a�V , -� + _ -.� " '� : .- ;� . '.. , � , �.,. �., - . �y'.- ��; J3, � _ . ,,tr y � ' . r' Y 4�� -�s � � ; . 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'�. _ . � ' . � 'F :.l �� . d• T � � A �� r � � � s � �, ��: < � t �� `< <m ' �' � �`� �.�` . �, - , � ,• : � � , ,',. - _ 4� �, : � �. , � � t -� _ � .- \ r � � �; �; '� F � � . y�,� �( `l , �,. � i, . �IY��' ��{ �� ' ��}4�� } Jf, �: ," , _: . ... - - .S.� � " ,;Y' x `i. t. K,, . . ,� �1� �� .. �� t ' s . }• $ .. '�` ; � . . ,�. J ' : , ` ' _: .. . �F �" ` . �" ..� � �r� . . , .` ' . '' , . . at �� .�� -� x � � � � �� 1�,3�►3�a�aRf�'b:C.�1r�mi��fyf� ��µ,� _ z `� �� , �'_''�,�$, :-t'�4�''�� ' ,�` ��; � z , � � ��t. �� ul�.� ,;' , . "� _ �r� ��e�, " ,� , ' . _�� { ; �� `� . � � Q��_��+++�� ,- r �' s s , ��` 1� �.�V�� I . l.; .i:y ��` M.. ; ' � ' ` �t > ,' r , � `^ �:-�� • •� � _ �` >''t� �i1y�:'��MM�'�a�`�.�"+t�l �o"'C�1��'�'��"'�` ��4##�°T +'��"� ; , ,. ' r �, �i�:.�C'!�°`E�' .��t ''ao4�' '. _ ' �d�'' �" ��_�� ,. , �� ,. z'�� 4!� +o�� -� , ,, ; ��'�i ..� t'�; .� �i��t�� ,:�i�w� + �� P� �# �� ,. :.� . . f _ �' ;:� �=� � . . . r� , . . � . . '(' rt 1, � �"'sl�'�y� � � 1�' �� . � �' � ' .� p� t � � ��',. � 4 ; _. � . � `:: : ._ . ..� :.. -. : , �� .��' . - � - f '� �� . ; y , , " .'', ... :. ,�. . : � � ; K i�, :1� �a � � ��. e: �.,�� . . �� v � � � /�hM�hl�� , �. � a ' . w� .F� '� � "� - - -.. � e � �, ;�,�s �' . .'.� ,. j� �+� .� �� . , � _: � ;� t' � '��, . '� , � _�� . � � . . . .�. . . , .. . . ^ui ' _ #� a 'a./' �i t* N ' .t, . . - �. a'�Mu "� �i-:� �- . � ��,} � � �k, � ;� �w��?: ' � , ' � � ' � ' �� ` �! : r . , , . . , . •. ., , , . , „ ' i f '; , : �. �. � a � �� f;� . '�� --� . �. � a r�`s.. y F''. �.., - � .;a - C � � : .� ... � .� . '�� ,�. �.,+ 9 .�. , _ u � � �� - �.�"�: ` .. . . . X�� '� � . � "" / � . �.� . . . . ' �� . A ~ I �{ 2� �t"� .f �l: '��d��' r' . . w 1 � °� �. y �.� � _ -' ' _ ^ b�' ,- � � n �t a}� � , k y _�� - � . � . . S. /��. � k ;:t Yu .a. w �` _ ti, i '� J ,e'- u `,� �. s , f .. � . � � � ��i ; t ' '. . . � `;a 1� � - , ��l � P'- }�t� , i 'Y�� i -. =� #r . . ^;�� ' � ;, � .t � �� . .� i f ��.; � � �1 s "- r 2 ;' ,fr Y a � = A... �- '�r k. �. . . ! . . ,n � .� , . ._ � . . . . ...r. < �. _ b . .6 ... .. �. t e _ , . . �`S!1l.'L+ . .. L . .�' ..r .� 1.�- _�_ . . �. iL , ��-� '��:�<, CITY OF �AINT PAUL �� '`' �`�� . �,; �jr� '�- OFFICE OF TFIE GITY COU'�i'�iL �,�8� �: `� 1 t�il .52. � � . . . . . . � .. . . . . 7� ! y : . . '�5�. . . . �" '� Da t e : March 10, 1976 •,:,�.�.,,_ C � � �� i � P � �� TO : �aint Paut City Council FR� � � COfiltTtlttC@ O!1 City Development and Community Services Leonard W. Levine , chairman, makes the following report on C.F. � �] Ordinance [� Resatution [�.] Ofiher 'j' ('j' LE : Letter of the P1 anni ng Commi ssi on concerni ng adopti on of the plan for multi-service centers as an amendment to the City's Comprehensive P1an. The City Development and Community Services Committee met and conferred on this matter on March 5, 1976. The Committee recommends that the report on multi-service centers be amended as follows: -0n Page 7, the following sentence should be added to the first paragraph: , i�c+'r�4. "A1so, delivery systems have been pool^1y designed or inadequate and have not met the needs of some families and individuals". The Committee recommends approval of this report with the addition of this amendment. � �� . � (./ CITY HALL SEVENTH FLOOR SAINT PAUL, D�INNESOTA 55102 :�_e '_; , � CITY OF SAII�tT PAU�L ��4 �lTY p�, w ,y R� �� Bose Mix Q i;�-,�-f:,>»�, a Alber� B. Otsou City Clerk and ` '�-'�;'-'��' ` Couneil Recorder Council Secretar�/ ds �° ».� OFFIGE OF THE CITY CLERK BUREAIJ OP RECORDS 388 Cdty Hall St.Paul,Minnesota 5¢IQ� Phone 298-l��i3i ; February 10, 1976 � Councilman Leonard Levine, Chairman - City Development & Communitq Services Committee Room 718, City Hall St. Paul, Minnesota � Dear Sir: The City Council referred to the City Development and Cammunity Services Committee for consideration and recommendation the attached letter of the Planning Coordinator transmitting the action of the Planning Commission concerning the adoption of the Plan for Multiservice Centers as an amendment to the City's Comprehensive Plan. ry truly yours, v� ��•l' � City Clerk Attach. � ABO:dcm _ I . �6�°�4 � � � CITY OF SAtNT PAUL , . � ` OFFICE OF THE MAYOR CITY PLANNING ` DONALD L SPAtD AIP � � PLANNING COORDINATOR February 3, ]976 Councii President David Hozza Y and Members of the City Council c/o Rose Mix; City Clerk 386 City Hall . St. Paul , Minnesota 55102 Dear Councii Members: Attached for your consideration is a copy of a resa]ution by the . . City Planning Commission concerning the adoption of the "Plan for Muiti-Service Centers" as an amendment to the City's Comprehensive _ P7an. Also attached is a xeroxed copy of the "Plan for Mu7ti-Service . • Centers". Because of the immediate nature of Community DeveTopment Year II discussions concerning the funding of multi-service centers in Saint Paul , it was decided to send you copies of the document before final printing so that you would have it available for your de7iberations. After final printing and in .accordance with state law,.a certified copy of the Plan will be transmitted to you. Sincerely, . Donald . Spaid � Planning Coordinator � DLS:mcb attachments 421 Wabasha Street, Saint Paul, Minnesot� 55102 (612)-298-415'i �-=*�n . . • ��Q�� e�ty of sa�nt paul � planning commission resolution _ - file number ��-, ..� date January 9, 1976 : , WHEREAS, the Planning Board of the City of Saint Paul (inunediate predecessor . of Planning Commission of the City of Saint Paul ) adopted, pursuant to law, a Comprehensive Plan for the City of Saint Paul and filed such plan with the Cit;� Clerk of the City of Saint Paul in October, 1963; and WHEREAS, the Planning Department and the Planning Cor�niss,�on of the City of � Saint Paul have made a thorough study of multi-service centers within the City • of Saint Paul in coordination with other departments of the City and in � coordination with human service providers; and .' WHEREAS, the study of mu]ti-service centers was made for the purpose of amending the Comprehensive Plan which has been previously adopted by the Planning Board of the City of Saint Pau]; and WHEREAS, a public hearing was held on January 9, 1976 whereat the Planning Commission considered the recommendation to amend the Comprehensive Plan by including a plan for mu]ti-service centers; and 4JHEREAS, prior to saiil hearing, a notice of the time and place and purpose of the hearing was published in the official newspaper of the municipality at least ten days prior to January 9, 1976; and WHEREAS, prior to the publication of the notice of hearing, the proposed amendment pertaining to the plan for multi-service centers was transmitted to the City Council of the City of Saint Paul ; and WHEREAS, at said public hearing, the public, the Planning Department staff, and Planning Commission members were given the opportunity to completely discuss and review the proposed amendment pertaining to the plan for mu]ti- service centers therefore, be it RESOLVED, that the Planning Commission for the City of Saint Paul hereby ' adopts as an amendment to the Comprehensive Plan of the City of Saint Paul , the p7an for multi-service centers which is attached hereto and incorporated herein by reference; and be it FURTNER RESOLVED, that a certified copy of this amendment, entitled, "A Plan for Multi-Service Centers" be transmitted to the City Council of the City of Saint Paul. moved by �oseph PanQal seconded by Adol f Tob_� 1 er � in favor �na� against I -- �� : _ �� CITY OF S� tNT PAUL OFFICE OF THE MAYOR CITY PLANNING DONALD L. SPAID AIP PLANNING CO�RDtNATOR February 3, 1976 Council President David Hozza ~ . and Members of the City Council cJo Rose Mix; City C1erk 386 City Hall _ St. Paul , Minnesota 55102 Dear Council Members: Attached for your consideration is a copy of a resolution by the City Planning Comnission concerning the adoption of the "Plan for Multi-Service Centers" as an amendment to the City's Comprehensive Plan. Also attached is a xeroxed copy of the "Plan for Multi-Service Centers". Because of the irranediate nature of Conxnunity Development Year II discussions concerning the funding of multi-service centers in Saint Paul , it was decided to send you copies of the document before final printing so that you would have it available for your deliberations. After final printing and in accordance with state laHr, a certified copy of the Plan will be transmitted to you. Sincerely, � _ / :%'� , -,,� Donald �Spa�d Planning Coordinator DLS:mcb attachments 421 Wabasha Street, Saint Paul, Minnesota 55102 (612)-298-4151 _...� �. \ � II - � � _� � ��'��'�� , � � ; ♦ � � � � . _ � °��' �� SUMMARY �k A multi-service center is both a concept and a physical facility. In concept it is a coordinated appwoach within a neighborhood to the delivery of human services needed by the residents of that area. The physical facilities that house a multi-service center may be one building or a collection of buildings in close physical proximity to each other. � �k Based on a rank order analysis by census tract of fifteen indicators of possible multi-faceted social problems, twenty-five census tracts were identified as potential areas of need for multi-service centers. These twenty- five census tracts represent the top one-third of all census tracts in probable degree of multi-faceted social � problems. - �k Although there are multi-service centers serving many of the identified areas, there are several areas that are not within easy reach of the existing centers. Payne � , Avenue, upper West Side, and the western Summit-University areas are the primary examples of areas not carrently serviced in close proximity by a multi-service center, although an out-reach program is provided in the western Sumnit-University area by the Hallie Q. Brown Center. �k There are thirteen existing facilities that can be classified as multi-service centers. With the exception of the Jewish Community Center in Highland Park, all of the multi-service centers are located in areas with concentrations of existing human services and, for the most part, in census tracts identified as potential need areas. , , ` � ! l:l.��t��.J� _ � ' �k The physical facilities of several of the existing multi- service centers substantially limit the types of programs and services that can be offered. On-sit� visits indi- cate a need for new facilities in the seryice areas of Capitol Community Services, West Seventh Comnunity Center, and Dayton's Bluff Community Center. * Accessibility and flexibility are key considerations in the design of a multi-service center. �k Visibility, accessibility, and proximity are key criteria in the location of a multi-service center: �k Neighborhood residents must take an active, role in the planning, programming, and operation of a multi-service ,. center. They must be involved in the determination of needs and in the development of specific p'rograms to meet these needs. They must be instrumental in choosing the , center's board of directors and in staffing the center. Neiyhborhood residents must also be actively involved in the ongoing evaluation of services and pro�rams offered by the center. �k The City of Saint Paul should consider funding multi- service center facilities to replace existing deficient multi-service centers, and to provide facilities or out- reach programs in those areas of high need' not adequately served by existing multi-service centers. � ii . - ' ��Q!'�� k No construction funds should be allocated by the city until a determination of specific needs has been completed; until these needs have been translated into specific programs; and until a site has been agreed upon. �k The city should only fund programs within multi- service centers that are recognized city functions. iii . . _ • ��4 __ _ . TABLE OF CONTENTS INTRODUCTION 1 WHAT IS A MULTI-SERVICE CENTER? 4 PURPOSE OF MULTI-SERVICE CENTER 7 ANALYSIS OF NEED 9 Existing Multi-Service Centers 9 Inventory of Existing Human Services 11 � Areas with Probable Multi-Faceted Social Problems 14 , MULTI-SERVICE CENTER MODEL 20 RECOMMENDATIONS 26 ;� r � i ' . . ' �� _ _ __ � INTRODUCTION .�. _ , _ _ ; � The con�ept of multi-service centers is not new. Histori�ally, it evolved from the settl'ement house movement of the late 180d's. Settlement houses such as Hull Hou�se in Chicago offered a variety of services to the new, immigrants from Europe. After the immigrants were settled and had developed their own neighborhoods, settlement houses changed to neighborho'od centers. il In the �{ears which followed, however, the scope of demand for human services changed. The demands for human s�rvices that resulted from the Great Depression were re�ional and nationwide in scope and were unable to be efifectively met at the neighborhopo level . Becauseiof this change in demand, the state and federal _ governments became more responsible for' the provision of humar� services. A whole series of new public and privatelagencies became involved in the provision of an _ increasiingly complex web of services. Que to the nature o�f the system these agenciES became centralized and became specialized in the delivery bf specific human se!rvices. Consequently, human se�vices were con- centrate�d, with few exceptions, in the downtown areas of the c�ities. The end result of this pattern was that many nei�hborhoods were left without much needed direct services. ' During the last two decades new attempts have been made to decen�ralize services to meet the needs of the people. "War on Poverty" programs atteMpted to address the plig�t of the cities by recognizing that one way to fight neighborhood decay was to decentralize the human services delivery system. As part of this program hundreds� of neighborhood centers were built throughout the coun�ry. In addition, the Neighborh!ood Facilities ' � I� � � i � I � . � , �j �Q _ ' F::��J�.7� Grant Program, which was part of the Housing and Urban Development Act approved by Congress in 1965, has during the last decad� provided funds for the development of neighborhood s�rvice centers. Recently a new; source of funds for the development of neighborhood sgrvice centers has been established. Com- munity Develop�nent Block Grant funds have replaced many of the old catlegorical programs, such as the Neighbor- hood Facilitie's Grant Program. The decision as to how Comnunity Deve�lopment Funds are to be spent is left to the discretion' of each individual municipality provided these decisiorjs meet some general federal guidelines. Thus, municipallities are being forced to plan how best to use the allocated monies and must weigh the com- � parative benefits of one type of facility against another. Last year, dulring the Community Development Block Grant process, the �City of Saint Paul received several requests " from neighborhoods for funds to develop multi-service centers. Bec�ause of this demand, and the lack of any overall city ;plan or policy to guide decisions in this area, the Ci�y Planning Office has begun a process through which policies, plans, and programs dealing with the gen�ral need for multi-service centers and the spectrum of services to be provided will be formulated. In this process three elements will be devel;oped. The first is a determination of the need for multi- service cent�rs. This includes an inventory of the location and� type of existing human services offered in Saint Paul . Results will indicate where existing ser- vices are cancentrated, and also where ther� are - ' -2- � I r � �`��'�� _ _ _ opportunities for the consolidation of existiMg services in a multi-service center. Also, an analysis will be conductec;, by census tract, of selected characteristics that are indicators of multi-faceted social p�^oblems. This analysis will indicate general areas of the city where there is the need for a comprehensive appr�ach to providing human services because of the complexity of the problems that exist. The second element will be the development of a Multi- Service Center Model which will include a de�ermination of the base �level of services that should be provided at every multi-service center as well as cri�eria to be used .in making specific location and site ' decisions. The third element will consist of recommendations as to - the role of city government in multi-service center planning, funding, and programming. -3- _ - ' �6��84 WHAT IS A MULTI-SERVICE CENT�R? A multi-service center is both a concept and a physical facility. In concept it is a coordinated approach, within a neighborhood or community, to the deliviery of human services that are needed by the residents of that area. The physical facilities that house a multi- service center may be one building or a collection of buildings in close physical proximity to each other. The single facility approach does, however, pre5ent some advantages. First, such an approach is easier to control , manage, and coordinate. Second, the or�e-stop approach provides the people with greater acces�ibility to all services. A multi-service center's program of service must _ recoynize the individuality of its service area. How- ever, there are certain types of services that are generally common to each multi-service center. The _ major human services of a multi-service center can be divided into two components: (1 ) the core service unit, and (2) the primary supporting service unit. The core services are the basic operational services that are necessary if a center is to function ade- quately. The core services are the minimum le'vel of human services that should be provided at each multi- service center. It is recommended that the care services unit of each multi-service center in Saint Paul should consist of: (1 ) outreach, (Z) ca�e manage- ment, (3) community organization, (4) information and referral , and (5) administration. Outreach is the component of the core service unit that actively seeks out individuals who have specific human service needs. - -4- r ' . � I ��a �� _ _ Information and referral is the component of the core services unit that provides information about human services and directs people who need human services to the appropriate service providers. Community organization is the component of the core services unit that promotes community partticipation in both the functioning of a multi-service center and in general community problem solving. Administration is the component of the core services unit that manages the multi-service center and its distribution of human services. Case management is the component of the core services unit that offers direct counseling to an i,ndividual or � individuals who are experiencing a social problem. Through case management the progress of a client's treatment is monitored to determine the effectiveness of the service and the satisfaction .of the client. , The primary supporting services unit consists of human services that complement and enhance the �ore services. The types of primary supporting service needed may differ from center to center because the specific human service needs of each service area will be different. However, there are general categories of services that can be commonly identified as primary supporting services. These categories are: (1 ) housing, (2) health, (3) recreation, (4) employment, (5) education�, (6) day care, (7) counselin , (8) senior citizen servic+es, (9) legal services, (10� transportation, and (11) m�eals. The relationship between the administrative services of the core unit and the providers of primary supporting services is the key to the adequate functioning of a -5- . � �+��Q1�� multi-service center. That relationship can be formal or informal . It is suggested, however, that formal relation- ships be esta�lished. The development of joint use contracts or user contracts are two possible ways of formalizing relationships in a multi-service center. By using contractual methods, the roles between administra- tive services of the core unit and providers of primary supporting service agencies are more clearly defined. The contracts can specify: (1 ) roles of individual agencies, (2) administrative responsibilities, (3) utility and rent responsibilities, and (4) maintenance and staffing responsibilities. Under this setup, the multi-service center cbncept has a better chance for success in th.at all agenci�s involved know their roles and responsibilities. There is less � chance for internal stress since many of the potential -- conflicts would be worked out through the contract arrangements. -6- _ ' �� 6°'8� _ PURPOSE OF MULTI-SERVICE CENTER In urban communities, specialized health, recreation, and social services may be available. However, avail- ability does not necessarjly mean that such services are received by people who need them. T�here are many families and individuals who are unable or unwilling to obtain and use services which they desperately need. �� The purpose of a multi-service center is to make human services more readily available and accessible to the citizens of Saint Paul . This statement implies a new relationship between city government, human service providers, and citizens. _ The goals of a multi-service center, within the overall framework of its purpose, are: 1 . To close the gap between the present supply of human services and the need for additional human - services in a community. 2. To provide human services in close ,proximity to the people who need the services, thus making the services more visible and accessibl'e to the residents. 3. To consolidate certain human services at one place within a neighborhood so that' residents do not have to travel all over the city to obtain needed services. -7- � �66�84 4. To coordinate the provision of human services within a neighborhood in order to prevent unneces- sary duplication of programs and services and to insure a close working relationship between provider agencies. ' 5. To involve area residents in the planning, program development, and operation of each multi-service center. 6. To humanize the de7ivery of services through the design of the physical facility and �firough the establishment of an effective process of dealing with people's problems within the physical confines of their own neighborhood. 7. To provide programs and services specifically designed to meet the human service needs of the , people of the area. -8- _ , I - ' ��'4if�� _ _ ANALYSIS OF NEED An up-to-date statement of the need for multi-service centers within Saint Paul is not currently available. The Human Resources Planning Council did conduct a study concerning multi-service centers in 1970. How- ever, due to the ever-changing nature of the location and types of human services, and the need for an analysis of which areas have potential multi-faceted , social problems, it was necessary to reanalyze just where the demand and need for multi-service Centers exist. Existing Multi-Service Center The following human service agencies, as shovrn on Map 1 , f fit the definition of a multi-service center: ' Name Area Served � Jewish Community Center Highland Park Merriam Park Community Center Merriam Park hlartin Luther King Center Summit-University Thomas-Dale Community Center ThomaS-Dale Capitol Community Center North End Jackson-Wheelock Community Center McDonough Homes hterri ck Corr�nun i ty Center Lower Payne Avenue Capitol Community Services Mt. Airy Dayton's Bluff Multi-Service Center Daytan's Bluff East Area Community Services Roosevelt Homes Neighborhood House West Side Guadalupe Area Project West Side West Seventh Street Corr�nunity Center West Seventh -9- �?. _ , . �"��: - � _O� `�' ... , � � �' � � � c� °' o � � � � � c � � � n 0 : � � i � � . � � : � � -. r: � n m � � m -� � s a �° a3t � i � v � �' m X � �' � n 0 � c � -o —_�I � 3 c o Z � � � '-• 1 4 � Iy , � � T.. `< O r. � C� 3 co C \ � � � • ?. o -* . r � � � , � � � � 3 � � � n � D � r« � o f�rl � `� �^ m � � " � � ^� G � � O � l J � (� m v 3 � v m rTl • � �' �' � -� o � ? C� ° � m �� `` 3 � � � � � � Z . )� o� � � ° � � � c < ?. D 3 m c � � n ,� � c (A w o � u� C� D m �---�`< = a ='• � � � ai C� � � � � � � � m � �O (n � � � ____ D-c m � D � � =v� -- � ;U � m � < m � °�' � m � C� � o n � � � �D � � o c ►� ; � m � � - i p � .� c / `�' ?• Cn _ ,� c� i�. n < � ci � � r. v� - m i� % - I , i ��Q'�� _ The programs of service vary from agency to agency and are generally dictated by the needs of the various areas served. However, space and funding limitations do have a direct effect on the type and level of programs offered. A visit to each of the existing multi-service centers was conducted as part of the inventory process. It was evident from the visits that three multi-service center facilities are in need of replacement or major expansion and remodeling. The three centers and the areas they serve are Capitol Community Center (North End) , West Seventh Community Center (West Seventh) , and Dayton's Bluff Multi-Service Center (Da�rton's B1 uff). . inventory of Existing Human Service The first step, in an analysis of where need exists, " was to inventory the location and type of existing human services. It is virtually impossible to develop a totally complete inventory of human service providers because of the great multiplicity of agencies or groups providing the almost unlimited variety of types of services. However, it is felt that the inventory material presented in this chapter and in the appendix covers almost all of the major providers located within Saint Paul . The inventory material was developed for e,ach of the city's various comnunities. The schools a�nd city rec- reation facilities were not included because they are -11- � . �6��4 _��_ - � ---- _______._=J`_----... � _! —Y.«. , . / � e f f` \ � :`:::t :;: ��::<:::}� m m c� x x O (A � Z F - ---I -� C7 m � � � � � - C C D � ... �--I :�:::::: -r-I D p N (� Z Z m � c m O - C� � :`��{`r'�: m n � n m :� .. m � � m � a � � � � t — ---�� _ �..�� ,� _ i� . � ' ��4 common to all areas of the city. Every community within the city has at least two locations where various human services are provided. However, of the 193 ser- vice locations identified, the great majori�y were concentrated in a few areas of the city. Map 2 shows the areas of concentration of existing human services as well as the locations of the various exist- ing multi-service centers. Eleven distinct 'areas of concentration ca�n be identified with a multi-service 1 center being located within each area, with the exception of the central business district. ' The concentration of existing human services indicates _ areas where opportunities for the coordination or physi- cal consolidation of services may be the gr�atest. Concentration also generally indicates the location o�f _ areas where specific needs have been identified and are, to some degree, being met. � The proliferation of human services is indiGated not only by the fact that almost 200 locations were identi- fied, or by the general geographic decentralization of services, but also by the following facts. In Saint Paul there are approximately: Thirty-two all-day care centers; Twenty-six facilities where employment tra'�ining or placement take place; Forty sites where some form of health serv�ce is provided; -13- ; I I ��°�4 Eleven agencies providing crisis intervention services; Thirty-nine locations for residential treatment facilities; Three agencies concerned with legal assistance; Nine agencies involved in food stamps or meal delivery; and Twenty-six agencies providing casework' or group services. Areas with Probable Multi- Fac�eted Social F'roblems ''—S � An analysis of existing services can give an excellent indication of where needs are being met to varying degrees; however, it gives no indication of areas of - need that have not been previously identified or are not being dealt with in some manner. To try to determine where areas of need do exist, an analysis of various socioeconomic characteristics, thought to be indicators of multi-faceted social problems, was undertaken. Fifteen categories of information were rank ordered by census tract. Finally, each census tract was ranked from high to low with the top rank going to the census tract that showed the most potential for multi-faceted social problems. The fol- lowing indicators were used: (1 ) median 'rent, (2) median house value, (3) percent non-whit�, (4) percent -14- - . , C� QQ , � ��..y�J� + � _ unemployed, (5) median school years completed, (6) percent of households w•ith income below poverty level , (7) percent of persons age 0-17, (8) percent of persons age 65 and over, (9) number of AFDC cases, (10) number of inedical assistance cases, (11 ) number of welfare families, (12) number of one-parent families with children 18 years of age and under, (13) total barometer crime incidents, (14) percent of illegitimate births, and (15) mortality rate for respiratory � diseases. Table 1 indicates the relative ranking of each census tract. Map 3 indicates those census tracts that rank in the top one-third of all census tracts in probable _ degree of multi-faceted social problems. A7so shovm are the locations of the existing multi-service centers. As can be expected, the "priority" areas are generally _ concentrated in the central core of the city. Although there are multi-service centers serving many of the identified areas, there are several census tracts that , are not within easy reach of existing multi-service centers. Three general categories of facility need Mave been identified in this planning process. The �irst cate- gory includes the replacement of existing multi-service center facilities that.are physically defiGient. Three existing buildings fall into this category: (1 ) Capitol Community Center, (2) Dayton's 61uff Multi- Service Center, and (3) West Seventh Stree�t Community Center. The second category includes the construction of new facilities or the development of outreach programs in those areas identified as having a high degree of -15- _91_ r . . W � W , W • � . W , W � ti � P ti W •J � • W � V J. ~ � y 1 � O v �► � � V W 'W a w: V+ O v �. �.. � "' O v �. J � � � • � W ■ N a .r .�:•: t ... � N fd •��• N y O I ,� � V W p� � N O• W W O� V � �. .�' .....•. W ` w �� ! •��: w j t N O . O� t m •�� • ' y • ...�. • W • •:.• � � � � •'�•�•�••�•�• ' • �� .�'�4•:.:•l • • •• • :�.. �i��i• ��•�•�� W ld 1 1 1 V • •• �Q�• �i��:• .��. W m � X � ��•••� ••�•{�� • • .��i��.�i �N•�.. 'TYi ��1�� O ��•�•� 1X��• •��••• ' Z � � • •r�• —� o :.�: m �::� :'�:::::::::::::::: +� � , �'r,y ,, . �:v:•:: '�:�::�::��:'�::::::� .. � .t :v:•: w:•::::•:: D � �:L:� ��:; �:�:�::: :�•:•:::•. ...... C � D '�'�'�� '�`L''''�r' � v'�: t�:�:�:�:�:::;'' •�: '.V.'.':.'.'•• .'f.':.'.'. ��:.' _ � m � '.V..... ,,..••.....,•��:��:� :j.'. D W .•�'.'.'.'.'.'.'.'.'.':.'.' � �, •'•'•'i4'• ^ w '�' '•'• ' .•.•:�•::�. ...... o C/) �:v:� :•';�� .•,o•.•. •:.;.;; ,o rn :.�.: tr` •�'�.:':. � �'•::•:•:•:•:•:• •:,G;;':. ,.... �;: C •��.' .•!. '.Wy.•.•.'.'.' � �•�.• a •.v.•�•�•�•�• o m ::�:: a .,...'.x.:.:.�� P .�� •�•••••• m N '' �, ; w � � � �• ' •� P � r p �1 m • � '' . ,� �o �•�' � � � �� '.Y.' � ° �•�'• � .',. ... , � ..._.._ ':�'� � :� � • � � � '� •''''i � � • � '►u.u.. ^- . �t � � S . . v`w.rE�4• ev NAtE� � _ w a � G z ti r. ��b�� , . ___ _ . ' �66484 TABLE NO. 1 Potential For Multi-Faceted Sociai Problems Census Census Census Rank Tract Rank Tract Rank Tract 1 29 27 44 53 22 2 5 28 69 54 20 3 40 29 45 55 56 4 36 30 13 56 76.02 5 55 31 28 57 52 6 61 32 46 58 18.01 7 35 33 53 59 33 8 17 34 16 60 7.02 9 54 ' 35 8 61 1 10 39 36 58 62 18.02 11 26 37 12 63 50 12 37 38 9 64 74 13 38 39 24 65 8 14 14 40 2 66 76.01 15 15 41 32 67 64 16 60 42 67 68 65 17 59 43 21 69 66 18 34 44 23 7Q 57 " 19 27 45 68 71 E3 20 30 46 11 72 51 21 42 47 6 73 49 22 71 48 47 74 62 23 10 49 4 7� 75 24 31 50 7.01 76 48 25 72 51 19 26 25 52 70 ` -17- ' i • � ��84 multi-faceted social problems, but not havin� an existing multi-service center in close proximity. Three areas fall within this category: (1 ) Payne l�venue (census tract 310); (2) Upper West Side (cen�us tracts 371 and 372) ; and (3) Western Summit-University (census tracts 335, 338, and 354) . The last category includes existing multi-service centers that require minor build- ing additions to meet specific program needs'. All of the existing centers fall into this category in varying degrees. Top priority should be given to the following two recommendations. 2he first recorronendation is that existing d�ficient facilities be repZaced. These facilities al,ready have - established ongoing programs in the neighborhoods they serve. However, they are unable to operate a totally effective program of service because of the 'lack of , adequate space and facilities. The second recorrnnendatiort is that neu� facilities be constructed or be deveZoped in those areas identified as having a high degree of muZti-faeeted soeiat problems but not having an existing muZti-service ee�cter in eZose proximity. An alternative to constructing � new multi- service center should be to establish outreach programs from th� already existing centers located in the peri- phery of the need area. This would greatly reduce both capital and operating costs. -18- _ , ��g� � , �. _ _ _ Second priority is given to minor building additions needed to meet specific program needs. Few multi- service centers have special building funds; however, the United �Jay, Ramsey Action Programs , and dther agencies may provide centers with funds for building additions upon request. -19- - ��'�'� . , MULTI-SERVICE CENTER MO�DEL Two schematic drawings showing possible configurations for multi-service centers have been developed. The first drawing was developed for new construction. The second drawing was developed for the conversion of an existing building into a multi-service center. New Building The new construction design offers the greatest possible flexibility, bpth in design and location, since it as not tied to existing structures. . Two factors become apparent in the schematic of a new multi-service center: 1 . The kitchen and the centralized interior court area are designed to become one focal point for people gathering. This area can act as a drop-in�point , for a quick lunch or coffee for those using the facility, as well as people passing by. This area has three additional values. It can become a lounge for those waiting to use a particular service. It . can be used as a community meeting room. It can be used as a theatre if necessary. 2. The spacial relationships between elements are very important in this design. Each space has easy access to other complementary spaces. The compatibility of the elements allows for flexibility in prograrmiing. -20- . ` ' ��48� The information, administration, and office components are situated immediately adjacent to the street for easy access. Similarly, the i�ealth component is lbcated for ease of access. The library is intended to be more of a "catalog center" than a traditional library. Listings of books available at the main or branch libr�ries would be kept at the "catalog center." People would order books at the "catalog center" and, in a day or two, the � books would be delivered from the main or branch library. Thus, many of the services available at a traditional library would be provided by the "catalog center" with- out requiring a large space for storing books and other material . ' The education, gymnasium, and day care components should ` all be directly related to each other. The �ducation section would consist of very flexible space, capable of being subdivided into a variety of sizes for "class- J rooms" and storage spaces. The day care section would house child care programs. The gym and recreation facility is an extremely important part of the multi- � service center. Not only does it provide indoor space for recreation programs for all ages of peop7e but, through programming variations, the gyrr� can double as a recreation area for the day care component or can pro- vide additional space for the extension of educational programs. The outdoor recreation space is also multi- functional . Particularly important is the relationship between the day care component and the tot lot area. The theatre location also stresses flexibility. The stage can open up either into the gymnasium 'or the interior court area, thus allowing for a change in -21- f � . a ��Q�4 NEW STRUCTURE SCHEMATIC .� � �� - � : � : � : � �� ..� �� : �' .� �. . �. .��._ . .� .. �. . , . ., . . . . : : . -. . � ��. �, : . �. �. � ,�,OUTSIDE RECREATION AND SPORTS : � .�.� �.� � ; �� . . � ' � . . . . ..� . �� . � � _. . �.. � . . � . �. . . ' � . . � _ . �. . . ..��. � .. .. � .., �-. � � � -� �� . � .�� . : . ; : . � .� . : : �. � : . �: : . � ' � : . . .: � ; : : � �� EDUCATION GYMNASIUM � � �� . � . � , _ '% � LIBRARY � THEATER - � . � . � . . . % //��//////� DAY :TOT•. HEALTH � �� ' ' � � INTERIOR COURT CARE .,LOT AN� LOUN GE� �� , , .. . � . . KITCHEN �� - �� GARAGE ADMINISTRATI ° � OFFICES z STREET � -22- � • n��4 atmosphere for the seating area, depending upon whether a formal play is being staged or an informal neighborhood meeting is being held. An important part of a multi-service center is the transportation component. In order to function effec- tively a multi-service center must have the capability of � transporting small groups of people to a�d from specific programs. A garage area, capable of housing the entire � transportation component, is shown in the schematic. Converted Buildings � There are a number of different existing buildings that can be converted into multi-service centers. Examples of these buildings are store fronts, industrial buildings, - cor�nercial buildings, vacant houses, and vacant schools. � There are two advantages of using existing structures. First, the initial capital outlay costs are lower than new construction. Second, disruption of the neighborhood � would be minimal since demolition of structures would not be necessary. There are, however, a number of disadvantages in converting � existing structures. It may be extremely difficult to obtain all of the needed spacE at one location. The flexi- bility of the internal space is severely limited because of existing structural conditions. The long-range flexibility for expansion can be hampered. -23- � � ' � .� . �:��984 CONVERTED RESIDENTIAL & COMMERCIAL BUILDINGS :,� �'� _ . �� ,��' JQ.Q' �,�; �0'�� • �'�P I NS. SPORTING GOODS � . L ,�0 0 �� OFFiCE $TOR� • 5 MA TO R STREET . . . . . . . . - . . . . . . . . . . . :.,; . . .' GROCERY STORE HWD. � . . HEALTH � GYM /� ' STORE FACILITY RECREATION � ` . ORUG � � � FACII.IT Y� w _ . • STORE �j � � : � � � ; •�. . . . ; � � . .. �. . ' ' � ' . . . . o � • ,� � � '' .` ' W . a�� DAY CARE � OFFS. . � � . ' ' RES. ' � '• —� �P� TOT KITCHEN�LIBRARY ;:. • • �•� --! ��, LOT �DUCATION�/ : � . � Q Q�g`�� LOUN�E�j . . • �� .�. '. ' � ;� : . � ' ,� ' . ' '�, • '', , �:.. �. . . • , � . . . • . . . . . �.', . . . . . ,' • . . . . . • � � � . . • ,� � , . . . , . ';. , ., ��' . : •, RES. . � ; . • � .t '". . .•�. RES. . .• . - . . . . � , � �;. . � � ,-� ',�. �,; . . . . . . . ; .;.. •� . : .: : . . ��: :i: .,: .;. . . . . . ' ..• . � . „•` . • • • • • ••' . •• l ,• .. .. � .. . . ', � � . ' � ,� RES. ..;:, �" � `..' RES. �: � . . . . .. : ,'';• - • . <-:_s .: ., . : • . . .' , � .... ;�' , -24- ` � ��4� . 4 The design for existing structures is an indication that it is possible to design a multi-service cer�ter using an existing physical plant. The design does integrate functional relationships; however, the integration is not as thorough as it should be. Special care will have to �e taken to insure that t{ie building will. be accessible to the handicapped. The schematic model shows one possible way of developing a multi-service center, using existing buildings. The high-volume activities--those requiring the most space-- are located� in converted commercial buildings. The more residentially-oriented activities take place in a con- verted, two-story house. The backyard of the house becomes a tot lot for the day care center. The garage ' houses the transportation component of the center. -25- � � �� 8� . � � . , e �� 4 RECOMMENDATIONS It should be noted that the multi-service cent�r is but one component of the entire human service delivery system. Multi-service centers have been identified as an excellent method of delivering a wide range of ser- vices in areas where people have a high level of multi- faceted social problems. However, the multi-service center is not necessarily the best method for delivering � human services in other areas of the city. Policy Recommendations The City of Saint Paul shall become involved in the planning, coordinating, and construction of multi- service center buildings. Multi-service centers shall be provided only in areas � with a high level of multi-faceted social needs. � The City of Saint Paul shall only fund programs within multi-service centers that are recognized city functions. Joint planning and joint funding of multi-service centers by the city, Independent School District #625, the United Way, and other agencies shall be promoted wherever possible. -27- � . .. , � . ,��E�� Process Guidelines The funding of multi-service centers should be considered only if a neighborhood or community identifies a multi-service center as a high neighborhood priority. Priority for the development of multi-service centers should be based on an analysis of the fifteen indicators of multi-faceted social problems identified �in this report. No construction funds should be allocated by the ' city until (1 ) a site has been agreed upon, (2) a determination of specific program needs has , been completed, and (3) written contracts or agree- ments have been finalized, specifically outlining responsibilities for maintenance, utilities, administration, and individual programs. The Department of Community Services should take the lead role on the city's behalf in coordinating the services to be offered and in obtaining the necessary working agreements and contracts so that a complete range of programs will be available. Community Development Block Grant funds should be used to fund a staff person to act in this position. Individual multi-service center programs should be evaluated on an annual basis to determine if they -28- � i i i " . ' `��°�4 _ _ are accomplishing the desired objectives 'of the community. Evaluation criteria should b� developed as part of the contractual agreement for'each program. The City of Saint Paul should not be the day-to-day administrator of a multi-service center. The city should develop an agreement with other agencies or groups for the center's administration. Design Guidelines The facility should be free of architectu�ral barriers to the handicapped. � The facility should be designed for maximum flexibility ' of internal space. � The facility should be designed to insure' confidentiality. The facility should have an adequate number of off-street parking spaces. ' The facility should be designed not just to meet present needs, but to meet estimated needs for the next ten years. Special care will have to be taken in the ,facility design to insure that a feeling of security exists, both internally and externally. -29- � , , s , . �� , :;,_ , _ __ 1'he facility should be energy efficient. Locational Guidelines Location should be central to the population being served. Location should be highly visible and close to areas that attract people on a daily basis, i .e. , shopping areas, playgrounds, and schools. - Location should be on, or within, one-fourth mile of public �ransit routes. Location should be within walking distance (approximately one-fourth mile) of the primary " service. area for the center. Location should be adjacent to existing schools, recreation centers, health clinics, libraries, or other such public facilities wherever possible so that. these services can be readily integrated into the multi- service center program. Existing public buildings and facilities should be utilized to the greatest degree possible in the devel- opment of a multi-service center in order to minimize new construction costs and maximize the use of previous public expenditures. -30- , � �� : � , ti � CITY OF SAINT PAUL OFFICE OF THE MAYOR CITY PLANNING DONALD L. SPAID AIP PLANNING COORDINATOR December 30, 1975 Council President David Hozza and Members of the Council City of Saint Paul c/o City Clerk 386 City Hall St. Paul , Minnesota 55102 Dear Council Members: On January 9, 1976, at 9:00 A.M. , the Saint Paul City Planning Commission will hold a public hearing conc�rning the proposed "Plan for Multi-Service Centers." The hearing will be held at 421 Wabasha, second floor. Attached for your information is a copy of the proposed "Plan for Multi-Service Centers" that will be considered by the Commission. Sincerely, � C'�4� . Donald L. Spaid DLS:da Attachment 421 Wabasha Street, Saint Paul, Minnesota 55102 (612)-298-4151 0 1 ' ' PROPOSAL t , IPLAN FOR MULTI-SERVICE CENTERS � An amendment to St. Paul's Comprehensive P].an ' ' 1 ' ' . t St. Paul City Planning ' Janua.ry 9, 1976 ' ' -- ' 1 1 ' , SUMMARY � . a multi-service center is both a concept and a physical facility. ' In concept it is a coordinated approach within a neighborhood to the delivery of numan services needed by the residents of that area. The physical facilities that house a multi-service ' center may be one building or a collection of buildings in close physical proximity to each other. . Based on a rank arder analysis by census tractr of fifteen indicators , of possible multi-faceted social problems, tw�nty-five census tracts were identified as potential areas of need for multi-service centers. These twenty-five census tracts repr�esent the top 1/3 ' of all census tracts in probable degree of multi-�aceted social problems. ' . Although there are multi-service centers serving many of the identified areas, there are several areas that are not within easy reach of the existing centers. Payne Av2nue, upper West Side, and the western SurrrWnnit-University areas are the primary ' examples of areas not currently serviced in close proximity by a multi-service center, although an out-reach' program is provided in the western Surrrnit-Uriiversity area by the Hallie Q. Brown ' Center. . There are thirteen existing facilities that can be classified , as multi-service centers. With the exception, of the Jewish Community Center in Highland Park, all of the multi-service centers are located in areas with concentrations of existhng human services and for the most part in census tracts identified as potential , need areas. . The physical facilities of several of the existing multi-service , centers substantially limit the types of programs and services that can be offered. On site visits indicate a need for new facilities in the service areas of Capitol Community Services, West Seventh Corr�nunity Center, and Day�on's Bluff Community Center. ' . Accessib�lity and flexibility are key considerations in the design of a multi-service center. ' . Visibility, accessibility, and proximi��r are �key criteria in the location of a multi-service center. ' . Neighborhood residents must take an active rale in the planning, programming, and operation of a multi-servicQ center. They must be involved in the determination of needs and in the development ' of specific programs to meet these needs. They must be instrumentai in choosing the center's board of directors �nd in staffing the center. Neighborhood residents must also be actively involved � ' in the ongo�ng evaluation of services and prdgrams offered by the center. ' -ii- ' � ' , • The City of St. Paul shauld consider funding �multi-service center ' facilities to replace existing deficient multi-service centers; and to provide facilities or outreach programs in those areas of high need not adequately served by existing mlalti-service centers. ' � • No construction funds should be allocated by the city until a determination of specific needs has been comp'leted; until these ' needs have been translated into specific prog�rams; and until a site has been agreed upon. • The city should only fund pragrams within mul�ti-service centers ' that are recognized city functions. ' 1 . ' ' 1 , 1 1 ' . ' ' ' , -iii- ' , t ' TABLE OF CONTENTS ' INTRODUCTION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 WHAT IS A MULTI-SERVICE CENTER?. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .4 ' PURPOSE �OF MULTI-SERVICE CENTER. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7 , ANALYSIS OF NEED. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 Existing Mu1ti-Service CentQrs. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 ' Inventory of Existing Human Services. . . . . . . . . . . . � . . . . . . . . . . . . . .11 Areas with Probable Multi-Faceted Social Problems. . . . . . . . . . . . . .12 ' MULTI-SERVICE CENTER MODEL. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20 ' RECOMMENDATIONS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .26 ' ' ' . ' , � , , ' ' ' _�� , 1 � � INTRODUCTION fihe . concept of multi-service centers is not new. Historically, it evolved from the settlement hnuse movement of the late 1800s. , Settlement houses such as Hull House in Chicago offered a variety of services � to the new imnigrants from Europe. After the immfigrants were settled and had developed their own neighborhoods, settlement houses changed �, to neighborhood centers. In the years which followed, however, the scope of demand for , human services changed. The demands for human services that resulted ' from the Great Depression were regional and natiqnwide in scope and were unable to be effectively met at the neig�hbor�hood leveT. � Because of this change in demand, the State and �ederal governments became more responsible for the provision of human services. A whole ' series of new public and private agencies became involved in the provision � of an increasingly complex web of services. Du� to the nature of the system these agencies became centralized and became specialized in the ' delivery of specific human services. Consequen�ly, human services were concentrated with few exceptions in the downtown areas of the � cities. The end result of this pattern was that many neighborhoods ' were left without much needed direct services. During the last two decades new attempts have been made to decentralize � services to meet the needs of the people. "War on Poverty" programs attempted to address the plight of the cities 4y recognizing that � one way to fight neighbarhood decay was to decentralize the human � services delivery system. As part of this pro�ram hundreds of neighborhood centers were built throughaut the country. In addition, the Neighborhood � _1-- -2- � Pr ram which was art of the Housin and Urban Develo ent � Faci 1 i ti es Grant og , p 9 P�'� Act approved by Congress in 1965, has during the last decade provided � funds for the development of neighborhood service centers. Recently a new source of funds for the development of neighborhood , service centers has been established. Comnunity Development Block ' Grant funds have replaced many of the old categorical programs such as the Neighborhood Facilities Grant Program. The decision as to how � Comrw nity Development Funds are to be spent is left to the discretion of each individual municipality provided these decisions meet some � general federal guidelines. Thus, municipalities are being forced ' to plan how best to use the allocated monies and must weigh the comparative benefits of one type of facility against another. � Last year, during the Corr�nnunity Development Block Grant process, the City of St. Paul received several requests from neighborhoods for � funds to develop multi-service centers. Because of this demand and the lack of any overall city plan or policy to guide decisions in ' this area, the City Planning Office has begun a process through which � policies, plans, and programs dealing with the general need for multi- service centers and the spectrum of services to be provided will be � formulated. In this process three elements will be developed. The first is a determination of the need for multi-service centers. � This includes an inventory of the location and type of existing human ' services offered in St. Paul . Results will indicate where existing services are concentrated, and also where there are opportunities � for the consolidation of existing services in a multi-service center. Also, an analysis will be conducted by census tract of selected characteristics � that ar.e indicators of multi-faceted ,social problems. This analysis � will indicate general areas of the city where there is the need for � ' -3- � a comprehensive approach to providing ,�uman serv��es because of the ' complexity of the problems that exist. The second element will be 'the development of a Muati-Service ' Center Model whieh will include a determination o� the base level ' of services that should be provided at every multi-service center as we11 as criteria and decisions to be used in mai`king specific location , and' sf�te decisions. The third element will consist of recomnendations as to the role , of city government`in multi-service center planning, funding, and � programming. , 1 � ' , ' : ' . ' ' , � , ' ' ' ' WHAT IS A MULTI-SERVICE CENTER? ' A multi-service center is both a concept and a physical facility. In concept it is a coordinated approach within a neighborhood or comnunity , to the deiivery of human services that ar� needed by the residents ' of that area. The physical facilities that house a multi-service center may be one building or a collection of buildings in close physical ' proximity to-each other. The single facility approach does, however, present some advantages. First, such an approach is easier to control , ' manage, and coordinate� Second, the one stop approach provides the � people with greater accessibility to all services. A multi-service center's program of service must recognize the ' individuality of its service �area. However, there are certain types of services that are generally common to each multi-service center. ' The major human services of a multi-service center can be divided � into two components: (1 ) the core service unit; and (2) the primary supporting service unit. , The core services are the basic operational services that are necessary if a center is to function adequately. The core services � are the minimum level of human services that should be provided at ' each multi-service center. It is recorrunended that the core services unit of each multi-service center in St. Paul �hould consist of: , (1 ) outreach; (2) case management; (3) corrmunity organization; � (4) information and referral ; and (5) administration. ' Outreach is thQ component of the core service unit that actively , seeks out individuals who have specific human service needs. ' -4- ' ' -5- � t ; Information and Referral is the component of the core services ' unit that provides information about human services and directs people ' who need human services to the appropriate servi�e providers. Comnunity Organization is the component of �he core services ' ' unit that promotes comnunity participation in both the functioning of a multi-service center and in general community problem solving. ' Administration is the component of the core� services unit that ' manages the multi-service center and its distribution of human services. Case Management is the component of the cor�e services unit that ' offers direct counseling to individual or individuals who are experiencing a social problem. Through case management the� progress of a client's . ' treatment is monitored to determine the effectiv'�eness of the service ' and the satisfaction of the client. The primary supporting services unit consis,ts of human services ' that complement and enhance the core services. The types of primary supporting service needed may differ from center to center because ' the specific human service needs of each servic� area will be different. ' However, there are general categories of services that can be comnonly identified as primary supporting services. These categories are: ' (1 ) housing; (2) health; (3) recrea tion; (4) employment; (5) education; (6) day care; (7) counseling; (8) senior cititen services; (9) legal � services; (10) transportation; and (11) meals: The relationship between the administrativ� services of the core ' unit and the providers of primary supporting services is the key to ' the adequate functioning of a multi-service center. That relationship can be formal or informal . It is suggested, however, that formal trelationships be established. The d�velopment pf joint use contracts ' or user contracts are t�o possible ways of fnrm�lizing relationships ' j -6- ' ' in a multi-service center. By using contractual methods, the roles between administrative services of the core uni� and providers of ' primary supporting services agencies are more clearly defined. The contracts can specify: (1 ) roles of individual agencies; (2) administrative ' responsibilities; (3) utility and rent responsibilities; and (4) maintenance ' and staffing responsibilities. Under this setup, the multi-service center concept has a better ' chance for success in that all agencies involved know their roles and responsibilities. There is less chance for internal stress since ' many of the potential conflicts would be worked out through the contract ' arrangements. . ' ' , . ' ' ' ' ' , ' ' ' i ! PURPOSE OF MULTI-SERVICE CENTER i _ , � In urban ccxnmunities specialized health, recreation, and sociai services may be availab]e. However, availability does not necessarily ' mean that such services are received by peop]e wl�lo r�eed the�. There are many families and individuais who are unabie or umvilling to obtain � and use services which they desperately need. ' The purpose of a multi-service center is to imake human services more readily available and accessible to the citizens of St. Paul . ! This statement impl'ies a new relationship between city government, human service providers, and citizens. � The goals of a multi-service center w9tfiin t�e overali framework � of its purpose are: ' 1 . To close the gap between the present supply of human services ' and the need for additional human services in a cpmmunity. 2. To provide human services in close proximity to the people � who need the services, thus making the services more visible and accessible ' to the residents. 3. To consolidate certain human services at'one place within a neighborhood ' so that residents da not have to travei all over the city to obtain needed services. ' 4. To coardinate the provision of h�?� ser�rices within a neighborhood � in order to prevent unnecessary duplication of programs and services and to insure a close work�ng relation�hip betweera provider agencies. � 5. To finvolve area residents in the plannin�, program development, and operation of each muiti-service center. � , I � -7- # -8- i 6. To humanize the delivery of services through the design of � the physical facility and through the establishment of an effective � process of dealing with people's problems within the physical confines of their own neighborhood. ! 7. To provide programs and services specifically designed to meet the human service needs of the people of the area. , � , � . - � � , ` � ' ' ' � , � � ' ' t ANALYSIS OF NEED ' ' An up-to-date statement of the need for multi-se�^vice centers within St. Paul is not currentiy available. The Human Resources Planning ' Council did conduct a study concerning multi-service centers in 1970. However, due to the ever�changing nature of the loca�ion and types 1 of human services and the need for an analysis of which areas have potential multi-faceted sociai problems, it was necessary to reanalyze ' 'ust where the demand and need for multi-service centers exist. J ' Existin Multi-Service Centers The following hurnan service agencies as shown on Map 1 fit the � 1 definition of a multi-service center: ' Name Area Served Jewish Comnunity Center High1and Park ' Merriam Park Comnunity Center Merriam Park , Martin Luther King Center Summit-University Thomas-Dale Comnunity Center - �'homas-Dale ' Capitol Community Center North End Jackson-Wheelock Comnunity Center McDonough Homes ' Merrick Community � Lower P�yne Avenue Capitol Comrr�unity Services Mt. Airy , Daytons Bluff Multi-Service Center Daytons Bluff ' East ArQa Gomnunity Services Roosevelt Homes Neighborhaod House West Side 1 Guadalupe ANea Project West Side West Seventh 5tre�t Comrrwnity Center West Seventh ' ' «�V ��11 ' ' 1111=�' � �� !!! � � ��'`'�� t � , .��111�1'�� ,1� �� ' �� . Y I�— Illlr� � , � - �► � . � - _ _ . 111g;j��i�� ►��:�� i c., � _,--,-- ,::� �� -� �� ..►� � , ...r._IIN I � � ;�,.� �� . _ ��.�� -� .� � = _ ��111 � � :�� y -- IN � �1��111�11�U�11111 , � ��r �� . �" �I .' ", NII� 1 11 � , I ,J �"" � � � f._ � ��111 1 � � `� - �� 11� ��,� i� I �� : � �.�1 �� 1��! . � n ' �� %i � , �� • �� ■ 1�� ■� �� /I ;,�.--.. IIII 1 '' = , ��11 1�1 � 1 �■j � � � NY� �NIN I�1 ��1 111�� . �u�� ,► IIIi1Nle ��1 � 111 " 1 ►1 . = t11111111 = 1►1 111 !.i� �� _ : =%i q �� 1�1111111 . �► 11 ��1/� , �!!) , ��.==iiiiiiiiii ii :�� • ��' � �.• = I �NU� �� ■ � �.'s'' II : • �n�u� �� ,.: - �. , •-��.�.�� .►� Illlli �'`: _ ��,��! - ., '•�i iiiii'ii • 11 I � .°E: ��' „J� � ::'��-�:�II . ' •� \ ■■.-=::�i��n 1 11�� h:� .-� ...■..�� .. � -�.,�,i;�'� . •�� i....... 11�,� r�i,,�• � �11i��• �� ■. .,��t.c a -��► ��.��■■-■�n��n ' ':!: ♦ ♦�� ' ♦��mu��n■�cnnm ��•i��- � �mm��u►v � � r� ��.��. �• - �.��1111;��■�� /,,,� �. ��.. . ■��■ • � = 1��1�� ■ � �j'.�� \ •.:��1l��■ ��,. � � �� .�,�� _ � � ■��n��i � `�/ii►�11�+`�� '► _ ��.]��!ii i�■ �� ! ♦ �.......... �N� ��"�1�{�� t��wt��' t = q�in�r-nr.�■ IN �� • i►_ iil�� \��n��.G/��!1 ' �:� - \1 iiii � � .. .��:u�■i �� .� � �� \.■■■■ � �� ii �1.,.. �ri �� °��II �I� � ��, ��1.,. � �` .'�� 11� =i uu�/ �� I Ilh . �. •■■■■■... � . � i/1�'i = IIIINIIIII' �� , �►� ( ►��. '1 : = 11111111111 " ' 1� 1i�•:��`� 'C ��:' 11111111111 ►./� �� ' �;'''"�`` ..��..�.1 '�� II�L �IIIIIIIIIIu111 1� 1■''•'• ,. . ��.�� I 1 t��.�� I ��i�� r� �� • . �� .' IIIIIIIiIII II�11 111 '� Itll ;��I►��:� . �� ,,�p= P�Illll�iilliiii 111 ' ��11 , ��011►1�� i�s' ; . 11111=.. .■■■ •� 111 �11 - °:��►� �, ":_ _ 111111111 111 1��1 r�i ►111111111�� 111111111 �IIIIII�l��/111�� 111111111�� ,,,,,,�, ,,,,,,,,,..,,,.,, � �w��:...-., � �. . t�� ►�i��i��..��1 ...::.....,-_�,_;. i�� t■��:I IIII �-;, ��'�'&� /IN�l111111 - ` 11111��/s!�'�■.■■��a.�� ,�� .� 111�111111 � !I �1111�p..rr��1111111111111111A1��. �► , _ � ► � �IIIINIIII II�11��J;"///�I�III�IIIIIIIfl1111111111�� ; _ p � � 11 41 � 1I�1 ��Illllllllll�lfd� ��a� � � � � tl � ' ��111=11111Hl1=11 � ♦� 11 ," s:i:."li � ;��i i1 ■ 1i111:� ��" L� ,h , I..�� = —,�.�■��■■■■ ��r ��—i�� • i�■ � �� i�iiiiiiii�t �' � �si i� � _ �e.......�1i��,, ��i��llll� . ��iir -I+�•��i�iii�iri�'iiii�� eli► 1 H�_ � �� ■^��w� �/� i ■ � ` � ,/ ` ■ �i�l�� 111:� 1' - ��'S,�'� IIi.; • �1� � �`��■��'��111311'�'�� ' � .�.>"�t 11 � _ - �........III�� ..I�YJ1;�� _.`�' �_, � � ,..u.�.. .. •. � ..,r�u��w�w 111111111111 �.Il�l�if/CIIII�I� � �� 1'�' .��!■��Ilflllllllllll�'llllll —�•��'T`� �. /�� /J��//� ��i11111111111111 111111 �' � �� t��w� �� w��11� �i�� , l `�y+,�,h•'• � A" ��:/�t'i��!�� ",./�� ,�� .�. .► �-�..�--" �__�--� �"'�.��;� , =` �,�L.IfYi�1 =r1 ♦ /."� � j � _'_� '- �� '%!�� ; ' -11- ' ' The programs of service vary from agency to a�ency and are generally ' dictated by the needs of the various areas served.' However, space and funding limitations �o have a direct effect on� the type and level ' of programs offered. ' A visit to each of the exist�ng multi-servic� centers was conducted as part of the inventory process. It was evident �from the visits , that three multi-service center facilities are in �need of replacement or major expansion and remodeiing. The three centers and the areas ' they serve are Capitol Community Center (North End), West Seventh ' Comnunity Center (West Seventh), and Dayton's,Bluff Multi-Service Center (Dayton's Bluff). . ' Inventory of Existing Human Servic�s , The first step in an analysis of where need ,exists was to inventory the location and type of existing human servi�ces.' It is virtually ' impossible to develop a totally complete inventory of human service providers because of the great multiplicity of a�encies or groups providing ' the almost unlimited variety of types of servise�. However, it is , felt that the inventory material presented in this chapter and in the appendix covers most all of �he major providers �ocated within St. Paul . , The inventory material was developed for ea�h of the city's various comnunities. The schools and city recreation facilities were not ' included because they are comr�wn to all areas of the city. The maps � contained in the appendix show that edery cort�nu�ity within the city has at least two locations where various human services are provided. � However,, of. the 193 service locatiQn� identified, the great majority were concen"trated in a few areas of the city. ' - � � � -12- , ' Map 2 shows the areas of concentration of existing human services as well as the locations of the various existing multi-service centers. ' Eleven distinct areas of concentration can be identified with a multi- service center being located within each area with the exception of , the central business district. ' , The concentration of existin� human services indicates areas where opportunities for the coordination or physical consolidation ' of services may be the greatest. Concentration also generally indicates the location of areas where specific needs have been identified and ' are to some degree being met. . . � ' The proliferation of human services is indicated not only by the fact that almost 200 locations were identified or by the general geographic , decentralization of services�, but also by the following facts. In St. Paul there are approxima�ely: ' Thirty-two all day care centers; , Twenty-six facilities where employment training, or placement take place; , Forty sites where some form of health service is provided; Eleven agencies providing crisis intervention services; ' Thirty-nine locations for residential treatment facilities; rned with le al assistance; � Three agencies conce g Nine agencies involved in food stamps or meal delivery; and ' Twenty-six agencies providing casework or group services. ' Areas with Probable Multi-Faceted Social Problems An analysis of existing services can give an excellent indication , of where needs are being met to varying degre�s. However, it gi�es no indication of areas of need that have not been previously identifed , or are not being deait with in some manner. t 4�� 1 �i�ll 1��" ' ',i� � �� 1 � 1 �� I—��111—� �,, � ��=i— _� � 111��.�;;;�� -- i � �' , 11111 111:.:��■I��i.►.�� ,,�-. •- r: � —_�•�� :;�.,�� ■►1 ��■ �� ,� N�� ..:r'._IIIII.., > �� INi�� .�� ■■ -� `� ,� �, ` ��= ��111 �..1,, �� .. r=��ii�� ■��*� � _ � ��u � ui��. ��u��i��. / � �-, �,.�.� _ ! �" �� ;`? Aiiiii iii�� `�III � ��, °�` � �� ! �:. I � / ��` :N��. I��r.r-�� Q � I �� ,._ �—�, w� ►�� i�i ,� � -- W �IIlll�il��u%� �� .�. :� `A�i� ��.��• �;� �► :;.i . . i-p �� I�ul �I�� 1 �1�I�111111�111�11..1�.11�1111 ■1, , �IFi�i1�11111�Y1�111111111=illiil �� ! 1�I�1111� ��11111111111111 ►� .�' 1 =1=IIIIIINIiIr`1►11111111111�I7�•i � � ' •iI �� 1�111111111 �� RQ`��''I�� • �' i�� ,�/N.==�n��e��u i�a�Y,�Q�Q��i►�� , ' �,;-�a�ri ■uQ�e�� ■■ b�,�b �c'�Q�,�►�,�� s.�:i� . �r ■�u�dp�a�ae� `■ ��_� �2��; - / ,.� .�,��1�� INIII�IIIf��■:� '`��, ��j4,�,,;,.1�� iii ►�1 f��$��$��i4�9.t1:1�- �,�� I �i 9F ��11 ��rzNmea.c �;� .- , n 'r ��YL.lC311 G.+ ►\, ` ,' ■P i� ��rsstm��ssa►r3%il�ui►�� \ ��,'.P:�tax��,a� �� ■ u��i 'wcaltD ■!r• .s�c,ca.r�_--�.._�U • Sd tv'�iG��11�11 � iii�� a':'� �>:� ` ��I< <��;' �unu�� N�IIIII■��I �� -•�'��1.� `,� ��s�.��,' �in�u�i�"� ' ■■ ' �:�,%�"a� .� �,.��/Id1�..��u■ � W�� ► �Y�t-�� +L�. � �uo�=��u�uu � 3�.'-�w,��.��. r�r>x14T �y��O��u�C�/�� , _ ��o��y*ao r�y�'��'►�� `�un��\ � y � /! �{ � ir ? A� ♦ /��, ' L � 1�'S� �88� �.�a'��T`:d��r*t j� `��} �� ■ 1�� t��b � �• A f <'�;4i , ♦�i'�� n.�... t/I�� t�i�`$ ��L�>�r•Cx� �� ♦ � � ��n�/N ♦ � ��_I „""��I.�P,��'1�a�r�,i�"�� J��!ii�� iGV ' 6x�".�w ��■o�■■.■.o ��a■ �/II�IIRD"'�lIIYII:11 Qx�ax�� c- �r te', `\•f�•�:nr�• ��1�?iTi��■I�R_ .��II��/� ■\�vIM�S�h!�t�� `�►��..Ai.�r�,%� �1iiiii ° • ��4A�i�� S �� *JhN . ��• -' �� . �: �. a� ..__�� ; � Q�.�c�4; � ��L.: �� r�ix!u�ii� �i■ ootKQaray !�� \ �i.� � . aaroc��■� �►ea5�xy� R C �0�,��, t ��t ��: �' � �, ��■� 1",� 17!ISSN'15K�� 3; �t8d�,�� H�: 'di� - �i� �"„ itQ�%�G9P�XK R�{I9S74�� up �a�.' ! ��i 1�� .//p�LxV�(Vq7p��LY�{V�(1;'f�71Spl�(t{y. .^'fOtH]O[F�A,��i`[7�� y» �. � . �� iQ7aSiyS9}9X��[7aS7pSK}G}(P�(T{7pS'F�l�.�„��±\\'�`�tu�m�iai.�� 1 � 9P7�%KCQ}%K441 l� � �'� � � : ��ga��ga��;��<a��a��;�'� -:�;i,�:: �__�-==��•�1 �� $�x�� :��W:�� \ � . s� �� / i`��s�a�:�♦ \ t�� e,� ��$�� 11�, �w�'. .�� 1� �i E��Ba��aa��;:�a��a�a��t�1� ;i��iici� �� == 111�8�'"��$3��sQ��s�sQr�n�E8�38��11 ��`.�■ �dl: �u'�, ,i='.�= 111�� t��fsA�ssE�a6s�i�a$��g��v11 ` 1��:��1�1�� _e" ll 88��88��;$��$�i��/Ilr�� ►111111111►� �r'� �C'.� J��86��8�,��8��8�i��111'�'��Il�lllllllii ��i� IIIIIIi�8��88�� ,8B3��E88��i�111 ► --__l1111�1..��.,� uu � � i' :■ IIIIIIIIIIiaiiii�i,iwli6itiil1l��lt��l��.�n��:.s-��,�, ��n��i� ��e�t��■�_�r.�llll ...-;, � •� /��",,,1„S■I ,,,1,,.,�� ■��1, . Le��ii,�'4 ��11��'I ��;� �f/r1��=�� `` '' ►.. . ,��uei��,��o��i�_��i�H��i��1� E � p �■ : �1 �� 1 r��M��1�1111111111�1f�'r .�a� IIt :� � � l�II � /I�I ��111111112H��111 � ♦h�� .�_ �i .� 0i1111�� ..� � �i�� /� �.� ..�e� ►� �� i � ■ii�iaxua �axs 1�I��IIIII�C ��..sl' � �. ■■��111��83,Y�'�'�a��■ 1111�11111111�11�1 / �- -Si� �1 F��8'�'�RSt��.:::: '�I'�� ==�i=�as�€: ��;n� �� . � .009oi r n)v��1w ' � � """"�� I�� , ,'. � ��:'do�x�n�wF�lir'�Alllllll 1111 � 1►11 ��Il��tld�;w�' �xi�illl��1� 111€'11191 1111 � '7 !1►� u�._ ■ � �Qx.a�■.■ r I/i.; zQSr;, �� . i II �,,, �� x$�t�l��'��/1i� � 1 - ��'� ��s 1 �a��';� ox.��■�■ R�Ilt�ll'�;'�I� =�f�YJ��:�� 1111� � �� .a�scawi��'�� ■■ ♦♦ ,�,.�. ,a.��ss�cisiii 111111111111 �:II�I�ir�C1��11�� =i►' •+�I%/`"��o��i��r�� —� `.�� s�•, f�/e,r��, ■�e��;��n�s ��e�� . .�i .••t 1. ��..t�1111 . ��► 1� ��,,..��.,r,;�l��!!..•.�n,�+_ ,.,,.. . �--�-�^�� ,�•�"�� v��/�I �. � "_,.�- --� �■ /�� ►�� '�=sc�j�.:f�� '"` ��, � =—' /'� ///! �:��-, ' ri ' -14- ' In order to try to determine where areas of need do exist, an ' analysis of various socio-economic chara�teristics �hought to be indicators ' of multi-faceted social problems was undertaken. Fjfteen categories of information were rank ordered by census tract. Finally, each census ' tract was ranked from high to l�w with the top rank going to the census tract that showed the most potential for multi-faceted social problems. , The following indicators were used: (1 ) median rent; (2) median � house value; (3) percent non-white; (4) percent u�nemployed; (5) median school years completed; (6) percent of households with income below ' poverty level ; (7) percent of persons age 0-17; (8) percent of persons age 65 �and over; (9) number of AFDC cases; (10) number of inedical ' assistanc� cases; (11 ) number of welfare families; (12) number of one parent families with children 18 years of age and under; (13) total ' barometer Grime incidents; (14) percent of illegi'timate births; and ' (15) mortality rate for respiratnry �iseases. Table 1 indicates the relative ranking of eac;h �ensus tract. ' Map 3 indicates those census tracts that rank in the top one-third of all census tracts in probable degree of multi-�Faceted social , problems. Also sh�wn are the location of the existing multi-service , centers. As can be expected, the "priQrity" areas are generally concentrated in the central core of the city. Although there are multi-service ' centers serving many of the ident3fied areas, there are several census tracts that are not within easy reach of existing multi-service centers. ' Three general categories of facijity need have been identified , in this planning prac�ss. The first category in�lueles the replacement of existing mu7ti-service c�enter f�cilities that are physicall,y deficient. ' Three existing buildings fall in this category: (1� Capitol Comnunity Center; (2) Dayton's Bluff Mu1ti-Servi�e Center; and (3) West Seventh ' �:-.__ ----.__._. .__.__..__ _.__._--... _..... ._ . . . . I� � . ... . ._. _ � ��/� ' , ' ' ^ o 0 0 � � l3iVM ' v �1��iUMM ' n �n�nx�• � -• an� W� � � Q .�.1 o •.�•. 4 � ' •�•• � 4�s1 �`I•n ♦ � _ � • 1 � e `� ,. N,... N 3 , •°., :; �• t,�i.� • �•:1 a� ••�•"�•'��:••••,�J�•�� :.�.. :��;: M ��••:::: �:K�: � . :(�1�: •�� .�':•• • .'.�:. t .. •:•�•:•::.:.'•� :t::•: �,., . �:�:� •:: �,s �N::'' rV., � � •:?:•"•: S •''ey'�•' • ::.,rrv:: ':{• Q � r ::ri:::..• w N •.tir::::. }:�i•:ti��:• , .�.' •.1+.•:.�:•• ►!1 . ' � :..':.ti:• •�•.{•:'� ��•� �'� �.�.�•:l ••'J►�. .'�. '.'1..•.�.:: •.Y►'. ��•::.•:.•.:.•:. � �"� ��•w•:•:•::• � q�•::::.. J �� •::. ... m i::•:v:: •o = . M F�} M �, } � ' � • .r, ''� � Z � � ':.�:: :::�'`' :' ''�.:''':�:':':. ;: °� � . m :i�:.� �'• :�a;: O N � f7 e7 M •.• .�• ;, •�••� i• ~, . ' '. : :?�� a W ��y M . ��• �lli � . M T •• � ' o . .I • �i�� N _ fh f�f � p N : �� p M N Jf ��. U � ` �• '� � � . r�l ' �• � � O . N� :./.. � . � .��..•i PNf � ' . ' M � �• •• 4� M ; . � (+1 Q ^� N y� � N �w . � S � .� .� ' . Ys�• ♦�I . M � c; � � O M � � j OI n a °a.—�a � � � ' � N m (7 � � � � � ' � . � . . ' � . . t . . . . . . . . . ' . . � .. .. . . I . . . . • . -ib- ' � TABLE #1 � ' POTENTIAL FOR MULTI-FACETED SOCIAL PROBLEMS RANK CENSUS TRACT ' 1 29 2 5 ' � 40 4 36 5 55 ' 6 61 7 35 8 17 9 54 , 10 39 11 26 12 37 ' 13 38 14 14 15 15 t 16 60 17 59 18 34 ' 19 27 20 30 21 42 22 71 ' 23 ]0 24 31 25 72 � 26 � 25 27 44 28 69 ' 29 45 30 13 31 28 32 , 46 ' 33 53 34 16 35 8 ' 36 58 37 12 38 9 39 24 ' 40 2 41 32 42 67 ' 43 21 44 23 45 68 � 46 11 47 6 48 47 , 49 4 ' 50 ---- 7.Ol 51 19 52 70 ' � -17- : ' RANK CENSUS TRACT 53 22 ' 54 20 55 56 ' 56 76.02 57 52 58 18.01 59 33 ' 60 7.02 61 � 62 18.02 � 63 50 64 - 74 65 8 � 66 76.01 67 64 68 65 69 66 ' 70 57 71 63 72 51 ' 73 49 74 62 75 � " 75 ' 76 48 � _ ' ' ' , , � ' ' , -18- , ' Corr�nunit Center. The �econd category incl,udes the construction Street y ' af new facilities or the development of outreach programs in those areas identified as having a high degree of multi-faceted social problems, ' but not having an existing multi-service center iq close proximity. Three areas fall within this category: (1 ) Payne,' Avenue (census tract 310) ; , (2) Upper West Side (census tracts 371 and 372); and (3) Western ' Sumnit-University (census tracts 335, 338, and 354). The last category includes existing multi-service centers that require minor building ' addition� to meet specific program needs. All of the existing centers fall into this category in varying degrees. ' Top priority should be given to the following two recommendations. ' The first recorrrenendation is that existing d�ficient facilities be replaced. These facilities already have established ongoing programs ' in the neighborhoods they serve. However, they are unable to operate a ' totally effective program of service because of �the lack of adequate space and facilities. � ' The second recorr�nendation is that new faci�lities be constructed or be developed in those areas identified as havinq a high degree of multi- ' faceted social problems but not having an existinq multi-service center ' in close proximity. An alternative to constructing a new multi-service center should be to establish outreach programs from the already existing ' centers located on the periphe�y of the need area. This would greatly reduce both capital and operating costs, ' t ' -19- ' 1 Second priority is given to minor building additions needed to meet ' specific program needs. Few multi-service centers have special build�ng � funds; however, the United Way, Ramsey Action Programs, and other ' agencies may provide centers with funds for building additions upon ' request. . ' ' . . ' ' ' ' , ' . � ' _ . - ' _ ' , : ' 1 ' � ' NlULTI-SERVICE CENTER MODELS ' ' Two schematic drawings showing possible configurations for ' multi-service centers have been developed. The first drawing r�as deve1oped for new construction. The second draw�ng was developed , for the conversion of an existing building into a mult�-service center. � New Building ' The new construction desi n offers the reatest ossible 9 9 p � flexibility both in design and location since it is not tied to existing structures. ' Two factors become apparent in the schema'tic of a new ' multi-service center. One, the kitchen and th� centralized interior court area are designed to become the focal point for � people gathering. This area can act as a drop�in po�nt for a - , quick lunch or coffee for those using the facility as weli as people passing by. This area has three additional values. ' It can become a lounge for tnose waiting to use a particular service. It can be used as a community meeting room. It can , be used as a theatNe if necessary. Two, the spacial relationships � � ' -20- � -21- ' ' , , , between elements are very important in this design. Each space has � easy access to other complementary spaces. The compatibility of the elements allows for flexibility in programning. , , The information, administration, and office components are situated imnediately adjacent to the street for easy access. Similarly, the ' health component is also located for ease of access. The library is intended to be more of a "catalog center" than a traditional library. � Listings of books available at the main or branch libraries would � be kept at the "catalog center." People would order books at the "catalog center" and in a day or two they would be delivered from the , main or branch �ibrary. Thus, many of the services available at a traditional library would be provided by the "catalog center" without ' requiring a large space for storing books and ather material . , The education, gymnasium and day care components should all be directly reiated to each other. The education. section would consist � of very flexible space capable of being subdivided into a variety of size "classrooms" and storage spaces. The day care section would � house child care programs. The gym and recreation facility is an , extremely important part of the multi-service center. Not only does it provide indoor space for recreation programs for all ages of people, ! but through programming variations the gym 'can double as a recreation area for the day care component or can provide additional space for � the extension of educational programs. The outdoor recreation space � is also multi-functional . Particularly important is the relationship between the day care component and the tot lot area. , , -22- � :�i::�' :.•. :;;'•: :��: :;,; :d•: �:��: .:: �!±� :�7�: :��fi�: :j:� :��: •:�Fl:• �• ::N!�}�:;}�;.;�.��:��.�.{{:..::�}:;'.}.:;.,:;.::}'};.};.�{.....;};:.�•......�...{}:.:::.....:..:.::}..:�'....}.: }�; },,��,{ :a•: .�: :,�.: :.�}•,�.•.�..•�••.�.��.�'�.�..�...'�'.'....'::�....}'..�.�::.:�'�:.�:::�..:�::.�.�'..::�..',:�...�..'.....'�..'.•r�..••:•.. �:ti+:�:}. }�•: .'. �:�:: :•l•: �:��' ''�.•'�`�''.•'''..�.• '��.'.• ;:�': :;� .':. W ::,:: ::;::�:: � ::�::::: � ::�:: � � ..%ri:; � . � I •I• U �T � •......• � ''�.�.�''�:;�::::;:; � d : :.�:: � V :•:: � � �'' y� �- z � ' � � � �:�:�::��::�:�:�:�: fi�♦ KITCF}f-N ta. •:�'•' � � ... ..... .. . .... . .. � ....... W Z �''':::• � ::�::•�::�::•�'•'•' ��:'��.::��. ...... �,�,...... . ::�F:.�.'.'��''.��.��I Z ;.:V.�.. v .. �;��::��::�:::�:::�:� Q ................:�'°1'''::�:::::::::::::' �.LI � � � ...... ';" _ � ✓� � . � � :. ;�f , � s ; g , � ��'..... a ... � ' c.� •:. � .. .::.:: ' _2 3- ' The theatre location also s�resses flexibility. The stage can ' open up either into the gymnasium or the interiqr court area, thus allawing for a change in atmosphere for the sea�ing area depending ' on whether a formal la is bein sta ed or anlinformal nei hborhood P Y 9 9 � 9 ' meeting is being held. . An important part of a multi-service center is the transportation ' component. In order to function effectively a multi-service center ' must have the capability of transporting small groups of people to and from specific programs. A garage area capable of housing the tentire transportation component is shown i� the schematic. ' Converted Buildings • • There are a number of different existing b�ildings that can be ' converted into multi-service centers. Examplesjof these buildings are store fronts, industrial buildings, co►r�nerc�al buildings, vacant ' houses and vacant schools. , There are two advantages of using existing structures. One, the initial capital outlay costs are lower than new construction. ' Two, disruption of the neighborhood would be minimal since demolition of structures would not be nec�ssary. ' There are, however, a number of disadvantages in converting existing ' structures. It may be extremely difficult to obtain ali of the needed space at one location. The flexibility of the internal space is severely , limited because of existing structural conditior�s. The long range flexibility for expansion can be hampered. ' The design for existing structures is an indication that �t is ' possible to design a multi-s�rvice center using an existing physical plant. The design does int�grate functional relationships, however, ' i -24- ' Cn ,� � CJ � � 0 � � �' � Z �' o � � 0 _ a Q � � � � � � � Z N Q � � � � � � � � m p x w� � � � � � ? � Q _ � � o � � W h � � � � � � 0 ; £a F U '.) ',`) a � � `��°� �� ` � ` � �., ; �� y � W W ��5'�K` � d �"3 �'yE � . � 4 - A $'- ) `¢��: � O b $Ls'b ^'xax''� 4�l�. �`s� � k. Z � ��5�:�� V�i� �� k�` � � ��Yd4 � s? ��,r ��+� 1�q �. ��, � � '. F ^ ,� r � �t�� E� � o� � � � � � � J ' 1 �� x� ��`��.. '� 4 d - � V � �f'€ $ � ��$ r � : .. O 3 � � � a � 3� �; � � 4 �.. � � � � �S'� � ,�,.'�T,"Y��^ �,�Y{ ''�^� . � � V� �ac, � � � �A 3 e� � # �� " . �f 0 } y � 3 a�;z ¢ , . � � � � �� .� � W � � � � �,;�� ;.: oC W �" �,�: F- �� i , � ; ��- � >: ('`r Q � . � R �L�� I.Y <s` W � � � � Q � � � � W � — Z � � � O � � � V A 2 ct � � 0 °C � oc ' -25- t the integration is not as thoro�agh as it sF�ould be. Special care , will have to be taken to insure that the bu�lding v�ould be accessible ' to the handicapped. ' - The schematic model shows one possible way of Ideveloping a multi ' service center using existing building�. The high 'volum� activities, those requiring the most space,are located in converted comnercial 1 buildings. The more resident�ally oriented activities take place in a converted two-story house. The back yard of the house becomes ' a tot lot for the day care center. The garage houses the transportation ' component of the center. . ' ' ' ' ' _ ' ' � ' , I 1 � 1 RECOMMENDATIONS , t REC ONIMENDAT IONS 1 It should be noted that multi-service centers are but one component of the ' entire human seYVice delivery system. Multi-service centers have been identified as an excellent method of delivering a wi,de range of services in ' areas where people have a high level of multi-facet�d social problems. However, tmulti-service centers are not necessarily the best �ethod for delivering human services in other areas of the city. , POLICY RECOMMEENDATIONS ' The City of Saint Paul shall become involved in the planning, coordinating, and constructing of multi-service center buildings. � ' Multi-service centers shall be provided only in areas with a high level of � multi-faceted social needs. ' The City of Saint Paul shall only fund programs wit�hin multi-service centers that are recognized city functions. ' .Toint planning and joint funding of multi-service centers by the city, ' Independent School District ��625, the United Way ac�d other agencies, shall be promoted wherever possible. ' ' PROCESS GUIDELINES ' - The funding of multi-service centers should be considered ' only if a neighborhood, or com4nunity, identifies a multi- service center as a high neighborhood priority. ' - Priority for the development of multi-serv'ice centers should be based on an analysis of the fifteen ind'icators of multi- ' faceted social problems identified in this report. ' ' ' t - No construction funds should be allocated by ;�the city until ' (1) a site has been agreed upon, (2) a determination of specific ' program needs has been completed, and (3) uatil written contracts or agreements have been finaZized specifically outlining respon- ' sibilities for maintena.nce, utilities, admi�ijstration, and individual programs. ' - The Department of Comnunity Services should take the lead xole � on the city's behalf in coordinating the serv!ices to be offered and in obtaining the necessary workiag agreements and coatracts ' . so that a ccm�plete range of programs will be available. Community ' Development Block Grant funds should be usedlto fund a staff person to act in this position. ' - Individual multi-service center programs should be evaluated on ' an annual basis to detemnine if they are accdmplishing the desired objectives of the coum�unity. Evaluation criteria should be developed ' as part of the contractual agreement agreements for each program. , - The City of Saint Paul should not be the day�to-day administrator ' of a multi-service center. The city should develop an agreement with other agencies, or groups, for the cent�r's administration. tDESIGN GUIDELINES � - The facility should be free of architectural barriers to the handicapped. ' - The facilit should be designed for maximum flexibility of Y � internal space. ' , � � � � - The facility should be designed to insur� confidentiality. � - The facility should have an adequate numtber of off-street , parking spaces. ; i � ' - The facility should be designed not just� to.meet present needs, � � � ; but to meet estimated needs for the next, ten years. � - Special care wi11 have to be taken in thle facility design to ' insure that a feeling of security existsi, both interaally and :# � � externally. , - The facility should be energy efficient.i ' LOCATIONAL GUIDELINES ' ' - Location should be central to the population being served. - Location should be highly visible and cllose to areas that attract people on a daily basis, i.e., shopping areas, play- grounds, and schools. - . � 1 n or within 1/4 m'le of public transit � - Location should be o , , � routes. - Location should be within walking distance (approx�mately 1/4 mile) of the primary service ares for the center. - Location shuuld be adjacent to existing schools, recreation � centers, health clinics, libraries, or other such public facilities wherever possible so that these services can be readily integrated into the multi-servi�e ceater program. / . , ' - Existing public buildings and facilities should be utilized to the greatest degree possible in the develo�ment of a multi- , service center in order to minimize new constxuction costs aad maximize the use of previous public expenditures. ' , • ' � � � � ' ' ' , � � ' ' � ' , � _ --_ _ _ _. ' ' CREDITS I' ' � Administration and PoliGy Direction: Donald Spaid, Planning Coordinator ' Mary Ann Murphy, Principal Planner , Research and Planning: James Bellus, Senior Planner, Planner-in-Char�e � William Magnuson, Planner II � Graphics: � Gregory Walek , . � Louise Langberg ' Special credit is given to the Human Resources Planning Council of the St. Paul Area for allowing the use of copyrighted material from their � Inforniation Director . Many of the descriptions o�existing uman service agencies contained in the appendix of this report are taken directly � from the Information Directory. A special credit is also given to the Enablers Inc. � for allowing the use of material from their publication, The Catalog: Metropolitan Youth Resources. ' The members of the Multi-Service Cen�er Advisory Group, composed of the directors of all of �he existing multi-service centers, representativ s from the ' United Way and the Health and Welfar� Planning Council , and a representative from the Department of Comnunity Services, deserve a great deal of th�nks for all the help they provided in formulating this report. ' � Preparation of this report was finar,ced in part through a comprehens�v�e planning grant fram the Department of Nousing ' and Urban Deve�lopment. �