HomeMy WebLinkAboutMINUTES - 05021995 - F&HS-02 TO: BOARD OF SUPERVISORS F&HS-02
5 Contra
FwM. FAMILY AND HUMAN SERVICES COMMITTEE
Costa
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April 24, 1995 County
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DATE: tT�ci K�
SUBJECT: STATUS REPORT ON PROGRAMS FOR THE HOMELESS
SPECIFIC REQUEST(S)OR RECOMMENDATION(S)&BACKGROUND AND JUSTIFICATION
RECOMMENDATIONS:
1 . INCREASE the size of the Ad Hoc Task Force on the Homeless
established by the Board of Supervisors on November 8, 1994 by
adding:
✓ one additional seat for a representative from the cities,
to a total of two,
✓ one seat for a representative from the general public,
and
✓ one seat for a representative from the . Interfaith
Coalition.
2 . REQUEST the Health Services Director to provide the Family and
Human Services Committee and the Homeless Advisory Committee
on May 22, 1995 with a "White Paper" on the Section 8 housing
voucher program which describes the various Section 8 programs
which are now in operation, how many, vouchers there are
available in .the County currently, what kinds of individuals
and families have those vouchers currently, how many vouchers
may become available in the County in the near future, what
agencies will be receiving these vouchers, what the
requirements are to be eligible for these vouchers, what the
time-frames are for the availability and duration of these
vouchers, and what criteria are being used to determine who
will receive these vouchers. This "White Paper" should also
include a description of what appeals process is or will be
put in place for those individuals and families who do not
receive one of the vouchers .
CONTINUED ON ATTACHMENT: YES SIGNATURE:
RECOMMENDATION OF COUNTY ADMINISTRATOR RECOMMENDATION OF BOARD M TTE
APPROVE OTHER
SIGNATURE(S): MARK nPSAUT-NTFR
ACTION OF BOARD ON APPROVED AS RECOMMENDED X OTHER
VOTE OF SUPERVISORS
I HEREBY CERTIFY THAT THIS IS A TRUE
UNANIMOUS(ABSENT Torlakson ) AND CORRECT COPY OF AN ACTION TAKEN
AYES: NOES: AND ENTERED ON THE MINUTES OF THE BOARD
ABSENT: ABSTAIN: OF SUPERVISORS ON THE DATE SHOWN.
ATTESTED May 2, 1995
Contact: PHIL BATCHELOR,CLERK OF THE BOARD OF
M See Page 4 S RS AND COUNTY ADM ISTR OR
B DE
F&HS-02
R•
3 . DIRECT the Health Services Director to write to those groups
that are entitled to a seat on the Ad Hoc Task Force on the
Homeless, inviting them to nominate their representative and
to provide the Family and Human Services Committee with an
update on May 22, 1995 on the status of this effort.
4 . DIRECT the Health Services Director to prepare a draft Mission
statement and Goals statement for the Ad Hoc Task Force on the
Homeless and provide it to the Family and Human Services
Committee on May 22, 1995 .
5 . DIRECT the Health Services Director to provide the Family and
Human Services Committee on May 22, 1995 with an "executive
summary" of the homeless services plans which have been
obtained from other counties in the area so we have some sense
of where other counties are in their planning and in what
direction they are moving.
6 . DIRECT the Health Services Director to provide the Family and
Human Services Committee on May 22, 1995 with a "most likely
scenario" for funding for the 1995-96 fiscal year, along with
what variables there are that might disrupt that scenario so
the Board of Supervisors, our Committee, service providers,
potential contractors and staff have some sense of what the
homeless services program in this County will look like next
fiscal year.
7 . DIRECT the Health Services Director to provide the Family and
Human Services Committee on May 22, 1995 with a description of
what process the Department has in place for the homeless
services ombudsman 'to address individual client problems, as
opposed to the overall policy changes with which our Committee
is dealing.
8 . DIRECT the Health Services Director to provide the Family and
Human Services Committee on May 22, 1995 with a report
describing how long people are in the shelters, why they are
there and whether anything can be done to move people out of
the shelters more quickly so more people can be served.
9 . DIRECT the Health Services Director or County Administrator to
provide the Family and Human Services Committee on May 22,
1995 with an update on each of the recommendations that were
adopted by the Board of Supervisors on November 8, 1994 .
BACKGROUND:
On March 21, 1995, .the Board of Supervisors approved a report from
our Committee which included the following recommendation, among
others :
1 . DIRECT the Health Services Director to report to
the Family and Human Services Committee on April
24, 1995 and May 22, 1995 on the status of each of
the recommendations in the County Administrator' s
November 7, 1994 report on the homeless which was
adopted by the Board of Supervisors on November 8,
1994 .
On April 24, 1995, our Committee met with Dr. Wendel Brunner and
Brenda Blasingame from the Health Services Department, Pat Pinkston
from the Housing Authority, members of the Homeless Advisory
Committee and other interested service providers and citizens .
Dr. Brunner presented the attached report to our Committee and
reviewed it with us . Staff from the County Administrator' s Office
also provided us with the attached update on each of the
recommendations approved by the Board of Supervisors on November 8,
1994 . Dr. Brunner noted the appointment of Brenda Blasingame as
the Homeless Services Coordinator and the appointment of Duane
Chapman as the homeless services ombudsman. Dr. Brunner noted the
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F&HS-02
changes which have been made in the case management system at the
shelters and the fact that the case managers now report to Ms .
Blasingame. Sue Crosby handles the health care for the homeless
program. Dr. Brunner noted the need to restructure the program
before adopting any revised rules. He also noted the changes in
the food programs at the shelters and the importance of the
donations from Faith Community and others . Dr. Brunner also noted
that while planning is moving forward in the absence of an assigned
planner, it is somewhat fragmented. He also emphasized the impact
that the issue of affordable housing has on programs for the
homeless in this County and the problems which will result from the
fact that there will be no further Section 8 vouchers allocated in
the manner in which they have been in the past.
Our Committee explored the complexity and changes in the Section 8
program. We concluded that it is important that not only our
committee, but the full Board of Supervisors and the community at
large understand the changes that have been made recently in the
Section 8 program by the Federal government and the impact that
those changes will have on our homeless programs in the future. As
a result, we have asked that a background paper or "White Paper" be
prepared on the Section 8 program, as we have outlined in our
recommendations . We have asked that there be an appeals process
outlined which can be used by those who do not receive Section 8
vouchers . Dr. Brunner emphasized that we have to move away from
the situation where individual staff members can influence who
receives a voucher to the application of objective criteria which
determine who receives a voucher.
Although we recognize that it may be essential to have a Planner on
board before the meetings of the Ad Hoc Task Force can be
undertaken, we believe that the Department can at least write to
those groups which are going to have seats on the Task Force and
ask them to begin to nominate their representatives . We are also
recommending that the Task Force be increased by three seats, one
additional seat for the cities ( from one to two seats) and one each
for the general public and the Interfaith Coalition.
In response to comments that there was some confusion between the
role of the Homeless Advisory Committee and the proposed Task
Force, our Committee clarified that the roles of the two groups are
separate and the Task Force is not intended to supplant the work of
the Homeless Advisory Committee.
David Ammann asked that 85% of the group of 40 possible additional
Section 8 vouchers for the homeless be committed to the mentally
ill homeless. He asked that there be an RFP process with adequate
notice so a variety of agencies could bid on these vouchers . He
indicated that he did not believe that these vouchers should
automatically go to Shelter, Inc. for allocation to individuals and
families . He also noted that a number of complaints about this
County and Shelter, Inc. would be going to HUD.
Dr. Brunner noted that funding for the operation of the shelters is
available through the end of the fiscal year (June 30, 1995) . We
need to decide what funding we have available for the 1995-96
fiscal year. We cannot sign a contract for operation of the
shelters on a long-term basis unless we have money committed on a
long-term basis . He also noted that if any other agencies are
interested in taking over the operation of the shelters from
Shelter, Inc. those agencies should contact him.
Our Committee believes that we need to understand what funding is
going to be available for the next fiscal year and what factors
will influence the availability of that funding either positively
or negatively. Supervisor Smith suggested that as we identify what
we want in the way of a service program for the homeless we need to
look at running the program in ways we don't now. This might
include the use of a Request for Proposals (RFP) , running the
entire program in-house, or running the programs as a consortium
with other agencies or other counties in the region.
3
F&HS-02
We have identified those reports that. we need to have back before
us at our next meeting on this subject May 22, 1995 . We will make
a further report to the Board following that meeting.
cc: Mark Finucane, Health Services Director
Richard Martinez, Executive Director
Contra Costa County Housing Authority
Bob Hofmann, Acting Social Services Director
Wendel Brunner, M.D. , Public Health Director
Victor J. Westman, County Counsel
Scott Tandy, Chief Assistant County Administrator
4
E Contra Costa County
•;�� "� �.� Health Services Department
tJ
• % - PUBLIC HEALTH DIVISION
Administrative Offices
40 597 Center Avenue
Suite 200
C4` Martinez,California 94553
OST9`
(Cf 60b C`t
TO: Family & Human Services Committee
Mark DeSaulnier, District 4
Jeff Smith, District 2
FROM: Wendel Brunner, M.D."-�-�
Assistant Health Services Director for Public Health
DATE: April 21, 1995
SUBJECT: STATUS REPORT ON HOMELESS PROGRAMS IN CONTRA
COSTA
Enclosed is an update on the status of homeless programs in Contra Costa, including staff issues,
shelter management and oversight, and planning for homeless services in Contra Costa. This
report covers the 17 issues identified in Claude Van Marter's March 6 memo (Attachment 1),
which the Family and Human Services Committee directed me to address at this meeting.
Included also is a specific point by point response to each of the 17 issues.
STAFFING FOR HOMELESS PROGRAMS
The Health Services Director has designated Dr. Wendel Brunner, Public Health Director, for the
primary responsibility to provide services to homeless individuals and to coordinate those services
with the Contra Costa Housing Authority and other appropriate agencies. Chuck Deutschman,
Substance Abuse Director, will be working with Dr. Brunner in that responsibility. After an
extensive search, we have assigned Brenda Blasingame to the position of Homeless Services
Coordinator. Ms. Blasingame has been acting in that role for the Health Services Department for
the last three months. Prior to that assignment she has been working for the Health-Services
Department in the Tobacco Prevention Program. She is a member of the County Human
Relations Commission and has previously worked in Marin County as the director of a
transitional shelter for battered women and families. Pat Pinkston is working on funding,
resource development, and other activities, and maintains the liaison with the Housing Authority.
We have reassigned Duane Chapman and appointed him Ombudsperson for homeless services
clients. Duane's responsibilities will be to assist homeless services clients in problem solving and
in their conflicts with the bureaucracy, and to advocate for the rights and needs of homeless
persons. Mr. Chapman is well suited for this position because of his extensive knowledge of our
A372 (7/911
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Family & Human Services Committee
Status Report on Homeless Programs in Contra Costa
April 21, 1995
Health Services Department system and his long experience in the community with homeless
persons. Duane's strong advocacy was recognized by the Northern California Public Health
Association, which presented him the "Outstanding Community Activist" award in 1991.
Creation of the positions of Homeless Services Manager and Homeless Planner were authorized
by items 14 and 15 of the Board Order of November 7, 1994. The Health Services Department
sent P-300's for these positions to County Personnel on December 29, 1994, and is awaiting final
action on those items.
SHELTER PROGRAMS AND CONTRACT MANAGEMENT
Shelter Staffing - Ms. Blasingame, working with Merlin Wedepohl from Shelter, Inc. and Susan
Crosby from the Health Care for the Homeless Team, as well as shelter case managers and staff,
has moved to simplify and streamline the case management/case counselor system in the shelters.
The total staffing of case managers in the Brookside and Concord has been reduced from 2.5
FTE's to 2 FTE's, with one case manager assigned to each shelter. The responsibilities for the
case manager and counselors have been delineated, with the case manager having overall
responsibility for the development and completion of the case plan, and the case counselors
working regularly with the clients to ensure the case plans can be carried out. Case managers
are responsible for the intake assessment and development of the case plan with the case manager.
The case managers and case counselors now meet weekly to review the case plans and the
progress with clients. Case manager working hours are being modified to facilitate increased
contact between case managers and shelter clients. The overall supervision of the case managers
has been transferred to Brenda Blasingame, freeing up Sue Crosby to focus on development and
expansion of the Health Care for the Homeless Program. Intake to the shelters is now available
seven days a week. Duane Chapman remains with the Health Care for the Homeless Team,
providing him administrative independence from the homeless services management in his role
as Ombudsperson.
Shelter Rules - The draft revised shelter rules, prepared by the Homeless Advisory Committee
(HAC) two years ago, were forwarded to the Committee members last month. I met with the
Homeless Advisory Committee on April 5 and explained that I did not wish to implement this
new set of rules at this time. In my view, program rules should be tailored to fit the structure
and purpose of a program, and the shelter structure and program is currently undergoing much
needed changes. I wish to complete this major transition, and then meet with HAC and others
to clarify the role of the shelter and its program, and then write rules consistent with that role.
After some extensive debate and discussion, HAC agreed, but emphasized that in the interim there
must be clear procedures to ensure due process in hearings for clients in the shelters. We agreed
that Brenda Blasingame, who does the shelter hearings, would meet with Phil Bertenthal to
consult on interim process and procedures for hearings with shelter clients.
2
Family & Human Services Committee
Status Report on Homeless Programs in Contra Costa
April 21, 1995
Food Services - The food services at the shelters were revised effective last November 1, with
a new Memorandum of Understanding with Jeff Vickers, Director of Food and Support Services
with the County Detention facilities (see Attachment 2). Prior to November 1, dinner only was
provided at a cost of $4.00 per client/day. Under the new MOU, dinner and breakfast are
provided at a cost of $3.72 per client/day. The food service at the shelters will be reviewed
quarterly by a public health nutritionist, with the report to Dr. Brunner available to the public.
In addition, the Faith Community and other community groups have continued to provide meals
and food, especially to the Central County shelter. Savings to date for this fiscal year from food
donated by religious and other community groups has been over $30,000, and I want to take this
opportunity to publicly thank all those organizations and individuals who have assisted. With the
planned shelter renovations and the installation of kitchens, we expect that food contributions will
increase, especially to the Brookside Shelter.
Shelter Contracts and Fiscal Transfer - Copies of the shelter contracts have been obtained by
the Public Health Division and are maintained by our Public Health Division Administrator, as
well as by Pat Pinkston. George Washnak from the Health Services Fiscal Department has met
twice with Patty Cross, Housing Authority Fiscal Officer, along with myself and Pat Pinkston to
arrange for the fiscal transfer of the contract responsibilities to the Health Services Department.
A new cost center has been established within the Health Services Department for homeless
services, and the funds and fiscal activities will be transferred to that cost center as of July 1.
For the remainder of this fiscal year the funds and payments will be continued through the
Housing Authority fiscal office. Mr. Washnak has reviewed the finances with Pat Pinkston and
Patty Cross, and there is sufficient funding to operate the shelters through the end of the fiscal
year. Based on that determination, the Board of Supervisors has approved the contract extension
through June 30.
We will negotiate a new contract with Shelter, Inc. for the next fiscal year. That new contract
will reflect the program changes and modifications that are now being developed and
implemented. Mr. Finucane and myself have met with Merlin Wedepohl, Executive Director of
Shelter, Inc., to discuss the general issues of future programs goals and directions. Brenda will
continue to work closely with Merlin and others to develop the program goals and directions for
the shelters, which will be described in a new contract and shelter rules.
PLANNING FOR THE HOMELESS CONTINUUM OF CARE
Planning for the continuum of care, inventorying the existing homeless services in Contra Costa,
and identifying the gaps and priorities continues to proceed in a fragmented manner, with
considerable confusion over the assignment of responsibilities and availability of resources for
that activity. The tasks outlined by the Board of Supervisors and described in Van Marter's draft
memo of March 6 are extensive; they will require the creation and filling of the Homeless
Planner position in order for the tasks to be adequately implemented. However, in the interim
the Health Services Department has undertaken a number of activities to further the planning
process within the limitations of available resources:
3
Family & Human Services Committee r
Status Report on Homeless Programs in Contra Costa
April 21, 1995
• Formed the PACT/HAC Steering Committee, including participation from the homeless,
to oversee the development of the continuum of care document produced by Paul Gibson
and Associates required for the HUD Supported Housing grant application submitted by
county agencies and non-profits on April 6 (see Attachment_3). Mark Finucane will be
meeting shortly with the HAC/PACT Steering Committee to discuss homeless planning
issues.
• Worked with Paul Gibson and Associates, Merlin Wedepohl, and Rick Aubry,
representing the Association of Housing and Homeless Providers, to develop a homeless
inventory survey instrument and accompanying letter requesting participation from
homeless service providers. Implementation of this survey may be by Paul Gibson and
Associates under the PACT contract, depending upon resources available.
• Obtained copies of the current homeless plans from Bay Area counties. Those copies are
maintained by Pat Pinkston and Wendel Brunner.
• Requested updated criteria from the U.S. Department of Housing and Urban Development
describing the composition guidelines for the countywide planning task force that will be
required by HUD for future federal funding.
The continuum of care produced for the HUD application is far from adequate and complete, and
reflects the urgency and limitations of the grant requirements and deadlines. Paul Gibson, Pat
Pinkston, and others put in an enormous amount of excellent work in a short period to meet
HUD's deadlines. However, a complete inventory and identification of county priorities will
involve a more extensive process.
WB:ah
cc: Mark Finucane, Health Services Director
Attachments
4
STATUS REPORT
ON
IMPLEMENTATION OF COMPREHENSIVE PLANNING FOR HOMELESS
Specific Progress on Each of the 17 Points
Identified in Claude Van Marter's Draft Memo of March 6
(Attachment 1)
1. No specific action required.
2. Administration, monitoring and oversight of contracts with Shelter, Inc. is assigned to
Brenda Blasingame, Homeless Services Coordinator. Copies of contracts have been
obtained and maintained by Paul Kraintz, Public Health Division Administrator, and Pat
Pinkston. Ms. Blasingame is working with Shelter, Inc. staff and others to implement
program modifications, which will be reflected in new contracts prepared for the next
fiscal year.
3. Ongoing responsibility for facility management for the North Concord, Brookside, and
Shell Family Transitional shelters has been assigned to Bob McEwan of the Housing
Authority. The Housing Authority has a policy and procedure in place for routine and
emergency maintenance of those facilities (see Attachment 4).
4. The creation of a task force to coordinate, oversee and advise the Board of Supervisors
on a comprehensive homeless plan is on hold pending the approval of the Homeless
Planner position (see item 15).
5. Assign the Health Services Director the responsibility to prepare a comprehensive,
integrated plan is on hold (see item 4).
6. The Health Services Director has assigned the primary responsibility to provide services
to homeless individuals and to coordinate those services with appropriate agencies to Dr.
Wendel Brunner, Director of Public Health. Chuck Deutschman, Director of the
Substance Abuse Division, is working with Dr. Brunner on that assignment. Brenda
Blasingame has been designated Homeless Services Coordinator,and that team is working
closely with Pat Pinkston on resource development, liaison with the Housing Authority,
and other activities.
7. Mark Finucane and Wendel Brunner have met with Merlin Wedepohl, Executive Director
of Shelter, Inc., to discuss overall goals and directions of the Shelter, Inc. programs with
the county. Brenda Blasingame is working with Merlin, Shelter, Inc. staff, HAC, and
others to modify the program at the shelters. The modified program will be reflected in
new contracts with Shelter, Inc. beginning with the next fiscal year.
8. Wendel Brunner and Brenda Blasingame have reviewed the rules at the shelters, and the
modified rules proposed by HAC in 1993. New rules should reflect the program
approaches and goals, which are currently in transition. Dr. Brunner has discussed the
rules issues with HAC, and agreed that Brenda Blasingame will consult with Phil
Bertenthal on due process and procedures pending the implementation of new rules, in
consultation with HAC and others. Duane Chapman has been appointed Ombudsperson
Status Report on Implementation of Comprehensive Planning for Homeless
April 21, 1995
to assist homeless services clients in conflicts with the bureaucracy and to advocate for
the rights and needs of homeless persons.
9. Contracts with Shelter,Inc. for the operation of the North Concord and Brookside Shelters
have been extended through June 30, 1995.
10. The "House the Homeless for the Holidays" campaign carried out by the County
Administrator's Office has raised approximately$20,000,providing for 1,000 person days
of shelter. The County Administrator's Office has provided letters of thanks to
contributors, and we take this opportunity to express all of our thanks to the community
for this response.
11. An agreement with the Director of Food and Support Services with the County Detention
Facilities has been in effect since November 1 to provide breakfast and dinner for $3.72
per client/day, see Attachment 2.
12. Limited facilities are available for residents of the North Concord and Brookside Shelters
to store and prepare food. There are refrigerators available for use of clients to store
limited quantities of food in bags labeled with their name. There are microwaves
available. The kitchen facilities are not suitable for extensive client food preparation, and
renovation of the kitchen facilities at both shelter sites remains a priority (see Attachment
5).
13. No further action required.
14. Health Services Department;staff prepared a P-300 to create the position of Homeless
Program Manager and sent it to County Personnel on December 29, 1994. We are
currently awaiting action on that position.
15. The Health Services Department prepared a P-300 on the Homeless Planner and sent it
to County 'Personnel on December 29, 1994. We are currently awaiting action on that
position.
16. Pat Pinkston has been assigned the role of developing funding and resources from
governmental and private sources to maintain and expand homeless programs.
17. George Washnak from Health Services Department Finance has met with Patty Cross,
Housing Authority Fiscal Officer, and Housing Authority staff to arrange for the transfer
of funding associated with the homeless programs. A homeless programs cost center has
been established within the Health Services Department, and the completion of transfer
of funds and contract payments will be effective at the beginning of the new fiscal year,
July 1.
18. Transfer of funds from Social Services Department to the homeless services cost center
on July 1 are under the policy direction of the County Administrator's Office.
2
Status Report on Implementation of Comprehensive Planning for Homeless
April 21, 1995
19. This fund transfer, effective July 1, is also under the policy direction of the County
Administrator's Office.
20. Sara Hoffman is designated by the CAO to identify appropriate costs which must be
covered to accomplish these recommendations.
21. Sara Hoffman is identified by the County Administrator's Office to return any necessary
documents to the Board of Supervisors as appropriate to accomplish the above
recommendations.
22. The Health Services Department was directed to report to the Family & Human Services
Committee on March 8. This report is to provide further update to the Committee, and
to remediate deficiencies identified by the Board members in Dr. Brunner's March 8
report.
WB:ah
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ATTACIP4= 2
DATE; Monday, November 21, 1994
T0.4 Pat Pinkston
Homeless Coordinator
FROM; Jeff Vickers
SUBJECT; Direetor of Food & Support Services
HOMELESS SHELTER MEALS., PRICE ADJUSTMENT
In our ongoing effort to provide the best =al service at the lowest possible price we
have re-evaluated the components of your program and made the following price
adjustments Gffactive 'November 1, 1994.
1.3 DINNM:
ff-u'1117 congregate meals, following the Adult Detentioa
Facies 'es dinner mW plan to include supplies of plastic
forks, knees, spoons napkins and plates.
Delivery Inaluded at Ao chat-go.
2.75 per meal.
2) BREAKFASz.
packages assorted cereals (bowl pack),
two per mW provided, with an 8 ounce carton of m:llk.
Supplies to include plastic spotins and napkins.
Delivery included at no charge.
047 per meal.
As In the past, we appreciate a written. order 'faxed to us prior to the start of the
calendar raonth. We will always be available for count adjustments at the followiDg
numbers;
Concord Shelter: Martinez Detentioxt Facility
Bob Young: Head Cook, Tel: 648-4613
Fax: 346-1391
Richmond Shelter: West Count Detention Facility
Barbara Harmon: Head Cook, Tel; 262-4261
Fax: 2624299
Neff-Vickers, Director of Food & Support Services
Tel., 202-4280 Fax-.-2ff2--4'-)9T—
ATTACHMENT 3 ^„
Exhibit L : A Continuum of Came
A_L Arming PnXVSS
In19S6 the Contra Costa the Bom-d o LS.,pervisors created the Homeless.4dviscny Committee(HA as
a`,,
arc advisory body:and 19-ce':ter, Inc. a`.ar, operational arn-c, for the development and -imp leraentation of local
iI'citiatives to:3ddl'E'�S hOITIeieSST-tees Since tl:ell,public and private agencies from Contra Costa Coc.r2'ttsj 'ca"e
been involved in several comprehensive planning partnerships,generally undea-the sponsorship of either the
HACor the Association for Homeless and Housing S?:7,ice Providers(AHHSP). A111eeting twice monthly,the
HA C focuses= upon polio-issues and as a rneans of ensuring tl-tat consumers. local governrrcent and corn munit/
r-nerrcbers have a direct voice in horcteless services and policies. The A HHSF, which meets mond-dy, created a
forum in which public and private agencies to caoT-dinate services,
In the Spring of 1993, the A HHSF,ill collaboration with the County Administrator's Office, the Public
ht�Tcagers Association (F1`�•IA). the Sial.-stance Abuse and Mental Health Contractor's Alliance,and homeless
consurrcers.Sought and received funding from: P•Iortl:er?c Califorrda Grantsmakers (NCG), a coalition of over 50
lLxalar:d regional foundations and corporatio_-cs, NIC.Gfundingcreated the ProActive Comraunity Tearn (PACT)
whcs�e rnis don it was to create a coordinated and n-,uItidisciplinary_plannir-Lg process focused up �
on de i cin
•
develo��Ing ar-cd fi.ircding accx-)rdinated and corrcprehensive continuum of care for the homeless The PACThas a
r
two-tiered structure v�-ith on Executive CCIrcTnitt e that meets monthly and is,cornpri-zed of; one consumer
reprerentative; the Chief Deputy Cot,my Adrrdnistrator to the County Administrator;the assistant 1-'_ealth
':k;nces Director for Public Health;the Executive Director of the Housing Authority;a representative from
the Mental Health and 9-Ibstance Abuse Contractors.Alliance;a representative from the PNIA;and a
representative from the AHHSP. The Execc_Ttive Committee is responsible for facilitating policy and wstern
change and for increasing consumer and provider inert into county decisions relating to available resources,
The second tier to the PACT includes over 35 public and private agencies that have met monthly for ahrLost
twoyears,to design and operationali. e acontinuum of housing and services for the homeless. Special PACT
task forces or project-focused committees meet with far greater frequency,
At the same time that the PACT had been developing the model for the continuum of care,both the
County's Community Development Department.(CDD)and the City of Richmond,developed Consolidated
Plans for their respective jurisdictions. The Urban County is all of Contra Costa County minus the City of
Richmond which is its own HOME entitlement,
Page]
a-L Novernber 8, 1994,to facilitate developing amore integrated health arLd hurnart ser7icta::continuum for
the homeless, the County Board of S-ip erviscrs trap sf erred overall program responsib for cperation of fl-te
County's hornelless prograras to the County He,�Jth Services. The Health E?n,ices Depm-traent will create a
Homeless Services, Nt-mageraenf Team (HSN-M ccrcipr'sed of Homeless Program 1\41-inager to coordinate and
manage all County p rograrct s for the home1eES,,. and a Homeless Flart ner to staff a Task Force on homelessness.
0
The Task Force will consist of representatives from HA C. A H HSF, PA CT and local cities and will be
responsible for coordination,oversight,a-,-td advce to the Board reg-arding preparation of a con-tprel-tensive,
integrated homeless plart and to serve as t}-te'corarrturtity board' envisioned by HUD,
Many other planning effort=and studies,lix,-e'Deen incorporated into the Continuum of Care
Local planning efforts are linked to a regional effort involving nine&ay Area counties, This process has
resulted in the rec edp t of a$7,z m illim Innovadve Homeless:. initiative grant to ad d ress regional issues,
`D-,e Cbmmunitj Board cmd H RAT is due to become operative in April, 1995 5 now that the hiring process has
been completed. On art interim basis,a PACT-HAIC Coordinating Committee v-7as formed to facilitate
development ofbotl-t a dr4t of the.continuun-i of care and to coordinate and support local SHP Froposals, This
Coordinating Committee has been irteeting t-,,ice weekly and was corctpriseLi of the FACT Executive Comn-ittee.
(see shove membership), t-,,ao homeless or formerly h ora eless individuals, a homeless advocate.,the Housing
Authority's Hom eless Progr,�un NbrLagerctent Officer and two HA C representatives.
This team ccord inated the devel op rrient of the con tinu um narrative and developed a searrd e3s
communication network among potential applicants with drafts of Ex-1-tibit I and 11 flo-,Ang freely among all
applicants. In this wEvy,duplication and fragmentation ,-vvereavoided.
The Coordinating Cortirt-tittee, the HAC and tl-te PA C7 have planned a series of strategic plartning sessions
in April to continue the planning process,refine the continuum of care-,and furl-ler develop plans for
opetrationalizing the case managernent systern ]inking the regional cluster system of supportive services.
In short a number of corn preh ensive p lartning processes have-been integrated into one coordinated effort to
characterize the existing continuum of care, identify its strengths and significant gaps,and support the
development 01'a series of proposals that address those gaps,
The following studies L.-ere utilized: AHHSP Homelessness Study, 1991; Community, Substance Abuse Services,
Studv. on Dually Diagnosed, 1994: N-fental Health Advisory Commission study on the mentally ill, 1993; Health
Services Department study of service-utilization, 1992; Consolidated Plans for Urban County and City of P"ohniond,
1994; PACT focus group series at five encampments, one soup kitchen and two multiservice centers for mentally ill,
1995; ,'%HHSP Homeless conference(120 attending), 1994.
Page 2
AZ Desaipticm of cmfimum of Gmm
p 1-ticall,.-disFjei-se.cort-ti-,-iiiiiin ser,7edfes;afrqgn-te.i-tted,tiTte-CLIl-Lsul-,tirL&
v
public trarrspcu-tatiol-t system tl-tat represertt� acI-itical barrier to ti-te delivery-of services (See Nlap, Page —.
As a result of the cou ritys being divided
into thra---- distinct and dispersed regions (East West, Central).
e5
N11i I tiser..,ic e centers,s-11-tel ters,food kitchLens, tt-ar,si tior-Lal --ot,sing programs and die::-,U Pp ortT7e services
surrounding there must all be organized in each reg
To address this barrier,the PACT developed a
framework for the continuum dia-t calls for'regional integrated service clusters'or- -irk of
a 5. organized around a netwc
regir-vLally-based, rtiulti-serAce centers linked by a comrrior,, referr�Ll netv7ork and case management system,
These multiservice centers will offer an ar--ay o`services designed to help cultivate positive relationships
vaith the homeless and to offer the information and resources that individuals and families require to
extricate themselves from horn elessness. Please refer to d-te chart on the following page,
5ys6 of Oakaa&and Amessmmt
A varier/ofoutiezcl-Leo�ts �zreUtil'-edtOe�-CL ilRC
Otl-Leho,ctelosstLei-tgige-he.contiruum, Currently
liouslng aswessinents are conducted at e-raergency shelters.transitional shelters,churches, and other community
i .
centers by Slielter, Inc. At the sarrie sites, vocat c-,nal assessinents are conducted by Rubicon Progarns, Family
assessm ents are conducted ty the PATHS FYoJect in East C--)unty and health assessments are conducted by
Heakh Care for the Homeless at 21 sites. N-tental Health,assessments are conducted by County Antal Health
staff at clinics and by Phoenix Programs clinicians at any of t-lie diree mental health multiservice centers,
Finally,a comprehensive assessm en t is provided by county case managers for horrieles,;adults in the public and
private emergency shelters,detox centers.,and transitional programs.
fineqPMCY Skehiff 5156®
The Fluergency Sielter system includes over adccen providers, T'he vast majority of shelter slots for single
adults are operated by the County (116: BrLx--)kside and Central County) and the Richmond Rescue Mission
(164;. A "Safe Haven dike" program also operates in East County that serves 20 homeless mentally ill
individuals from throughout the entire county. Battered Women's Alternatives(24 beds)offers an emergency
shelter for victims of domestic violence, Three regiornally-based detoxprograrris (45 beds) also offer shelter
and apoint of entry into the drug treatment continuum and the emergency shelter system, These shelters are
well integrated into the continuum and residents at these p.-ograms are provided assessments and outreach
activities that promote the various available transitional and supportive service programs. Almost 200
Page 3
t'IY! ;'j blOd
y
Chat of G miinnmm of Cam tobe p1we d hem
Page 4
additiczLad ernei-Sency shelter beds are available tl-Lrough alarge nuraber of small,generally faith-ba,-:ed and
con-t inu nit,,.- funded organizations. 71-te f igure b eibw illustrates ertty into the shelter system,
SHP P ap I9 :asvr
-I
to RK G.FM I
Health Dept
116MEBW P-9-ime Nagh.EE—hood 14-ZLM Phoenix
&*'zm ot-North Fiduncnd I �ter for the NlenWN 1U
Ckdnml& R'�itioc)nVocatiorL-Jc-�L-treadiFitmeTeations I Witew t ti;7cs SMtz--j
=Cki 111US orae U..O Mum-dRescuem2mall I
OfftlszSfsaed -Uher LBU s SmNinK North Uormrd Shelter
ax ettenBrooks0e Shelter
P, edlisoma utile :m Miscellaneom Lliurdh-based
Neighborhood Hmme cf NcKlh Richwmid
tens
I*R criis&swd:le Irl".'enti
To
MendthUcrefort hel-ionrlesi
am ye mmuriiy eue•
Transitional housing programs located throughout the county are linked to the emergency shelters by the.
case inanasemerit l-,,1-tert-L described below and i'llustrateLi above by Figure 1. TT.e inventory of transitiona.1
IL ou sing resources is summarized in fiction Das. is a description of tl-i 9 critical gaps in this inventory. The
inventory is deceptive., since perheps the majority of transitional housing programs do not target the homeless,
Aside from residential t7eatment programs, most of the re;-ciaining transitional programs serve homeless
farnilies, Further, transit.lorial housing programsservingspecial needs populations are generally not
g
available in each region of the county,
Pounanent Housilng for the Mwbw
A number of perrrianent housing programs serve homeless inental'y disabled adults,developi-nentally
disabled men and women,and people with HIV/A IDS While.most of these programs do accept homeless
individuals, very few target there and the number of unit-, are inadequate to the demand,
PeanarAent Affordable Housing
The preservation and creation of affordable housing is me of the most critical and difficult challenges
that will facilitate knieless individuals' re-entri,, into housing. Unfortunately, permanent affordable
hous'ng is in very short supply in Contra Carta County Having one of the highest housing costs in the nation,
Contra Costa County faces aconstant challenge to identify permanent affordable housing for individuals and
families extricating themselves from homelessness Z.
1
2 Median rent in Contra Costa County in 1990-was 5613. over double the monthly allocation for general assistance.
Page 5
The receipt of tS•'•Io tenant-based FLelter Plus Care grants in the last two years has created 172 units of
scattered site supportive housing for homeless v ith special needs,
SUPPcrtive Sir kXM
Existrtg suppartive services are linkaf to I-tb' usingby case managers from various public and private
agencies serving the homeless, Entry into t1-te.corttinuurn of care tl-Iron-Igl-t t1te various o,-Itreach efforts results in
enrollment in one of these case management programs. Case manacjer's•ti-ten ,assist participants: with ti-te
development cf an Individual Ser..vice Plan thatidentifies specific services and providers.,
educational/vcxational ccnii-ses and'or training housing options,and other activities that are critical to
achieving a greater degree of self sufficienoy and to maintaining a more secure housing situation. To ensure
maximum use of scarce rental assistance,all participants must have a cage manager and a case plan prior to
recei=ging rental assistance,
The case manager is responsible both for NA7orking v..vith the participant to identify, services needed and to
, -gotlate,with collaborating agencies for service agreernertts that ensure access:to ser,ices needei,
A corarn itin erit of almost$8 raillion in supportive services has beer,linked to t.,o 9-telter Plus Care proposals
designed to serve over 172 individueds and families, The development of arartge of supportive services linked
to 9-telter Plus Care was a key step in integrating supportive services with housing.
B. Organizations Invdved in Crordinuwn of Cane
�-Vithin Contra Costa County, development of acontirtuum of care has already incorporated tl-ie input and
involvement of abroad array of jurisdictions,organizations,and individuals. What's more it has established
a solid framework for sustaining an ongoing, comprehensive and coordinated planning process that ensures the
continuing and expanding involvement of every segment of the community.
StaOe de I=al Govwummt Agmdm
Examples of government involvement include,the County Board of %pery isor's creating a Health
Department-housei Horcteless Spr Vices NIgnagernent`?'sora, Another-ekarriple of the County's con.ircitrrtent is
its recent General Plan arnendrnent Vtrhich facilitates,the siting of homeless shelters. Cities have also been
involved in a wide variety of intitiatives contributing tc the continuum of care(see be.ow).
Contra Costa County- has established numerous linkages among local and state jurisdictions to coordinate
planning for the continuum of care. A planning consortiurn has been forged comprised of all of Urban County and
four of the five entitlement cities. This Consortium is responsible riot only for recommending strategies for
utilizing HOME funds,but also for developing a comprehensive consolidated plan for participation in the
Page 6
CDBG., HOME, HOPWA, exid ESGffinding programs. This partnership arnong the cities has resulted in tI-,e
creators of a five year ConsolidateL' Plan (approved by HUD)and a one year Action Plan,also approved. The
city of Richn-tond remains its own planning jurisdiction but has been integrally involved in interjurisdictonal
horneless plannirgthiroughits Consolidated Plonnina process, its; involvement with PACT and recent
Entermist? Cf-Ircimunity planning activities. Otlher planning relationships include:
1 0 L) 0
•
Housing Authority representation on the California Working Group on the Homeless,astatewide
plartning groupsnonsored by the :Rate Deportment of Econon-tic
• Count7 Health Services Dept, Libraries. Office of Education,and Public Managers Association have all
been involved in the plannirtg and developinent of the CCCIRNIS I&F.system,
• the entitlerne-rit cities participate in planning and funding components to the continuum through their
various Human cervices, CDBG and Redevelopment Activities.
• PA CT planning processes I-L if,included high level county in volvernent(chief assistant to County
Administrator sits,on Executive Committee)and strong linkages to lcx--,ql cities (representative froin Public
klanagers Association sit,-:',on Executive Committee).
• the County PICprograrn funds vocational development and asses-sruent acti--,itiesat the shelters,
• HAC planning process rocess include-:,, repae
rentatives fi-orn three local cities
• r
the County acidcitiesof Concord, NI-einez, and RiChi-nond hawebeeriparticipants:;in the development of a
series of local Sl4FprL-)paz,,aIs addressing the encarnpri-tants. Pku-trdng included representatives from local
police: dbi council, x-,.d cit: rcLana ers offices an,d vv z�r.desi:,ned to develop strategies to mu w ally reinforce
efforts to help these individuals obtain housing.
Hanwiem Sargim Prmldkirs
Cerusdnly one of the stren,,,--+ to the Ccunt/s plannin,L,, ii-Lrastructure is the ongoing collaboration an-lon0c,
public ai-tdprivate service providers. Dyerthe last five years: the AHHSPrias been responsible for"convening
numerous planning conferences.:for creating task forces to plan strategies addressing such salient system needs
as: developing an improved I&R.service;creating publications to inform both the providers and consumers;
organizing corctmunitf educatione'site tours:for community residents—legislators,, and governmental officials;
and developing collaborative approaches to addressing servi'ce gaps. These activities have required the
active involvement of over three dozzert public and private agencies 1,%,hich have met monthly since 1990
Every applicant frorn the County hasbeerL extensively involved in either the A HHSF or PA CT planning
processes and in most c ases, both. Each of the projects beir.ga submitted hcv,,-e b een discussed in A H HSP or PACT
planning meeting; and each addresses an identified gap in the continuum.
Hmift Dmmkpxs
An increasing number of non-profit housing developers have focused on affordable housing development
targeting the formerly homeless in the County including East Bay Habitat for Humanity, Rubicon Programs,
Stelter, Inc.,and Pittsburg PreF.-choc-il Coordinating Council, The last three CBCYs are founding rnembers,of
both the A HHqP and the PA CT acid through thern linkages are facilitated between housing development and
Page 7
service provision, While oilier developers create"affordable." housing, this)rousing is not realistically
afford able by the homeless or formerly homeless.
Plrivabe FbwxL- cws
Private foundatiorLS have been deeply=ir`t'4ol'ved in Contra Costa County's developrnent of an integrated
continuum of care. Fuuiding from the I',lortlie_-n California Grarttritakers (a coalition of over 50 foundations and
corporations)underwrote the entire PACT planning process for the past two years, 1-JCG s involvement extends
far beyond that of a funding source, prop,iding angoing input.linking projects with potential funding sources.,
and generally,strategi-ir:'g in the effort of constricting a continuum.
'Me East Bay- Cor n-iu pity Foundation (E BCF) "t-ziz been directly involved in the development of art I&R
system that will serve as the informational artery linking riot only-homeless servicez and housing options,but
also the full range of supportive services available throughout the community. EBCFhas also;one well
beyond being a pro:p.ectve fi:inder, participating in -stern desi`i artd facilitating Caisis Intervention arid the
PAC:'"s involvement in a national conference call of representatives frorn other Iti;R systerns tl-troughout the
country. The Stuart Foundations have also been involved in developing d-tis o stern,
IDn i Busies s and hivmtment Bankmg Gomm"
Local business is playing an increasindy prominent role in contributing to the Cor.tinuun-L of Care;
• Three Business representatives serve ort the HA C::
• BASS Tickets and the Wherehouse have cornbined fiorces in supporting homeless shelter programs, Tlie,-
have raised fund,.directeLi community education and fundraising proi-notions.and hired horneless
individuals involved in these programs. 71-tey also contribute tickets to concerts and other events.
• Lesher Corn rnunications, publisher of the county newspaper,has contribute.�i to the development of both
eartergency-shelter grid transitional housing programs for victims of domestic violence($200,000 thisyear-
alone)and the Pittsburg Fa nily Center.a HUD funded transitional Mousing.
• Through the efforts of the REACH Flus Hou:=ing Outreach Coordinator 50 local landlords and property
rental managers and firms have been identified who are w]ling to work witl-t special.
• The City of Richmond has organized a Riiall Business LknFeloprnent Corporation and a consortiurn of
banking investors who together are developing a plan for the creation affordable housing and economic
opportunity initiatives.
• Mechanics and VVells, Fargo Banks Have each participated in developing various programs through which
free checking arid 1 or check casl-ting privileges could be offered to the Homeless.
NeiBbbo iaodriommmzi nurdigierviae Grralrs
Community invdvernent in the Continuum of Care corner in the fonts of planning, funding and delivering
direct homeless,smelter,and hou sing services, 'D-,e faith canrnunity has been the most active in all three of
these initiatives, The Greater Richmond Iriterfaitli Project(GRIP), the Interfaith Ministerial Alliance
Page 8
Project(INIAT) and the Cont-a Costa hiterfaitli amlition fCCIC,I play important roles in planning the
continuum of care, All three have been participant-;in"both the HACand PACT planning processes.
Nurnerors other community driven initiatives Have been integrated into the continuum of care. Among die.
more important:
•
Faith-based homeless initiatives involving almost exclusively corarnunityr volunteers are responsible for
providing over 200 shelter beds througliout the ccunty;
• Project Hearth is a model of organizing a-.d integrating private individuals into meaningful roles in
support of the Continuuni of Care. Project Hearth was fcn-rned by a small group of individuals who wanted
tz do something to help homeless families, Over the past three years, Prorject Hearth has raised over-
$160,100 and assisted 39 households,including 55 adults and 94 children.
• With funding from a HUD Supportive Housing Prograrr-grant, semen neer Extended Family chapters,
modeled on Project Hearth, have been established.
• GRIP in partnership with fie City of 1chniond said Rubicon Frograrns Have developed a pian to transform
a fait'h-bared volunteer-driven soup kitchen popular-wid-: the homeless into acomprehensive
multiservice center for-individuals and families. Tlie City has committed funds to rehab the facility and
add restrcurns and showers (the only showers for the homeless in West Count,);
• CCIChas long contributed approximately 40", of the evening meals for the Central County Sielter and
secure inventories of pant:r . household and furniture items,for families moving from shelters;
• A-1my other individual church groups perform similar kinds of support roles.
Iiamekss ar Rzmadg)E ss Individuals and Adwxabm
The HA C and the PA CT have.both integrated liomeless and formerly h n ieless individuals into the
planning-process. Furthermore, agencies working,vith the homeless have made accnicerted effort to Hire
homeless and formerly homeless individuals as rega lar employees, Other activities include:
• Three consumers serve as me -Lbers o the HAC. hi this capacity they have direct input inti-)county policies,
relating to the delivery of homeless services.
• One consumer-serves on the PACT Executive Committee, ensuring direct input into the conceptualization of
the continuum of care and the configuration and design of various collaborative initiatives;
• Two consumers and one advocate va so is the fiercest critic of local efforts to serve the homeless all served
on the HAC-PACT Coordinating Committee,revie,ved drafts of tlie continuurn of care narrative and
participated in the planning effort to coordinate SI-IP projectsbeing submitted;
• Resident Councils have been formed atbo h county emergency shelters to help operators obtain feedback
about service delivery;
• The PA CT initiated aseries'of focus groups end individual interviews at five hcutielas encampments, two
multiservice center:, and one soup kitchen, Tl-:is enabled planners to incorporate the perspective of the
most difficult to serve among the homeless,
Page 9
12:19 PM L511/32
C. Extcnt a Invdvcnim-tt in Ccxr mnity Pro0cm
Cl._ A— Iav+oiv nc>siLt
Page 10
C2- Pnxzsgw tD Avoid Duphngm
-11-te creation of an ad hrx H,,%C-PACTCoordinating Committee to oversee the develop merit of local
tive Housing Froggrarn proposals has been particularly effective f ective in coordinating planning ef for.-ts in
Sappc x
relation to this specific initiative(see above).
D. Honsdcss AssisLmce Inventory: Needs& Gaps
Contra Costa Courtesy is comprised of 733 L-square miles that include three geographically and
socia-economically distinct regions: Fast,West and Central County, see reap fl-tat follows.
71-tere are areas of great scenic beauty, N-luch of the suburbart area includes tree lined streets,
manicured yards,opeii space, and accessible parks; Contrasting these are-as of prosperity are many
areas where trees take the form of b aards on buildings, where yards are concrete sidewalks, and
where parks are littered with needles and garbage, yet serve as borne to those without roofs.
Con-ir-Lunities of great wealtIl are adjacent to census tracts in which 25, 35 and even 50% of the
residents live in poverty,
F-
ON N
Richmond 'AWS/
MaMfe-z;**
AMM
UnMrC Plarag frf
wnu,
Cfed
ef keley E,,rentwod
�n
San
l,
Franciscoco Contra Costa Count ,,,:?
LIVdMOte
A hmeda GOU*
Jose
In the City of rdchmond,there are areas that have greater violent crime rates than every city in the
nation except Washington, D.C, and Cotroit. In. East County, neighborhoods face simlar challenges,
though with far less in the way of services to buffer,serve and support. Unemployment is the-norm in
many of ffiese,communities and most of the residents must utilize public services to survive.The Count,/
Page 11
L3 Ivie
Health Gxrvices Department conducted a data match search that identified ten census tracts,in which the
rriajority of fairtilies are using more than one public health or serial service and many use several.
Whatever census statistics tell you akout Contra Costa County's wealth will be dispelled in abrief walk
alonE,the flood Canal in Central County, the"'holnle to hundreds of homeless livIng under freeways wid-Lin
feet vTaters that swelled to overflow during
g t1 e recent flo z)ds. wiping,out their Ttornez.,' It is estimated
that over 70%of these homeless lack the skills to obtain evert a minimum wage j61b. With General
Assistance paying$300 a rent our 1-ton-teless t-,y ti attain stable, safe and permanent housing,housing in one
of the most expensive rental rnarkets,in the United States,
al. Nwnbers&Chxachmdsfiirs of libmwiess Ragelaticn
Ithas been estimated that anywhere fi-Lrr-i 3,00"1-15,000 individuezIs and family members are homeless in
Contra Costa County in any=given year, Tvio sources-,xere used to estimate this range of the total number of
single homeless individuls: 1) gate Health and Welfare projections indicate that 0,38%of the State's
population is homeless. 'Z) HONEBASE developed projectionsbased upon AFDC Homeless Assistance
F'rog,rarn. This is the larger of the two estimates. The truth. lies sorne,,kitere in t1-te middle. In arty case,the
extent of homeless,by any projection, far exceeds the 11-ontinuurn's current capacity to address the need,
Numerous local studies have indicated il-tat the Homeless are not ahortiogerta.is group requiring one common
intervention.The homeless have only their horneleasness in common,beyond which each of the homeless are
challenged by a unique combination of disabilities, fears,and threats:
• K4enally Dir.+Ied/AddktodA3aal*Uiagnosed hiUviduals: Even using the most conservative
estimates,the dually diagnosed homeless population is estimated at over 750 individuals,many of vil-torl-L
have lived on fl-Le streeit for years acid v7ill require extremely extensive and expensive interventions to
attain and maintain housing.The actual number of dually diagnosed is perhaps several tircies greater,as
the basis for the projection(3,000 hon-teless)is deemed to be a very low estimate,
• ftople with UNNUDS Contra Costa anurtty AIDS Office projects over 500 horneless individuals with
HIV/AIDS in the county,
• Families and Victimsef Dmestic V"enm Bassai upon AFDC-Homeless Assistktce Program figures
Contra Costa Coanty has more homeless families than San Francisco and its population of homeless
families is growing faster than eight of the.nine,Ba;;Area counties (HMEBA SE). Homeless families
living in cars have alms ot no shelter resources,ext-emely limited access to child cam and health can and
in many cases are in flight frorn dorn est-1c violence and Years of 41 use. Rvehmadredandfad
and families tamed await ftom BAtmed ongt's Alkwmalives last yea;
• Veftwans: 71te Veteran's Administration estimates that over MIr,of the homeless are veterans,marly
whom suffer from recurrent and debilitating post traumatic stress syndrome incurred in Vietnam.
Housing alone is not enough for these individuals many of whom have been entrenched in homelEnsness for
years. So while the county will continue to expend erLerow and resources in developing permanent:affordable
Page 12
housing, it is essential that an equally strong corranitinent be made to e>Talding the continuum of supportive
housing and supportive services.
DZ jAveng y of Feng Hanning&Homele m Saoiae_s Ramxg aes
As part of the Consolidated Planning process coordinated by the County Community Development
Depatrnent(CDD), a connprehensive inventory of housing and supportive ser.=ices was compiled. The
Consolidated Plan has a very accurate and detailed inventory of shelter, transitional Housing,and pen-nanent
housing for people with special needs. Hov,7ever, the inventory of services is far less detailed and
comprehensive. The PACT consultant developed a sur;ey,to compile afar-nose detailed inventory of services
rmation will serve a dual purpose, for planning and for use by volunteer
including over 2501 records, The info
phone counselors who will be responsible for providing this information to consumers. Thus,the data collected
for tl-:e inventory includesbus routes and directions to sites,client eligibility requirements, hours of operation,
etc, as well as funding sources and the reliability of that funding st-earn for each service. Asa result of the
way in which information has been gathered;
• planners will be able to identify ail providers of a service,identify the static capacity for this service
ystern-wide, isolate by re,,,ion tit at same capacity, idenli, the sources of funding for that specific service,
and review the provider's assessment of the reliability cif funding over the next five years,
• the inventory will also be used by Crisis Inter-7ention (Cri and all of the multiservice centers, As a result,a
consumer could tell a hotline volunteer, a multiservice center staff nnernber,a peer counselor at a shelter, or
a volunteer at a help desk the specific service they are seeking and where they are(by city,zip code or
phone prefix) and the person assisting theric could identify the closest site for that service,the hours of
operation,available public transportation options,aid directions to the site.
• finally, CI plans to develop an inventory of affordable housing, landlords who are cooperating with the
continuurn and are supportive, and other contact;and resources who might be of assistance in identifying
housing. This list will be updated�,veekly by CI volunteers.
An inventory can only convey,so much. In addition to the inventory compiled by CDD and PACT, the
findings of a variety of local studies havebeen utilized to add qualitative analysis to our local needs
assessment. This assessment illustrates that the needs of the homeless extend beyond any federal initiative,
But the infusion of HUDfunding will close the gap between what is and what is needed,
For each category of service,an assessment of tate level of existing services will be summarized,followed
by an assessment of strategies to address this need.
Page 13
-Z� M I b132
hdonnafigm and Figerra
In the Consolidated Flan,no less than 19 agencies are listed as.providing, Information and Referral
services, While this might suggest that tl-'i6c-o-unty has an extensive network of I&P service,the actuality is'
that so many 1&IR sources result in confusion and duplication ratIer than accessible service, D-Jo I&P,service is
toll-free. Only one agency, Crisis Intervention(CI),offers 24 hour,seven d ay a week information and referral.
There is aclear need for 6edevelopment of one, toll-free, universAy acknowledged MOX service that
provides comprehensive accurate,information 24 hours a day. 3
For over ayear. Clhas been develc.oirig just such as-ystem under the au p.ices of the AHHSP and in
collaboration with aconsortium of private providers.ffie 142a&h S`rvices Department,re-presentativesfron-t
the telecorarnunications industry i -tation systerns consultants, the.United Wiy,and the Office of
-, ,inforn
Education. This collaborative group,known as the Contra Costa Count/ Information and Referral N.-lanao'aerrient
Sistern (I.-CCIR NE)I-L as.researched computer systerru-::, one sys'ercts,orgo7xiizational structures,and potential
sources of ortgang revenues and has developed a plan for intro-iucinS a state-of-d-te-art Inforination and
Referral system. As aresult of C'Fs use of trained volunteers, this system would be accessible 24 hours a dz�y.
This'"Ictline would also provide the homeless vfith free voice mail connected to an 800 number and would also
serve to-intake individuals seeking abed in tite emergency shelters, 'Fl-Lis service would also support dispatch
of the Health Services Outreach Team,a proposed SHIP project,
Oatmach,hAake and Asswqnml
Both formal and informal outreach activities prornotin.,health, housing and vocational services are
conducted throughout the Count,,, Attl-tecoreofCjLii-tt--aCt)stesCoiiriy,soiiti-eachand ass6ssme.nteffort i-c.tl-te
mcbi'e Health Care for the Homeless Prograrn,comprised d a team of public health nurses,nurse
practitioners,mental health and substance abuse specialists that travels throughout the County to 21 sites,
Anotlaer outreach activity is conducted by a cM'ition of providers operating PEACH Plus,an SHF-funded
program. The "Housing Club"is a series of work-shops designed to provide homeless consumers with the
information, resources,and skills they need to access housing, A similar information sharing prograrn
describing vocational opportunities and providing vocational assessments has been established by Rubicon
3 The A HHS P Homeless Conference ranked tris as the single Greatest service need in the County.
Page 14
Lj Iu/3"
Programs, apartner in REACH Plus, Both these workshops are scheduled at shelters,drop-in centers,and
other sites accessible to the homeless. The AHHSP publishes three regional greet Sheets, vlth information
and resource listings available in English and Spanish,and the S4 FETf NET, a quarterly bulletin with more
detailed infLx-iriatioi-icurt hornelessseiirice,,:,. I-)fli are broadly available.
Lastly, Cl operate,,:a 24 hour hotline (,see above)for information and referral and last year distributed
1,300 emergency rnotel vouchers for individuals and families in immediate crisis.Another I&F.hotline is
operated by the United Way,hov7ever, this line has very lirnited hours that do not include weekends oi-
evenings and I riforra atior.is only updated eves-y year or two.
In addition to these formal, cou nty-,,,,7id e outreach efforts;there are n umera-i s other regional corniT.unity-
based activities that serve as de facto outreach. a-op4n such as ',iunt Vincent de Paul provide invaluable
information and referral,, Phoenix Programs'three.multiservice.centers offer shcr vers..laundry,telephone, and
mail services(lin-Lited to raerital health clients only), Lcia-mcs and F,_::he,:;serves over meads 40,000 meals
art rtually in central and East(2-i-xi rtty.- and GRIP serves over 55,000 in West County, Finally, numerous faith and
volunteer-base efforts, have been identified through tl-te effort to develop a comprehensive inventory of
supportive seMcec, Individually,each of these activities ma;+ hive a limited capacity,but collectively
they represent a ver j-signific ant resource.to ffi e contil nu urn:for the roost port wi thou t the benefit ofP ublic
funding.
The above described outreach activities have created portals t1irough which the homeless can enter the
continuum,but-do not really include recruitment efforts to bring the homeless into that continuum, Thus, a
critical gap exists, for conducting,more targeted outreach and recruitment that is combined with a formal
assessment and intake d-tat leads to entry into the cort.tinu um of care, There is a very limited capacity to
conduct outreach to homeless encampments that spring,up cnerni_4-tt under bridges. 'Mese encampments often
`house' 10-20 individuals,generally in very unhealthy and hazzardaus locations.. Women and children are
especially vulnerable in 6-tese encampments and a coordinated effort to find shelter and housing options for-
these
orthese individuals is critical. This effort is made more difficult because man-;,-of those who live in the
encec-ripments refuse to utilize the emergency shelters even for a few days while a service and housing plan is
developed.
_%2MffA1r-M%V4!7%V.&affamm
71-te strategy that best addresses this need is the creation of mobile outreach arid assessment Learns that
have the capacity to conduct extensive assessments,complete an intake into the appropriate program(s);and
Page 15
assist the consumer with the development of acase plart. For marty of the most difficult to reach among the
homeless it is,critical to establish continuit.-y frora initial contact to int—eg
,ration into a treatment plan, Tills is
especially important for the m en tally ill.
A racti i le outreach tearn would also be A6 to address tI-t e needs of encamped individuals who refuse to
utilize the shelter system.
contact with homeless consumers while conducting ongoing dialogue and establishing a relationship of trust.
The Heald-) Ebrvic L--, D-.p.arti-nent has developed art SHE proposaladdressing-jjLgap
At the same time the creation of a more developed infrastructure of regional multiservice centers will
provide the homeless vAth sites at which they can comfortably congregate,shover,do laundry,receive mail,
infoirriation and referral services and phone messages, access independent living and other
educational/vocational services,develop social relationships that can lead to shared housing,and peer
support and generally become involved in prosocial,constructive.and therapeutic activities. GRIP/Rubicon,
FhoenixPrograms and partners,and Departnent of Corms.urtityr Services.Have each ee.-,7elo ed SHP propcxals
addressing-this gap
RMff9—MLT-%dt—E1r SY—Stem
There area deceptively large number of emergency shelter beds available. While the total number of beds
in the Count/is approximately 490, these include man),programs with significant restrictions and eligibility
requirements that include: religious requirements(224 beds),mental disability (20beds),victims of domestic
violence(24 beds) and detox facilities (45 be.1s), Accessibility is also an issue because of the size of the m.inty
and the poor public transportation system
'lie two publically-funded shelters that operate without such criteria,have a combined capacity of only
116 beds(156 in winter months), While these shelters offer comprehensive assessments and case management
services,many participants must await entry into treatment programs because fev,7 transitional or permanent
housing openings exist,resulting in lengthy shelter stays. This prevents.others from entering quickly or
moving through the shelter and m to more permanent,structured,and service-enriched settings. Receipt of two
Shelter Plus Care awards('92 and '93)and two Supportive Housing Program. grants should reduce the impact of
this bottleneck although slots for these programs will disappear quickly.
Families in central Contra Costa County have virtually no shelter resources and families in East(Love a
Child Ministry)and West Contra Costa County(Richmond rescue Mission)have only faith-based shelters
Page 16
that require that couples be rnan-ied or be housed separately. Despite these restrictions these faith-based
programs provide heroic service with virtually no public funding, Another grassroots,church-driven
initiative that addresses the shelterneeds of families is the Greater-Richmond Interfaith Project(GRIP)
Family Winter Relief Program which coordinates the use of 12-25 churches as temporary shelters with 30 beds
during winter months.
Another critical gap in the continuum of care is that individuals under the influence can only obtain
shelter through the 45 beds available for detox services, Since die detox programs are always full,dais
provides homeless individuals under the influence witl-i no recourse for shelter and no real portal of entry to
the continuum, With a seven day a week, 34 hour a day, drop in reception program,it would be pcssible for
t1iese individuals to get sheltered,meet with reception staff and perhaps over time develop a greater interest
in od-,er services, As trust develops these irAviduals might enter a reccr.7ery prograrn and get the treatment
they need, Without such a reception area, these individua's never escape the culture of the encampments,
This is an especially difficult prc Aem for tlta=.e individuals,who are dually diag.-p-Losed, Phoenix Programs
operates just such a "safe haven-like"-reception program for the chron'cally mentally ill,but it does not have
capacity to serve individuals under the influence,
Finally, since the closure of Sherman Hai se Liue to state and county,funding cutbacks, there are no
emergency she!ter beds of any kind serving runavaayyou th.
ArJ
While emergency shelter services are ineligible for die SHP.one strategy that could mitigate the
shortage of shelter beds for families is the replication of die GRIP Family Winter Relief program in East and
Central County. The Department of Community- Services and Saint Vincent de Paul are collaborating with
Contra Costa Interfaith Coalition (CC[Q in die development of aproposal that, among other activities,will
provide shelter and a multiservice center for families in Central County,
A second strategy for addressing the shortage of shelter beds will be possible once Shelter Plus Care(S+C)
is operative in May, This will provide case managers and clients with more housing options for S+C eligible
consumers. Unfortunately,the implementation of S+C ha_.been delayed by the transition of homeless program
oversight from the Housing Authority to the Health Services apa--tment, While this delay has been a
constant source of frustration for advocates,private agencies and county administrators, the creation of this
infrastructure of coordination between the Health :cervices DepaitmEnt and the Housing Authority will result
in a far more effective S+C program,
Page 17
Tl-Le needs of those individuals who are most difficult to ser7e, those entrenched in enceunpments,self
medicating,and mistrustful of the system trying to help ttern will benefit from the expanded capacity of the
Phoenix Program's,the GRIP/Rubicon and Departrnent of Cornmuniry Services'CCIC multiservice centers,
While only Phoenix Programs offers.overnijlit-I-telter, at least during daylight licnirs, individuals will be
able to access social activities., information, food, and other-services that might lure them from die
encampments and develop a plan for independent living,
The PA CT and HA C have also discusseLi the critical need fcr a strong youth component to the continuum of
care. Unfortunately, to date no credible coalition of youth-serving agencies,has been developed,
Trmwwwn l Hosing
Analysis of the need for transitional housing services requires segmenting die inventory of programs by
population served, There is also some difficulty in assessing the actual number of beds available to homeless
individuals and families because many of transitional housing programs do not exclusively serve the homeless,
This is especially true for the transitional housing programs for individuals ::it1, eidger substance abuse or-
mental health problems,
Fam lkm A4ost of the existing transitional housing programs for the homeless target farnilies(cab project
based bads), An additional 56 beds are available for families victimized by domestic violence. .In addition to
these resources,the County has 80 units of tenant-based supportive housing and 172 units of 4telter Plus Care
rental assistance both of which can accept families. While there are arange of options for transitional
housing for families in every region of the county,eacl-.of these programs is continually f ull . As a reL ult of
coordination with the Housing Authority,graduates frond the family transitional shelters and emergency
shelters have been able to access 127 fiction 8 certificates and vouchers,
Ibmesflc Vioknae Victims:Battered Women's Alternative- (BW A),a nationally recognized program,is
the only agency in our County providing supportive housing and services for homeless battered women and
their children. Presently, BWA has 24 enlergeny shelter beds for worsen and.children and 39 beds in its
transitional housing center. In 1991204 battered women and 196 children were referred to community horses
when the emergency shelter was full. In .1994, 548 vaornen were turned away for lack of transitional housing,
The need for transitional housing beds for homeless battered women has also been recognized in the 1991
Homeless Prevertion Plan and in the Cculsolidated Plan.
Page 18
Mentaily Ill: There are only 9 transitional housing beds in the entire county targeting e)x:lusively
homeless nientally ill adults, Rubicon Prograrns' Sart Joaquin I. Numanaslorals adieshamindicaledthil
the single gn' t need in the entire aontiinuum cf cam its for hmdtional hoasmg linked to sappartiQ+e saviaes
fcr the mentallydisabled: A It.'-rttal Health Commission's study conducted last year substantiated this need.
A recent study funded by the County Corr munig7 S-ibstance Abuse.cervices indicated art urgent need for mental
health providers to take a lead role in developing collaborative efforts to address the needs of the dually
diagnosed. The A HHSP Homeless CLnlference identified horneless mentally ill and dually diagnosed
individuals as the population in greatest need of servicez. Lc-.t year,the PA CT conducted a series of planning
meetings that also resulted in identifying this population as the niost in need.
Dually Mjposed: While there are a wide range of transitional housing programs linked to drug
treatment programs, there are very felt'that target the needs of the dually diagnosed. There are only 17beds
in the count, (Nevin House: 12 and Qean and Sober House: 5)for the dually;-diagnosed and none of them target
the homeless.
In addition to tie above tr insition i housing rescyirces, Contra Costa Coy-inty has three.project based
trans tional housing progr�utis: Nbuntain V ier�ba (32),Sart Joaquin 11(16), and Project Independence(25 beds,
three site=.) and REACH P'us a S-ipportive Housing Program providing rental assistance and supportive
services for 30 individuals or far-nil es per year, The REACH Plus program limit--;rental assistance to one year-
and is therefore most appropriate for individuals and families who can develop a reliable income stream
wid-tin one year,generally-individuals with perr-nanent disabilities that have not been approved by SSI or
individuals who are close to`job-ready.' These three programs Help to fill gaps in the continuum,but do not
address the needs of either the most severely mentally ill/dually diagnosed who require carefully tailored,
intensively structured service cruxes such as those being proposed below,or the needs of battered women who
may not be eligible for Sielter Plug, Care or who generally require longer than 12 months to reconstruct their
shattered lives and attain self-sufficiency.
Trmsitionai jmgLng ftw PecTle with MA DS
The continuum of care is sorely-in steed of increased capacity=for-housing people with A IDS Tlie Cty of
Richmond,using National Coramissicni on A IDSprojections,estimates that between 110 and 160 of its residents
are HIV+and either homeless or at extreme risk of homelessness. Using there same projections for the
remaining Urban County there would be an additional 375-566 HNI+individuals who are either homeless or
at risk of homelessness, Cuueatlytlmreaoenctrdnslioaalhnvsngpi,ogFamsand an*nimeunits ofaffordable
Page 19
i c.cu rive LJ e 11,3e
-p—c—un—M-Mt-howin.—that- We 6K--unique mix C(sesvices hou"des spite-with A[
The initiation of S+Cwill certainly help address this need,but there are only 172 vouchers and they target
all three of the eligible disabilities.
Last year, the PA CT developed Nl]ertt,�-d Healtl.A CCESS an SHP proposal targeting mentally disabled
individuals that missed being funded byone point. Involving a partnership of six private agencies and the
N16ntal Health Division of the Health Services Dapartni eri t the program incorp oratess case man agerrient,
m on Ey management vocational assessni ents,benefits advocacy,outpatient d etox and treatment,and a strong
peer component that utilizes meatal health cortsuniers as paid peer counselors. 'nie program is linked to three
pre-e>isting,but under staffed multiservice centers,one located in each region of the county. Inaddition,titre
Community Substance. Abuse. Services Division of the Health Services Department(CSAS)has developed art
S c
H P proposal to increase di e capacity-of Discovery House a residential program targeting the homeless
dually diagnosed.
Departraent of Conimu nity Sr..,ices,in collaboration th Saint Vincent de Paul and two regional church
coalitions has developed art innovative and extraordinarily cost effective emergency-transitional housing
continuum linked to an array of coordinated supportive._ervices that include money nianagerrient, vocational
asse--snients,training and placement,and ajL-k-)development c=ponertt. 1\/bdelled after GRIF'shighly
successful Family Winter Relief prograrn,the Department of Community Services with Saint'Vincent de Paul
will provide families with a seamless continuum of structured supportive housing and case planning that can
bring farailies,from the streets to self sufficiency.
Battered Wornert's Alternatives is also in the midst of a capital campaign to expand its transitional
program for victims of domestic violence to serve an additional 10 women and their.18 children.
Catholic Charities operates a 5 bed permanent supportive housing program for people with HNT/AIDS,
Catholic Charities is seeking SH P funds to increase supportive services at A Mk RA House.
Another strategy for creating more housing for horn,el ess individuals with H NV AIDS is Rub icon's Point
Richmond apartments which would result in the acquisition of a 29 unit SR 0 p roviding permanent supportive
housing for homeless.ind ivil.duals,including;asetasi de of 10 units for people witli A I DS.
S1i11 V I five sem
The analysis of supportive services inventory is organized by service category,below.
Page 20
_'12:G t1m !122/32
CAm Mawfl=ent
When conducting an inventory, thequantifie?, totals of case managers may significantly over-represent the
real capacity of the sy=stem to deliver the kind of intensive case manageraent servicers required by most
hornelessindividuals, While not easily translated tosirapile matrices summarizing aservice inventory(as:
above),the far more detailed information being obtained by FACT about the precise nature of each agency's
case management program will prove invaluable in planning and in providing 10,services.
One limitation of the case m anagei-a en t capacity of the continuu m is that while there are many case
management agencies,most are always operating at capacity. If aconsumer enters the continuum through one
of these agencies or through the publically funded,case managed shelters,then he/she will automatically
receive case management services,v,Thiie sorneone who enters the system through the hotline,anon-case
management agency,or arnore grassroots,commurtitybas:ed activity,will riot have case managgerrient. Afree
standing case man gemerittearsistl-tei-e.foi-eaci-itjceJrteed
The Health Service---. Department is proposing the development of a supportive-,services only SHP proposal
that,,;Mll create an outreach ernergency response,assessment and case management tears linked to the Crisis
Intervention I&R-system and to the emergency shelters,detoxpro5rarris,and the GRIP, Department of
Community cervices,and Phoenix R-ogrartiriultiser7icecenters. This will enable individuals in crisis to
access one of the portals of entry into the continuum.
Consistently horrLelessirdividi.iilsindiccte tatajobistheir-
single greatest need. Until recently,
Employment Development Department and the Private Industry Council(PIC.)generally hat-T not proven
effective in working with homeless peoplebecause performance standards are too high and because homeless
individuals require supportive services not ordinarily funded through these programs. Over the last several
years,the PIC has utilized a 517.discretionary fund that is exempt from these p erforrn ance standards to
allocate funds to Rubicon Programs and Saint Vincent de Paul to develop innovative job training, assessment
and 0 development initiatives targeting the homeless. Even with these initiatives,since estimates indicate
that as man),as 70%of the homeless require training to maintain a minimum wage job,there is a critical gap
in the continuum's capacity to provide training and placement in employment that pays enough to sustain
Page 21
housing in this cou nty, 90 mce impartan it is Quid to 100d b do dap new jobs suiteb
farthis pagnlatim. Among the vocational services available:
• Rubicon Programs: vocational asressrnent,,slnelter work,ernplo meat training,and permanent employrnent
(bakery and lar-id scaping) for 80 people and 40 trainees ,air":d -nationally recogrnlZed for it^jab creation
activities.
• faint Vincent de Paul: supportive eruployn-tent and employee leasing agency for-homeless,individuals in
East County;
• Family and Communilbi Pbrvices: in borne care provider treining for individuals with disabilities,;
• Independent Living Resources: in home care pr;n=ider training for homeless individuals (through REACH
Plus);
• Phoenix Enterprises landscaping and rnainterance opportunities.
In a community with such high housing costs and a continuing decrease in General Assistance,there is a
critical need for new approaches to employment training, placer-tent andjob creation.
20 "Rffz ,&
Both Rubicon Programs and tine D--partrnent cif Community Services have developed initiativec that
expand upon their previous experience in this area, Rubicon plans io expand its job creation efforts:
commercial panting,tree planting and greenhouse program resulting in an increase of 60 slots of jab training
programs in West County. faint Vincent de Paul,in collaboration with PIC,is developing vocational
assessment,training arid placement targeting homeless farniiies and youth for East and Central Count[,
Mmital Health CnnM"'O
As aconsequence of limited and shrinking resources,the County has restricted the potential service
population to those with the most severe imp aftTnents aid has reduced support for community-based
prevention,early intervention,and support services. "171-tis Inas resulted in a disproportionate reliance upon
costly,restrictive institution�baed programs and aseverely over-matched community capacity to serve the
mentally disabled. Over the past two years, County Nlental Health has attempted to address this imbalance,
however,reduced reliance upon institutions places increasing pressure on community based programs to support
these individuals, The Mental Health Commission reports,an increase in the number of mentally disabled
homeless and local estimates project that 25-50%of the homeless are mentally disabled,
County'Nbntal Health operates four day rehabilitation programs and one socialization program operated
by clients, There are also County clinics in each region,although nine positions were cut two years ago arid
further serious cuts are anticipated. None of these programs sea-ve exclusively the homeless and there is little
capacity for outreach or follow through with consumers who fail to appear-for treatment, Phoenix Programs
Page 22
i e.r-L)r 11 Je.
operates a 30 day crisis residential program,three mental healtl-t multiservice centers, and a 20 bed shelter
for the mentally disabled, the later'two serving exclusively the hon-teless. Unfortunately, these multiservice
centers are seriously understaffed (only 1.5 case managers for three.sites),resulting in limited access to the
showers,laundry,money rctanac;e.ment,mail,phone,and socialservicest1at are available, Extremely limited
case management services are also available. ht addition, Rubicon Programs Inst.long provided artationally
recognized vocational program serving the mentally ill.
Phoenix Programs,in collaboration u7itl-t six agencies z-utdvAth support from County Mental Health has
developed an innovative program serving the mentally ill and especially targeting the dually diagnosed.
Seedu a!ly diagnosed,below,
SkbstmtwAbuwQb=9etIng
M-Le County's Community 9-ibstance Abuse Se-viceo(CLSL4,9 estimated that 25-40%of the homeless need
substance abuse treatment and service data indicate that laf,.year C,:Mprovided-' treatment services to over
1500 indivi dua's who are horneless, While Contra C)--taCL)ui-tt.- l-,.aL:,.developed ararLSeof innovative
substance abuse treatrnent service:,and v,,hile most serve asignificant number of the homeless, none doso
exclusively. Outpatient and residential treatment services exist in all three regions of the county,although
ervices are not available in every region for all special needs populations.ons. Recently, County Substance Abuse
Services(CSAS)has been collaborating with the It Health division in developing strategies for serving
the dually diagnosed and two residential providers--Discovery House and Bi-Belt have developed
specialized capacities for doing so,
-%atVrAV-MNAWaF-&GMMMMM
%, -ategies for service delivery-relating to substance abuse services are described below under dually
diagnosed.
. Sw&w for*e Duafly Umgmowd
Estimates of the extent of dual diagnosis an-tong the homeless range from 25-5017b, Such a staggering
estimate dwarfs even the most concerted effort to construct arespcnse to the problem. Several strategies are
being developed to address the critical need to create aflexible comprehensive dual diagnosis component to
the continuum of care. 'The Health.Services E.)epvt�rie.rLt,-pLivate-providers,advocates,an ad hoc Co
Page 23
Intal Health Conarnission and consurners agree on one thing, the need for services for the dually diagncred
homeless is the single most critical gap in the county's existing continuum .
This consensus has resulted in severa locAIN: funded initiative designed to create an enduring
infrastructure to address this most pressing gala. Fir::.t,the..creaticn-t of a S+C NIlrtager-nent Te.ar-ri comprised of
staff from the Horsing Authority and Health Services-Mental Health forges a partnership and a framework
to the entire S+Cprograra that encourages dialogue and collaboration between hcn-rsing and service provider=.
The transference of responsibility for coordination of all homeless programs from the Housing Authority to the
Health Servoces Department further underscores this effort to create a far-stronger treatment component to
homeless services, Both of these systemic changes come at a time in which California is in an unprecedented
fiscal crisis that has caused Contra Costa County-to make 20%cuts across the board in non-entitlement
programs.
Another strategy for addressing the pressing needs of the dually diagnosed is Phoenix's Mental Health
A CCESS Project a six agency call iboration that will •-trengthen three regionally based multiservice centers
for the mentally ill and vvill create a raultidiscipliriml transitional housing program comprised of outreach,
money management rental assistance, outpatient detox drug treatrr:ent and aftercare, HIV{AIDSsupport and
a wide variety of peer-designed,peer-delivered support groups and socialization activities. Linked to
Phoenix Program's 20 bed "Safe Haven like" Shelter, the prod am is designed to provide 24 month
transitional shared housing to 116 individuals,
Another local strategy is the relocation and expansion of capacity of Discovery House,apreexisting
residential treatment program, to create an innovative residential treatment transitional housing program
that will fill a gap in the continuum. Even the most modest projections indicate that there are likely over
1,000 dually diagnosed homeless on the streets of Contra Costa County, There are only 9 beds dedicated to this
population. Discovery House and the Phoenix ACCESS Collaborative have agreed to collaborate closely to
create a seamless continuum extending from outreach through aftercare and enabling A CCESSclients to enter
residential treatment at Discovery House and for Discovery House to utilize peer counseling and outpatient
support services. This linkage was deemed especially irnport nt by local consumers,
Offia Snppativ+e Saview
In part as a result of the PA CT planning process,many other supportive service providers have been
integrated into the continuum providing invaluable supportive services. Benefit advocacy,legal services,
Page 24
w �
r-noney management, independent living skills training es-e being linked to supportive housing programs in most
of the SHP propo:-als being submitted to HUD, The local coordinated planning proce•s has continually sought
to maximize use of small agencies,such as Hawkins Center(legal services)and Independent Living Resource
(advcxacy and independent living training)into the continuum. Since none of these services can address all
the needs of a homeless individual, the regional integrated clustersystem stern and the development of
multiservice centers facilitates integration of these invaluable services with housing and other-supportive
service efforts.
Permment Aff nddble l mgft fear the Dueled
With lengthy waiting lists for Section 8 certificates and extreme prersure on local government to reduce
spending.it is a formidible challenge to maintain an adequate supply of afford able housing linked to
supportive ser,&ec. Nonetheless a concerted effort on the part'of both the public and private sector has made
considerable progress in meeting that challenge. Two recent developments have helped to address this
challenge; River House is a75 unit SRO serving seniors and the disabled and Kirker Court is a 12 unit
apartment serving the mentally disabled. Other strategies are described below.
Local Housing Authorities I-Lave completed remodeling 51A of its housing stock for handicapped
accessibility. Las Trarnpas,a non profit organization,is acquiring a residence to provide permanent
affordable Housing in a group home setting for four developmentally delayed individuals. The City of San
Ramon is working wid-i a local non-profit in developing 20 uni--of affordable housing to very low income
mentally disabled individuals. Rubicon Programs is currently developing Church Lane Apartments to provide
units of new constriction for extremely love income households, oax of the units will be reserved for individuals
with special needs. Rubicon Programs is also submitting a proposal to purchase and operate as permanent
affordable Housing a 24 unit SRO in Point Richmond. Tl-tis project will be linked to supportive services with
funding sought through HUD s SHP program. The County Predevelcpment Agency is working with a local
citizen's group in Oakley and with Ecumenical Association for Housing to develop 20-24 units of affordable
housing for low income indivudals who are developmentally- delayed,
Page 25
Effnument Affonlable HMMM8
A m easu re of the d ern and for afford ab le,housing is that over 5,000 people are on section 8 waiting lists in
the Urban County and over 8,000 in the Citi of Ric'-mond and both lists have b ee.n closed since.1991, Another
5,000 individuals are on fl-i e v,,aiting list for p ub lically as-sisted h ou-sing units,
NM-
There are a nun-Lb er of non-profit organizations vAho are becoming increasingly involved in the creation of
increasingly
affordable housing. There is also active interest an-tong faith-b ased groups.who want to alleviate the
shortage of affordable housing or;cork with the horneless, Through aprograrct sponsored by the Veteran's
Administration, Sielter, Inc,I-Las become actively involved in purchasing single family hornet that have been
foreclosed and leasing them to homeless families,generally graduates of a family transitional housing
program. Pittsburg Pre-S-hool is developing affordable housing targeting low income seniors. Las Trarripas
has developed numerous permarLeritaffordaIL)Iehousiii!:, prL)jcctsfoi-develoFirientallydisiL)Ied adults, Rubicon
Frograrris is developing apernianent housing SP%C1for individuals who are horneless, marty of v,horn are
challenged by a range of disabilities, To sup plement,the3e efforts all of the local redevelopment agencies
have aggressive programs o protect existing affordable housing stock by investing in various rehabilitation
and preservation programs,
Fcr-ftc&DmmlTm
There are numerous for-profit developers who-leave worked with the members of the Consortium and the
Urban County lurisdictions to produceboth single family and multifamily affordable housing. These
developers have utilized the mortgage revenue-bond and mortgage credit certificate prograrns,as well as funds
from the various redevelopment agencies to assist therm in housing development.
Lender participation in Contra Costa County has included prL*Y.7ision of below market interest rate
construction and permanent loans as well as participation in the County's mortgage revenue bond and mortgage
credit certificate p rograrr,s, The City of Richmond has developed a partnership with local bankers(described
above)designed to create more affordable housing,
Public Hmsdng Ant) zft!w
The Housing Authority of Contra Costa County(HA MC),the City. of San Pablo Housing Authority
Page 26
Gibson&AssOCIOIes
the City of Pittsburg Housing Authority,and the City of Richmond Housing Authority each oversee operations
of affordable housing developments within their jurisdictions.
Local government has been actively-involved in developing strategies for overcoming tl-,ese challenges,
During FY 1993, Contra Costa Co- n-,y and the Cities of Antioch, Concord, Pittsburg,and Walnut Creek
established the Contra Costa HOME Program Consortium for purposes of participation in the HOAGIE
Irtvestrcterlt PaitiLership Ac- Progi-arri. Contra Costa County' 11asbeen designated as.the Lead Jurisdiction for
t1-ie Consortium and is irnplernenting d-te HOME Program through the Community Development Depart-tent.
T1"ce Contra Costa Consortium v...-as approved by HUD in July of 1993 and this Consortium was responsible for
developing a Consolidated Plan d-Lat has alsobeen approved by HUD, The C ty of Richmond is its own
entitlement,and while it collaborates closely vA&L the Count; Consortium,it has developed its own
Consolidated Plan as part of t1-,e HON1E Investment Partnership Act,
�iaLari�gf
During FY 1995. r1te Urbart County will initiate the. folio•.•-•ring activities desi��r"i i to improve the
instititional structure for irriplernentation of affoi-Liable housing activities.in @"ie Urban County,
• During FY 1995, the Community Developraent E—bpar-tment vA11 work with the cities and other relevant
public agencies to establish an informal cooperative network to facilitate affordable housing development
in the Urban County.
• 71-ie County Has,created a county pride Affordable Housing Trust Fund wl-dch will assist in funding
affordable housing projects.
• In addition,the Community Development Department is still working with the Health Services
Department:the Ryan White Council,and appropriate representatives of the other entitlement
jurisdictions in Contra Costa to refine long-term housing needs and strategic` for the Couniy's AIDS and
HIV-positive population.
The County and each city=within t1-te County coordinate their affordable housing development planning
effoils with the state through regular,timely submissions of d-teir General Plan Housing Elements. In
addition, there are several current housing development or rphal-.ilitation projects within the Consortium area
which are jointly sponsored by the County and cities.
Page 27
Da How will Adder mmun ed
Page 28
K Unka,gm with athcr Public-Privatc Hcmcicss Assistmcc
Exhibit I is filled with exarnples and description of how Centra i bsta has sought to integrate various
initiatives into a coordinated continuun-t of care, With the large number of potential funding scurcez available
to homeless programs, it is essential that coordination and linkage occur to rriwdrnize the development of a
coherent, focused, and integrated continuum. Nuunero;s linked initiatives contribute to Contra Cotta County's
capacity to achieve this end:
the creation of the Hornele-s Sarvices N41-1-tagenient Team and its placernent in the Health Services
Department will greatly-facilitate integration of Homeless services with other health,mental health
and substance abuse initiatives,
4 the PA CT and HA C each involve representatives frc-rn the county,cities,and private sector in
collaborative planning designed to maximize resources and coordination among funded programs;
4 the PA CT conducts research into funding source_and disseminates that information broadly throughout all
sectors and serves ar,an information fulcr urn tc-ensure linkages in various initiatives. Since all providers
are aware of funding opportunities and have a rnonthly forurn for conducting integrated planning,
proposals tend to be collaborative, utilize existing resources,and are integrated into the greater continuum,
4 the County Community Development Department ((,DD)is aconsistent and active participant inboth the
PACT and A HHSP planning activities, facilitatng integration of CDBC3 HOPWA,and HOME resairces
into continuum; planning. Just one example of how t-h�s can work: a former crack house in Pittsburg has been
obtained with local HOPGW'A funds, renovated c�Ath Ci-.y and County HOME funds,and is linked to
supportive service; to create a 8 unit permanent housingprograrn operated by two PACT members. Such
partnerships are the rule,not the exceptiort bazause of an exceptionally well coordinated information
system that links agencies,funding sources,end consumer"
Irl the Homeless Program Manager and the Exe-zu�ve Director of the Housing Authority are both extremely
active in the PACTensuring that Housing Authority efforts are linked to private efforts. An exarnple is
that the Housing Authority has utilized limited Section 8 certificates for graduates of emergency and
transitional housing programs to accelerate movement into private housing.
4 foundations support individual efforts of agencies,but are increasingly more interested in funding more
collaborative activities. A core group of foundations,most of whom are members of the Northern
California Grantmakers,Have become more planning partners than mere funding sources. Indeed,meetings
are being scheduled in April and May to develop coordinated plans for targeting their resources to
maximize Iinkages with existing publically funded activities.
€ Contra Costa County has developed formal linkages between its General Assistance Program and the
PACT through its creation of the General_ Assistance Alcohcl and Drug Diversion Services project
(GAA DDS)which provides addicted CA recipients with assessment and treatment services, The
GAA DDS Director has been actively involved in the PA CT planning process,
4 In December, 1994 Contra Costa County was orae of only five California counties designated to work with
the Sate to pilot strategies to integrate funding and programs related to children and families, As this
initiative develops it will afford Contra Costa County the kility to seek and obtain waivers, test
innovative approaches,and explore a variety of integrated funding efforts to improve service integration
forfamilies. The county- .was selected primarily because of its long history of integrated planning efforts,
The list of activities integrating public and private resources could extend for many more pages. Without
question,the strength of Contra Costa County s continuum is the extent to which every facet is linked and
planning and programing are coordinated to ensure that every conceivable resource is utilized,integrated and
focused upon the most critical needs of our homeless community, Most every homeless program utilizes
multiple funding streams and integrates them to create coherent programs. Further,most every agency
Page 29
operates in consort with others,eliminating isolated efforts to serve individuals and creating multifaceted
initiatives involving a variety of providers,
There are gaps;but we. know where they are and have plans to address theirs. The infrastructure is in
place,but lacks the resources to ful y address the reeds of all of our homeless. The infusion of SHP funds will
be immediately integrated into this coordinated contirn- urrt and will address the most pressing needs of the
homeless identified thraugh months of planning that has induded the hcmelem, Contra Costa Cnuniy ismt
submitting dozens of proposals representing the urgent needs of agencies to expand their organizations;it is
submitting highly collaborative and coordinated proposals that hT,7ebeert carefully designed to target the
urgent needs of our homeless.71-tus, HUD funding will have ad ran-Latic and immediate impact.
Cmdusiort
This narrative involved intensive input fi-curt over two dozen representatives from agencies,advocates,and
consumers. It bares our capacities,our opportunities,our errors,and our challenges, While HUD is evaluating
our continuum and the local proposals being submitted that could strengd-ten it,the HAC-PACT Coordinating
Committee and the new Homeless Services Management Team have pledged to move forward,with strategic
planning sessions scheduled and task forces being developed to increase city,business,consumer,and church
involvement in the continuum, 0-rr commitment is to creating and rnaintaining:
• a longterm strategy that ensures a core infras.—L ucture to our continuum;
• maximized use of existing resources,particularly the small grassrc-ots efforts.that could bebetter-utilized
and integrated into public and private efforts;
• a public-private planning structure that facili-ates:
• continuing assessment of needs;
• evaluation of the effectiveness of interventons:
• enhanced interagency and interdisciplinary collaboration;
• expanded involvement of consumers in all of the above.
By integrating the talents,resources and perspectives of the broadest possible spectrum of individuals and
organizations, including the system's fiercest advocates and critics ,only then can we approach the
development of a seamless and self-correcting continuum`hat addresses the manifold needs of au of the
homeless in our community. The coalition of agencies and individuals respor-tsible for the development of this
continuum is committed to this goal. It is not just the health and happiness of the homeless that is at stake;
also at risk is the soul of a nation that has let it happen. Our community has setup the infrastructure to
address the needs of our homeless. We reek your support to help build upon that infrastructure. In doing so,
every facet of our continuum will be strengthened and hundreds of homeless individuals wi11 be afforded an
Page 30
r
opportunity to become housed and self sufficient. As long as there are any individuals living under freeways,
under bridges,and in cars,nothing less than d-tis level of corrimitrnent will do, Join us.
Page 31
ATTACHMENT .4 _
TO: Wendel Brunner
FROM: Pat Pinkston
SUBJECT: Housing Authority Procedure for Repairs and Maintenance
of County Shelters
DATE: April 19, 1995
The Housing Authority of the County of Contra Costa (HACCC) has a
24-hour emergency number (930-3137) for building emergencies and
repairs which require immediate attention during non-business
hours. This number serves the Housing Authority's 14 properties
and is also to be used for the County' s homeless shelter
facilities . ; The answering service at this number will contact a
Housing Authority staff person who can determine appropriate action
and authorize the needed emergency repair services as required.
Policy and procedure guidelines are being developed for routine
repairs at ;each of the County owned shelter facilities during
normal business hours . Work Order Requests for the Brookside
Shelter in Richmond are made to the Acting Housing Manager, Linda
Russo, at the Richmond Housing Office (232-8492) , while repairs at
the Central County Shelter in Concord and the Mt. View House in
Martinez are handled by the Housing Manager, Sharon Jackson., at the
Concord Housing Office (687-8791) during normal business hours.
The Housing Managers will assign emergency repairs during business
hours and routine maintenance to HACCC maintenance staff under
their supervision.
The Development Department Director, Bob McEwan, (372 -7308) is
responsible for facility rehabilitation at each site.
ATF'ACHMEN r 5
•
MEMORANDUM
TO: Wendel Brunner
FROM: Brenda Blasingam OW
DATE: 4/20/95
RE: Resident Food Storage Space
In response to your questions about food storage arrangements at the shelter sites in Concord and
Richmond I have found out the following information.
1. Concord has 1 refrigerator for the use of clients, this unit is cleaned out every 3-4
days. The Resident Council members are in charge of the refrigerator. Resident's food
items can be stored in the unit they are asked to put their name and the date on the bag.
There are three other refrigerators that are locked and used to store left over food from
dinner if needed. There are also four microwaves at the site.
2. Brookside has two refrigerator units for residents. Again Resident Council member
are in charge of the refrigerator but in this case it is my understanding that the unit is
locked and the council member has a key during the day to allow people access. There
is also a microwave at this shelter site.
3. The problem with this set up is there is not a proper cleaning facilities so there may
clearly be a health hazard in preparing food such as raw meat. There is also no guideline
for what kind of foods to be brought in and stored. Sometimes residents are using the
microwave to cook which means that food and food particles may be spattered over the
inside of the microwave as a result of cooking, again leading to a possibly unsanitary
cooking situation. It appears that policies and procedures must be established for food
preparation by residents in the shelter until such time that we have better facilities for the
preparation of food.