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McKINNEY ACT PROGRAMS IN NONMETRO AREAS: HOW FAR DO THEY REACH? © Housing Assistance Council, 1995 Permission is granted ONLY to nonprofit community-based organizations to reproduce and/or adapt this document, and only for their own use. II. BLACK RIVER AREA DEVELOPMENT CORPORATION A. The Community and Its Homeless Assistance Needs The Black River Area Development Corporation (BRAD), a community action agency established in 1965, serves a three-county area in northeastern Arkansas. According to 1990 census data, Randolph County (pop. 17,000), where BRAD offices are located, has a per capita income of $10,291 and an unemployment rate of 12.5 percent. BRAD's service area, one of the most impoverished regions in the nation's fifth poorest state, has been deeply affected by a declining economy over the past decade. A subtle but steady rise in unemployment figures has resulted in an increasing number of people who have exhausted all personal and family resources living in cars and other substandard situations. Annual needs assessments conducted by BRAD revealed a steadily growing area need for temporary shelter and stabilization services, particularly for single-parent families with children. While the community is generally able to meet the homeless and at-risk populations' basic needs of food, clothing, and shelter, there are severe service gaps in the areas of medical care and counseling services for special needs populations. Rehousing BRAD shelter residents is rarely problematic as Pocahontas boasts an impressive supply of quality public housing, and priority applicants can often be placed in an available unit in one to three weeks. Still, of the 60 percent of their clients that BRAD helps place in permanent housing, only 30 percent remain stable in their new situation. The relatively large number of clients who do not move on to public housing chose either to move from the area or to return to their prior, often potentially abusive, family situations. Obtaining adequate physical health care is a major problem for low-income people in BRAD's service area. The public health department offers inoculations and the Special Supplemental Food Program for Women, Infants and Children (WIC) but has no full-time staff doctor, and people must rely on the limited services a public health nurse is able to provide. Since private doctors and hospitals are reluctant to accept Medicaid, the Salvation Army and the Red Cross have emergency funds available for a one-time doctor's visit and prescription. The nearest mental health and counseling center is located 40 miles from Pocahontas, with a satellite office offering limited services in a town roughly 15 miles away. Due to inadequate transportation and poor client follow- through on referrals, few people from BRAD's service area actually access much-needed counseling services. Perhaps the most critical lack in social service delivery is in the area of domestic violence intervention and counseling. The nearest domestic violence shelter is located over 75 miles from Pocahontas and specialized counseling is not readily available in the area. The Department of Human Services has a case manager who will make home visits in cases of suspected abuse, although families in crisis are unlikely to willingly access this resource. B. The Shelter and Programs Sharing an old hospital building with BRAD's administrative offices, BRAD's five-bedroom emergency shelter opened in March 1988. The shelter provides temporary shelter and basic social support to homeless families and is one of many programs administered by BRAD. Although the shelter program itself is modest in terms of staff and funding, residents benefit significantly from other BRAD services such as food provision, substance abuse counseling, Head Start, and energy and rehousing assistance. BRAD's emergency shelter is able to meet to the needs of homeless families, while singles are accommodated at another emergency facility in a neighboring county. The Salvation Army also has limited funds to provide overnight motel shelter, food vouchers, and gasoline to transients in need of assistance. BRAD works closely with the Salvation Army to insure efficient coordination of potentially overlapping food, clothing, and furniture resources. BRAD also has limited energy assistance and rehousing and prevention funds available through the Low Income Home Energy Assistance Program (LIHEAP) and CSBG program, respectively. FEMA funds for rent arrears are occasionally available through BRAD as well. Local utility companies are flexible about hook-up and deposit charges. If BRAD pays half of the initial fee, the utility will allow new clients with a good credit history to pay the balance over the course of three months. In addition to networking closely with the Salvation Army and the Department of Human Services, BRAD is also a member of a local interagency council made up of service providers, ministers, the mayor of Pocahontas, and representatives from the police department. A mix of private individuals, including many retired people, who are concerned with community programs also attend council meetings. The council, which deals with homelessness and other issues effecting the community, meets once per month to network and share ideas. BRAD networks at the state level through the state interagency council, founded in 1991 and chaired by the state's homeless coordinator with whom BRAD worked to establish the shelter in 1988. Nonmetro and rural areas in Arkansas have been somewhat advantaged in the state distribution of ESG funds, as CAP agencies automatically receive priority points in distribution formulas. BRAD's emergency shelter has benefitted both from its status as a CAP agency and from the state's commitment to continuing to fund existing shelters through the ESG program. 1. Shelter Development When BRAD began thinking about a shelter facility, the back rooms at its main office, which had been used as storage space for food and clothing banks, were an obvious choice. Because of the building's former use as a hospital, the plumbing was especially well-suited to the installation of bathing facilities and the rooms were easily converted to sleeping spaces. BRAD began working with the Homeless Coordinator at the Arkansas Office of Community Services (OCS) to identify what funds might be available to rehab the existing space into Arkansas' first family emergency shelter. Technical assistance from the Homeless Coordinator in dealing with federal regulations and funding sources was instrumental in the project's development. Rehab costs were met through a combination of $14,000 in SAFAH money and $7,000 in ESG money, distributed by the state OCS. First year staffing costs came from CSBG EHP funds. The program got underway without any community opposition, as local government and community leaders were pleased to have BRAD take the initiative in meeting the area's emergency shelter needs. The facility now consists of five bedrooms, a storage room, and common living and kitchen areas. Two bedrooms have adjoining bathrooms, while residents in the other rooms use two common bathroom and shower facilities, which are also open to the general public. 2. Staffing and Services The shelter is staffed by two employees, a shelter site director and the CSBG Program Director, who manages the shelter and several other BRAD programs. There is no designated night staff, although the shelter employees and the local police are on call to deal with problems after working hours and on weekends. The shelter site director serves as case manager, working with clients on a case by case basis to determine their needs and to assist them in their quest for an independent living situation. Initially, the case manager helps to insure that clients are receiving all public assistance for which they are eligible, helping them with applications for Aid to Families with Dependent Children (AFDC), Supplemental Security Income (SSI), and food stamps. The BRAD Public Transit Program provides transportation for clients to the Department of Human Services and other necessary appointments. Clients pay no fees while staying at the shelter and are encouraged to save for rehousing. BRAD also employs a substance abuse counselor who is available to work with shelter residents. Clients and staff discuss education and employment goals, and the case manager makes referrals to the community college and a local vocational training school. Volunteers from a local literacy council come on-site to provide tutoring in basic skills and GED preparation. While BRAD staff can help residents find employment in the community, the lack of affordable daycare generally makes even part-time employment prohibitive for single-parent, low-income families. The director stresses the importance of encouragement, affirmation, and personal counseling in helping people develop the strength and self-esteem they need to successfully re-enter the community. BRAD has a staff person who can help shelter residents with applications for Section 8 housing, although units are generally more readily accessible through the area's assisted housing developments. While in some respects the availability of low-income housing appears to compensate for the lack of certain needed social services, it actually contributes to a high rate of recidivism. BRAD's shelter director believes many families could benefit from more time spent in the shelter, achieving stabilization and working to develop the life skills they will need to maintain permanent housing. While there is no formal follow-up program, shelter staff will make phone calls or home visits if they feel that a family is still at-risk in their new housing situation. Volunteers contribute to the shelter program in a variety of ways. People from the community come in to help shelter residents with cleaning and laundry, to set up rooms for new clients, and to assist with clerical work in the office. The shelter also receives frequent private donations of food, clothing, household items, and furniture, as well as small cash donations. To avoid service duplication, BRAD no longer maintains a clothing or furniture bank, sending donations that cannot be used immediately to the Salvation Army, which supplies shelter residents with items on an as- needed basis. A local radio station will also donate air time to make requests for specific items that neither BRAD nor the Salvation Army has on hand. Occasionally the shelter receives donations from local branches of major discount and grocery chains, and the Boy Scouts support the shelter with annual food and blanket drives. BRAD also seeks to involve the community through sponsoring several annual fund-raising activities. While the Haunted House, Christmas dance, bake sale, and car wash do not generate a large amount of revenue, the events promote good public relations and help to insure ongoing community support. 3. Operational Funding The majority of the emergency shelter's current operating budget comes from McKinney money distributed through the state OCS. $11,000 in ESG money and $9,000 in EHP funds are augmented by local FEMA money and small donations from individuals and churches. Although the figures are not broken down and included in the shelter's budget, residents benefit from other BRAD programs, such as transportation, commodity foods, and LIHEAP. C. The Clients In an average month BRAD shelters 12-27 people, who may stay from two weeks to 90 days, depending on the amount of time needed for stabilization and rehousing. The average length of stay is 30 days. Last year the program provided shelter for 198 unduplicated individuals, the vast majority of whom were white, single mothers with children. Statistics are based on reports filed monthly, quarterly, and annually with the state OCS. Clients are referred to the shelter through the Department of Human Services, the Police Department, and by word of mouth. Potential clients fill out an application and participate in an interview and a review of shelter rules. BRAD checks with the police department for criminal records and tries to identify people with serious substance abuse problems, whom they refer to a residential treatment program located 60 miles from Pocahontas. The local police will often assist people with transportation to another shelter. BRAD's shelter director reports that 75 percent of the single-parent families they serve are coming out of an abusive family situation. Domestic violence is also a major factor contributing to homelessness in the area. BRAD staff estimates that there are 10 homeless families in their three- county service area in a given week and that approximately 90 percent of shelter residents are members of Caucasian, woman-headed households. Although its stated mission is to serve families, BRAD will provide one night of shelter to singles and/or transients in emergency situations. While it has been difficult, without adequate support services, to guarantee the successful stabilization of multiple-need families, the BRAD emergency shelter has assisted many people in the past four years in the transition from homelessness to self-sufficiency. III. FAMILY CRISIS CENTER A. The Community and Its Homeless Assistance Needs The Family Crisis Center (FCC) in Herrin and transitional apartments in neighboring West Frankfort are located in an area of Southern Illinois roughly two hours from St. Louis that has seen a steady increase in both unemployment figures and in the number of people living below the poverty level over the past decade. Herrin is located in Williamson County (pop. 57,000) and West Frankfort in Franklin County (pop. 40,300). According to 1990 census data the figures for families living below poverty in Williamson and Franklin Counties are 15.4 percent and 20.4 percent, respectively. Once home to a booming coal mining industry, the area has been devastated by the closings of many mines due to economic factors caused by environmental regulations restricting the use of the high-sulphur coal mined in this region. The decline of the coal industry has created a domino effect, resulting in plant closings and lay-offs in various support industries as well. Today, the area's major employers are small manufacturers, hospitals and utilities, and several federal prisons. Interestingly, the existence of these prisons creates an additional burden on the area's social service and public aid resources, as many low-income people move into the area to be near incarcerated family members. When FCC opened in 1985 there was little assistance available to homeless and at-risk individuals and families in Franklin and Williamson Counties. People in crisis were able to obtain up to three nights of motel shelter and food through the Ministerial Alliance, a coalition of local churches. Others lived in cars at nearby state parks or found shelter at all-night truck stops in the area. Then, as now, it was difficult to count the number of homeless people beyond those who came to the shelter. FCC's director stresses that many people, particularly those who have always been self- sufficient, are hesitant to request shelter and public assistance. For this reason homeless people were largely invisible. Community and local government officials were slow to acknowledge the growing homeless problem. Since the shelter opened, FCC's director has been gathering statistics on the population she serves, producing yearly reports that document a steady increase in the number of homeless people and a growing proportion of homeless children and adolescents. Over the course of the past few years new services have been established and existing services better integrated to meet the needs of homeless and at-risk people in the community. The Family Crisis Center has moved its emergency shelter to a new building capable of housing 13-23 people, depending on family size, and established its transitional housing program. Franklin-Williamson Human Services, a private nonprofit to which FCC refers many clients, offers a wide range of services on a sliding-scale fee basis. Domestic violence counseling as well as residential and outpatient substance abuse treatment are available. The agency also provides emergency intervention, employment and life skills training, and residential living and rehabilitation services for mentally ill and developmentally disabled adults. The agency's Youth Services Bureau offers programs for at-risk children and teens, independent living services for adolescents preparing for the transition into adulthood, and intensive in-home support for the preservation of families at risk of having a child removed due to neglect, abuse, or conflict. Family First, a private agency contracted by DCFS, also works to help families at risk of being separated to remain intact through intensive in-home counseling and support. Medical and dental care is also relatively accessible through various sources. A private nonprofit rural health clinic provides basic health services one night each week on a sliding scale fee basis. People receiving public aid can obtain a medical card that entitles them to receive services at emergency rooms and a local family practice clinic. The Bi-County Health Department provides immunizations and pregnancy and AIDS testing and counseling, and will come into the emergency shelter periodically to make new residents aware of the services they offer. Other agencies provide specialized care for adolescents and pregnant women. Local providers network informally to insure that limited resources are coordinated to meet peoples' food and clothing needs, while avoiding service duplication. Emergency food is available through FCC's emergency shelter, the Herrin food pantry, and soup kitchens run by the Ministerial Alliance. Food, clothing, and furniture can be obtained on an as-needed basis through FCC, the Salvation Army, and the Ministerial Alliance. An impressive range of educational services are available for homeless and at-risk adults and children in Franklin and Williamson Counties. Eligible families have access to both Head Start and WIC programs, and children at FCC's emergency shelter have a tutor on-site five days per week. The tutor, provided through the Illinois Department of Education, conducts educational assessments, helps children with problem areas, and meets with their classroom teachers on a regular basis. This grant also provides funds for clothing, medicine, counseling, and school supplies. This year the emergency shelter will add an early childhood education component, employing a full-time on-site teacher, funded by the State Department of Education. Adults can register for GED preparation, life skills training, and other adult education courses at local community colleges, and obtain free assistance with reading, writing, and math through a volunteer tutoring group. Direct financial assistance for homeless prevention or rehousing is available in small amounts from different sources, based on availability. Eligible families are entitled to up to $100 of FEMA money for rent arrears through the local General Assistance Office. Franklin/Williamson Human Services occasionally has funds available for rent and/or security deposits. Another private nonprofit provides funds for energy assistance, weatherization, and utility hook-up. Additional emergency monies are often made available through Catholic Social Services or through the Ministerial Alliance. Legal Services provides free legal aid in cases of eviction, as well as assisting victims of domestic violence in obtaining orders of protection. As in most nonmetro areas, transportation is a major problem. Limited public transportation is available in Williamson County, but none in Franklin. Fortunately, FCC has a van available to transport clients to appointments and meetings, insuring that they can access needed medical and social services. In addition to poor public transportation, FCC's director cites the lack of sexual abuse counseling and adequate prevention services as the major service gaps in the Franklin/Williamson area. B. The Shelter and Programs 1. Shelter Development In 1984, when the founder and director of today's FCC saw a mother lose her five children into the custody of the Department of Children and Family Services (DCFS) because her husband was put in jail, the idea for the Crisis Center was born. While running a daycare service, FCC's director saw families separating and losing housing due to such factors as unemployment and domestic violence, compounded by a lack of affordable housing stock. She, along with other members of a local women's group to which she belonged, began working to establish a family shelter designed to serve primarily victims of domestic violence. By 1985 she was operating a shelter out of a donated building, relying on volunteer contributions of money, time, and materials for rehabilitation and operations. Since that time the Family Crisis Center has grown to include an eight-room emergency facility in Herrin and eight transitional apartments in neighboring West Frankfort. The FCC was established in 1985 with little money, but a good deal of community support. As their original idea was to establish a domestic violence shelter, the women's group began by contacting the State Attorney's office to discuss legal recourse for victims of domestic violence and sexual abuse and to encourage tougher prosecution of offenders. Although a large percentage of FCC's clients have always been victims of domestic violence, the project's mission was expanded to provide shelter to a broader spectrum of homeless individuals and families. Next, the group began contacting key community people to garner support for the project and called in a community development specialist from Southern Illinois University to help with organization and development. An executive committee was formed that included the State Department of Public Aid's Regional Director and the head of the Ministerial Alliance, as well as representatives from Catholic Social Services, a prison family support group, and other social service agencies. The group began grassroots publicity and fund raising campaigns through local media and church groups. The original four-bedroom building was donated and the project developed with only minimal community opposition, due in large part to the influence of a well-connected and powerful executive committee. While the original building provided the crisis center with a much needed physical site, it was located relatively far from other vital services. In 1988, as construction on a new civic center was about to begin, the Civic Center Board donated the existing building, which was located on the future civic center site. The city assisted by donating a plot of land 10 blocks away. A private foundation moved the intact building to its new site. The building was rehabed to include eight large bedrooms, administrative offices, a classroom, and common kitchen, laundry, and dining facilities. Rehab costs were roughly $104,000, over half of which went toward insuring that the building met local fire regulations. FCC received almost 60 percent of total rehab costs from a local foundation grant. The remainder was met through a combination of local FEMA money and an Emergency Shelter Grant administered by the Illinois Department of Commerce and Community Affairs (DCCA). Renovation time was almost 18 months, as the building was rehabed with minimal professional labor. Volunteers played a significant role through donations of time and materials. Church groups and individuals "adopted" rooms, which they helped furnish and decorate, and the local Junior League donated playground equipment. The new facility opened in March 1989, and can accommodate up to 23 people per night. A few emergency shelter residents, in need of additional support before permanent rehousing, have moved into FCC's transitional apartments in West Frankfort, where they may live for up to two years. The facility, which opened in early 1992, consists of two four-apartment buildings. There are three three-room (two bedrooms and a living area) family units and the manager's unit in one building and four two-bedroom units that are shared by singles in the other. The buildings had been sitting empty for several years before they were purchased by the FCC for $35,000. The buildings were structurally sound, but, because of their age, required extensive rehab in terms of heating and wiring systems. Acquisition costs were met with a $20,000 grant from the state through an income tax check-off and a $17,000 loan from a local bank. The combination of an Emergency Shelter Grant and a Transitional Housing Grant channeled through DCCA provided almost half of the more than $100,000 in rehab costs for the two buildings. Additional funding came from a variety of sources, including Public Aid, the Department of Energy, and a private loan. The Crisis Center also manages seven permanent housing units. These scattered-site houses were donated to the program and rehabed with loans against the buildings, to be repaid with collected rent money. FCC's director has also developed a unique plan to obtain a Section 515 FmHA loan to rehab an existing hotel into SROs, providing additional permanent housing for the homeless. The loan is expected to come through in FY'93. 2. Staffing and Services The emergency shelter program director serves as the case manager, meeting with clients weekly to develop both short- and long-term goals that will help them move toward stabilization and self- sufficiency. The case manager provides clients with information and referrals, requiring that clients independently access all public assistance for which they are eligible. FCC enjoys a good relationship with both the city and county housing authorities, and priority applicants usually wait two to three months for an available unit. Clients are expected to get their children registered in school, explore rehousing options, seek employment, or begin a job training or education program during their stay in the shelter. While there is a community kitchen, clients are expected to obtain and prepare their own food and contribute to the cleaning and maintenance of the building. The case manager links clients with needed mental and physical health services, and insures that an order of protection is obtained when necessary in cases of domestic violence. The program takes a personalized approach with each individual and family, working with clients to build the self- esteem and confidence they need to succeed in an independent living situation. In addition to scheduled weekly meetings, the case manager is available on a full-time basis to talk with clients informally. The only other full-time employee is the director's secretary, a former shelter resident. There is also a part-time night staff person and FCC's director who works with the case manager, but spends the majority of her time at the transitional housing site. An additional counselor from Southern Illinois University comes on-site at both the emergency and transitional facilities one day each week to help clients with applications for educational grants, resume writing, and job interview skills. The transitional component located in West Frankfort is essentially a more intensive extension of the services offered at the emergency shelter. The transitional program allows clients additional time to pursue education and employment goals while continuing to receive the social services they need to insure stabilization and successful re-entry into the community. While no rent is charged to residents at the emergency shelter, transitional housing clients are expected to pay up to one third of their adjusted gross income for rent. Clients are also responsible for utility costs. FCC's director currently serves as resident manager and case manager, working out of an office adjoining one of the apartment buildings. A full-time bookkeeper, a part-time case manager, and a part-time maintenance worker are also employed at this site. 3. Operational Funding The emergency and transitional components of FCC operate on a combined annual budget of $138,000. Primary funding sources include ESG and Transitional Housing grants administered by DCCA, Emergency Food and Shelter money administered by the State Department of Public Aid, local FEMA money, United Way, and private and corporate donations. Generous donations of time and materials from individuals, church, and corporate sponsors allow FCC to thrive on a relatively small budget. Placing a strong emphasis on public relations, FCC's director speaks often with local media and interested groups to garner support for the program. The new emergency shelter was rehabed almost exclusively with volunteer time and donated materials. Supplies such as paper, soap, and cleaning products are all donated by local churches. Clients, who are expected to contribute to the program by working in the garden, cleaning, and answering phones in the office, are often joined in their efforts by volunteers from the community. Social work students from Southern Illinois University provide support with the telephone referral service, transportation, and tutoring. The local parole board also sends people to work in the shelter to fulfill community service obligations. The director has also requested and received significant financial support from foundations, corporations, and local businesses through the years. Magic Chef donated washer and dryer test models to the emergency shelter and sends a representative periodically to assess wear and tear.on the machines. In addition to $60,000 in rehab money for the emergency shelter, the local Harrison Foundation donated the van for client transportation. Local businesses contribute by providing low-cost or donated materials for rehab and maintenance. Utility companies have also been helpful; underground cables have been moved at no cost, and GTE awarded the program a one-time $17,000 grant. FCC's director networks with local providers and government officials through the Franklin and Williamson County Coalitions. While the coalitions are informal, periodic meetings are helpful in terms of coordinating services and sharing information. The crisis center also belongs to both the Illinois and Southern Illinois Coalitions for the Homeless. Because time and distance make travelling to meetings and conferences in Chicago and Springfield prohibitive, FCC's director relies heavily on her contacts at the state level to provide her with information on state and federal funding sources. She has worked with people at the Department of Public Aid, DCCA, DCFS, and the State Department of Energy to obtain funding for the crisis center. The state Department of Public Aid also funds a monthly newsletter published by the Illinois Community Action Association with information on public and private funding sources as well as other issues related to homelessness. FCC's director noted that the scale of federal funding programs makes it difficult for nonmetro providers to access these monies. Lack of staff and expertise necessary to write competitive grants and an inability to raise sufficient matching funds are two major problems encountered by the crisis center. The director believes small programs would benefit from more technical assistance in the areas of grant writing and administration. C. The Clients During 1991 the FCC shelter served 211 families and 154 single individuals. Over 95 percent of those sheltered at FCC are Caucasian. Roughly 40 percent of the adults sheltered were single men, followed closely by women with children and single women. People are referred to the program by the Department of Public Aid, the Ministerial Alliance, DCFS, Franklin/Williamson Human Services, and other public and private agencies. People can stay at the shelter up to 120 days, with the average stay falling into the 30-60 day range. The emergency shelter provides services not only to the shelter residents, but to the general public as well. The shelter's telephone referral service received almost 6,000 calls last year from people needing assistance with food, clothing, housing, health care, and legal problems. Each week the shelter posts updated lists of affordable area housing for both clients and the general public. The shelter also makes emergency food, clothing, furniture, and household supplies available to needy people in the community. While there is no formal follow-up program, FCC's director reports that most clients move on to permanent housing in the area. She is satisfied with the program's demonstrated ability to stabilize families and to help them improve their quality of life through continuing education and employment training. IV. OLD MAIN TRANSITIONAL HOUSING PROJECT A. The Community and Its Homeless Assistance Needs The City of Washington, Iowa (pop. 6,000) is located approximately 60 miles south of Cedar Rapids in Washington County (pop. 19,000), one of six counties serviced by the Hawkeye Area Community Action Program (HACAP). Homelessness first became a significant issue in Washington and in neighboring counties roughly four years ago when a major beef processor began bringing in temporary workers from as far away as Texas and Detroit. Attracted by the prospects of steady employment and housing, workers found themselves living in company-owned substandard trailers, often having the majority of their wages withheld to pay for housing, tools, uniforms, and the like. Many of these migrant workers quit or lost their jobs without the resources either to return home or to obtain alternative housing in the area. At that time the only assistance available was some general relief money obtainable through the county and very short-term motel shelter provided by a coalition of local churches. While the largest segment of the homeless population at that time was single men, there was a small number of families as well. Since that time the problems associated with the beef processing company have abated; still, the severity of the homeless problem in the area has increased steadily over the past few years. The most significant change is one of demographics. Families, particularly those with women heads of household, are the most rapidly growing segment of Washington's homeless population. Divorce, lack of affordable rental housing, and the general downturn in the farm economy are cited as reasons for this trend. As in any nonmetro area, it is difficult to determine the number of persons in the community who are homeless in a given week. The problem is most often one of definition, since many people are precariously housed as opposed to being entirely without shelter. Occasionally a family can access emergency funds through the Department of Human Services to obtain or maintain housing. Others may convince a landlord to allow them to move in without a security deposit, knowing they have at least one month before being evicted. Families survive doubled and tripled up in single family homes or apartments, deciding each month whether to pay the rent or the utility bills. The nearest emergency shelter is located in Iowa City, roughly 25 miles north of Washington. Both residential substance abuse treatment and domestic violence shelter are also available in Iowa City. In Washington County, people in need of emergency shelter may be able to obtain short-term motel vouchers from General Assistance, the Red Cross, or the interfaith coalition of churches. Assistance with first month's rent or rent arrears may be obtained from the Department of Human Services yearly state set-aside, the county's FEMA funding, or the interfaith coalition, contingent upon the availability of funds. For persons homeless or at risk of becoming homeless who do not reside at the shelter, HACAP provides fuel assistance, food, weatherization, elderly programs, and Head Start. Medical care for poor and homeless people is easily accessed through Washington County Public Health and the Community Mental Health Center. Currently, the greatest service gaps in the community are in the areas of transportation and infant and toddler childcare. B. The Shelter and Programs With the inauguration of Old Main, Washington has been increasingly able to meet the needs of homeless people in the community, especially in the areas of shelter and medical care. Since July 1991, 57 households from Washington and neighboring counties have applied to the transitional housing program. People wishing to remain on the waiting list must call each month to insure their active status. As of July 1992, there were six households active on the waiting list. HACAP's housing director predicts that the additional seven units planned for rehab at Old Main will fully address the county's need for shelter. "A help up not a handout" is what HACAP offers participants in its transitional housing program. This long-established and well-funded CAP agency is able to provide extensive on-site services, from Head Start to employment counseling and life-skills training. HACAP also works closely with other local providers to insure that participants have access to any additional services they may require. HACAP's comprehensive, service-intensive approach has proven successful in assisting families in the transition from homelessness to self-sufficiency. Crucial to the program's success has been HACAP's ability to involve community and business leaders as board members and volunteers who lend the program both influence and expertise in various arenas. Consequently, from facility acquisition and rehabilitation through service delivery, the program enjoys a high level of cooperation and support from local government, businesses, banks, and churches. The transitional housing program's demonstrated ability to identify and meet the needs of Washington County's growing homeless population has earned the program visibility and respect within the community, resulting in pledges of ongoing support. 1. Shelter Development The development of Old Main as a transitional housing facility is a story of HACAP's housing director seizing opportunity to meet a growing need. As a result of the many displaced migrant workers requesting General Assistance funds, the County Board of Supervisors was well aware of the growing homeless problem in the county. When HACAP approached the board with the idea of converting a 70-room, 100-year old County Care facility into apartments for homeless people, the board was receptive. The building had been sitting vacant for several years since a new facility was constructed across the street, and the county was under pressure to do something with the abandoned building. The success of HACAP's transitional housing program in Cedar Rapids helped sell the program concept. The support and enthusiasm of this traditionally progressive, service-oriented board, coupled with a good deal of media exposure, mobilized local churches and the community at large behind the project. HACAP's housing director decided, based on past development experience, that she wanted to hire a full-time homeless coordinator a full year before the project was expected to go on-line to explore potential funding sources and to promote community awareness of the project. The county board was supportive and agreed to pay half the coordinator's salary for the first year. The coordinator then began to establish a local Housing Task Force, comprised of realtors, church representatives, bankers, lawyers, media, and other community people involved with housing issues. He hoped to assemble a group of leaders who would bring power, respectability, and credibility to the project. As a result, Old Main's development was able to progress unimpeded by community opposition. Because of the building's age and specific problems with the plumbing and wiring, HACAP knew that rehab would be costly, though still considerably less expensive than new construction. HACAP bought the building and an adjoining lot from the county for $1 and spent an additional $296,620 to rehab the bottom floor into six apartments of varying sizes which would accommodate a total of 22 people. Included in that figure were rehab costs for a conference room/meeting area, office space for HACAP's Washington County satellite office, and Head Start classrooms in an adjoining building. Rehab funding came from several sources, including a HUD Supportive Housing Demonstration Grant, two separate CDBG grants from the Iowa Finance Authority, and the Iowa Department of Economic Development Emergency Shelter Funds, with the remainder provided through Head Start and various local funding sources. The age of the building became a major stumbling block in the project's development when one grant stipulated that the building would have to undergo a historical review. It was determined under the rules of the state historical society that the building was eligible for the historical register, which placed new restrictions on materials and methods that could be used in rehabing the property. Certain original features that might have been eliminated in rehab needed to be restored, causing delays and budget overruns. Local merchants, utilities, church groups and individuals contributed considerably to the physical development of the project. Businesses donated a paint sprayer as well as discontinued tile and wallpaper patterns, the local utility provided a washer and dryer, the Optimists Club created a playground, and church groups "adopted" apartments, which they furnished and decorated. One church brought in over 20 youth volunteers for one week, giving HACAP 600 hours of volunteer match at a cost savings of $8,000-$10,000. In fact, volunteer hours provide the main match for any federal money HACAP receives. The level of volunteerism and community involvement in this project is a prime example of a small program being able to capitalize on the best aspects of their community's "rural character." HACAP's housing staff gives high priority to community relations, having a policy of speaking to interested groups about their programs "anytime, anywhere." When possible, HACAP does business with local merchants who, in turn, show their appreciation in the form of discounts and donations. Before committing financial resources, HACAP always attempts to solicit donations of time or materials. Business and personal connections, access to media coverage, and having fewer bureaucratic channels to navigate are the major factors that enable HACAP to take full advantage of both human and financial resources within the community. The "adopt an apartment" concept, first used at another of HACAP's transitional housing sites, is an innovative and highly effective way of creating unique, attractively furnished units at no cost to the program. Apartments are cleaned, furnished, and fully decorated by the sponsoring group. Friendly competition often arises between the apartment sponsors, resulting in surprisingly well-furnished and coordinated homes for the program's participants. In addition to the obvious benefits to the physical site, this concept is an excellent way to involve the community on a deeper level than simply accepting general donations of money or food. Sponsors take pride in their units and generally remain involved with their upkeep, affording opportunities for sponsors and participant families to interact on a personal level. Although churches were most active in the first phase of Old Main's rehab, trade organizations, businesses, and individuals or families are all potential apartment sponsors. At another transitional housing site, HACAP solicited primarily business sponsorship and generated additional income by charging sponsors an "adoption fee." In 1990 the "adopt-a" program won HACAP's housing division the Governor's Volunteer Award for Outstanding Programs. The Old Main facility went on-line in October 1991, with six apartments and 22 beds. Plans are currently underway to begin the second phase of rehab at Old Main, converting the second floor into seven apartments with 32 additional beds. The county has applied for and received two separate CDBG grants totalling $400,000 to fund the physical rehab and to bring a needed water system to the area. The $279,000 required for the building will come from CDBG homeless funds, with the remainder allotted from general funds. 2. Staffing and Services The transitional housing program at Old Main operates under the same philosophy and guidelines as other HACAP transitional projects. The program is founded on the belief that clients must be empowered to bring themselves to self-sufficiency during the two years they are eligible to participate in the program. In addition to safe and affordable housing, HACAP provides clients with the opportunity to obtain education or vocational training, day care, mental and physical health care, and the life skills training necessary to maintain permanent housing. In return, clients must evince strong motivation to improve their lives and be constantly progressing toward clearly defined goals developed by the clients in conjunction with their case managers. To insure that clients are using time constructively, HACAP requires participants to devote a minimum of 20 hours per week to education, employment, job skills training, or community service. The program utilizes a "service hub" concept, particularly well-suited to nonmetro and rural areas, by which essential services are offered on-site, while less-utilized services are brought in on an occasional basis. Currently, clients have on-site access to case management, a food pantry, Head Start, WIC, and peer support groups. HACAP also employs an Education and Employment Specialist and a Consumer Education Specialist who come to Old Main as part of a rotation that includes all of HACAP's transitional housing sites. Other services that come on-site include a public health nurse, literacy and GED volunteers, and housing authority workers. A mental health nurse is also available in emergency situations. Potential participants learn of Old Main either through word of mouth or through referrals from the Department of Human Services, local churches, or one of the emergency shelters in Iowa City. Interested individuals and families file a pre-application and are prioritized by type and size of family and current shelter situation. When a unit becomes available, a formal application is filed and references are checked. The intake process begins with HACAP's Family Assessment Tool, a formal survey used to identify "family composition/background, educational background, needs of children in the family, employment history, job skills, barriers to employment, child care needs, history and cause of housing need, family health, family relationships/support network, and family resources." HACAP completes the assessment and brings its recommendation before the Supportive Services Team, a coalition of community service professionals, for review. The team, formed in 1990, works of out of HACAP's main office in Iowa City and is comprised of HACAP counselors, as well as professionals in mental health, substance abuse treatment, education, employment, family health, public assistance benefits, foster care/family reunification, and domestic violence. The team considers the household's needs and potential for success, makes a recommendation to accept or deny the application, and offers suggestions for referrals. Upon acceptance, the on-site case manager works with the family to develop a Family Case Plan, including short and long-term goals for reaching self-sufficiency. Clients must sign both housing and counseling contracts indicating their willingness to participate fully in the program. The counselor makes daily contact for the first 30 days of residency, arranging home visits at least once weekly for the remainder of the family's stay. The counselor links participants with needed community services and insures through monthly verifications from other providers that clients with mental health or substance abuse needs are meeting the terms of their treatment plans. Clients are expected to attend on-site workshops geared toward independent living on a variety of topics, including budgeting, parenting, and housekeeping. They must also open and maintain a savings account. Families pay rent (which includes utilities) on a sliding scale, based on 30 percent of adjusted gross income generated from employment or public assistance. Currently, the transitional housing coordinator at Old Main divides his time between program management and case management for the six families in residence. When the additional apartments are completed and occupied, there will be a full-time case manager to handle the 13-family caseload. The program places a strong emphasis on education and employment training. The program's Employment Services Component offers a comprehensive approach, beginning with a thorough assessment of current skills and barriers to employability. The Education and Employment specialist works with clients to establish education and training goals, taking into account child care and transportation needs. Clients are then linked to a variety of education and employment programs. The local community college has a satellite campus in Washington that offers GED classes, literacy skills, and a variety of higher education programs, with credits transferrable to the University of Iowa. Available employment resources include JTPA; the Support, Training, and Retraining Program (S.T.A.R.T.); the University of Iowa's Women in Nonresidential Jobs program; Displaced Homemakers; and vocational rehabilitation programs. HACAP also offers an on-the-job training program that links clients with jobs both in private nonprofits and in the public sector and pays a portion of the client's salary during training. HACAP enjoys good working relationships with both private landlords and the regional housing authority. They also work closely with the resident managers at local subsidized housing sites, although availability is extremely limited and the waiting period can be two to three years. There is a moderate supply of Section 8 vouchers available and finding market rate rental units is never a problem. In many cases Iowa Southern Electric and Gas will waive hook-up fees for low-income people who have no major blemishes on their payment records. 3. Operational Funding HACAP operates its transitional housing program with the support of roughly 20 different funding streams, and budget breakdowns can be problematic, as several counselors serve a variety of sites on a rotating basis. In addition to the rehab costs for the second floor, Old Main anticipates a budget of $135,300 for the 1992 fiscal year. Of that amount, $73,600 will go to general operating costs, $28,050 to support services, and $33,600 to employment and education assistance. CDBG monies channeled through the state will provide 100% of rehab costs, while the operating funds will come from HUD's Transitional Housing Program (67 percent), local government funds (15 percent), United Way (15 percent), and client fees (3 percent). HACAP also receives approximately $15,000 each year from the county to do service work with poor people in the community. Old Main also receives significant in-kind support from churches and other local groups. Past funding sources include $30,000 under ESG, $5,000 from weatherization, and $4,000 through FEMA's Emergency Food and Shelter Program. The Old Main project benefited greatly from HACAP's many years of experience in grant writing and fundraising. In addition, HACAP has received significant outside support and technical assistance in obtaining funding to rehab Old Main. HACAP has enjoyed generous support from the county, which was the grantee of two of Old Main's rehab grants. HACAP has also benefitted indirectly from the support services of the East Iowa Council of Governments, a group that has assisted the county by providing information on funding sources and assistance with grant writing. The success of HACAP's transitional housing program hinges upon its effective networking with providers through the Support Services Team out of Iowa City and through the local Washington County Interagency Council. Of local programs and providers that serve Washington's homeless population, HACAP works most closely with the Department of Human Services, the local community college, and the resident managers at local subsidized housing sites. The family counselor also helps to insure that families are accessing any public assistance programs for which they are eligible, such as AFDC, Medicaid, food stamps, and SSI. HACAP networks extensively with government and advocacy organizations on both the state and federal levels. HACAP's housing director is highly visible in the state and frequently represents HACAP at workshops and conferences, sharing her knowledge and experience in the areas of transitional housing and grantwriting. HACAP is a member of the both the Iowa Coalition for the Homeless and the National Coalition for the Homeless, and has worked with the State and Federal Interagency Councils on the Homeless. HACAP also works closely with the state legislature, the state Office on Homelessness, the Iowa Finance Authority, and the Iowa Department of Economic Development to keep abreast of legislation and potential funding sources. To improve coordination in terms of accessing and administrating funds, HACAP's housing director would like to see more information coordination and technical assistance from both the state and from HUD at the regional level. Existing regulations and definitions, such as those mentioned in the introduction to this publication, are often unclear and difficult to apply in this small community. Additionally, the overlap and/or time lags in funding cycles for various federal programs result in problems with developing budgets and administrating funds. C. The Clients HACAP maintains pre- and post-enrollment statistics on all participants and anticipates a formal three month follow-up period for participants who complete the program. Statistics kept on file include employment, housing, and education status, as well as household income and level of public assistance received. As Old Main has been on-line for less than one year, no conclusive data are yet available on participants who have completed the program in Washington County. Follow-up services will be tailored to families' individual needs, and counselors will continue to play a supportive role in terms of problem solving and referrals. Clients will meet with their case manager for a formal exit interview, and the Support Services Team will be involved in an exit case review. Participants are expected to move on to successful independent living in a permanent housing situation. In the past year HACAP has housed nine families at Old Main, and assisted 20 other families in locating permanent housing. The families served were mostly Caucasian, single parent families with a woman as head of household. More than 60 percent of those sheltered were under the age of 18.
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