REPORT ON HOMELESS CONDITIONS IN PASCO COUNTY 2008
COALITION FOR THE HOMELESS OF PASCO COUNTY SAINT LEO UNIVERSITY PASCO-HERNANDO COMMUNITY COLLEGE PASCO COMMUNITY DEVELOPMENT DIVISION
April 2008
Prepared by Eugene Williams, Project Supervisor and Christina Cazanave, Intern
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Table of Contents
Executive Summary…………………………………………………………... ...................................................... 1 Homeless Conditions in Pasco County How many people are homeless in Pasco County? ............................................................................ 6 What are the reasons for their homelessness? ................................................................................... 8 Additional data sources ...................................................................................................................... 9 Development of Continuum of Care Pasco County Continuum of Care....................................................................................................... 10 Services ............................................................................................................................................. 11 Funding .............................................................................................................................................. 11 Outcomes ........................................................................................................................................... 11 Local Programs and Resources Housing Bed Inventory ....................................................................................................................... 12 Recommendations......................................................................................................................................... 13
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EXECUTIVE SUMMARY
Each year, the Coalition for the Homeless of Pasco County, Inc., (Coalition) submits a report on the number of homeless individuals in the County to the Florida Department of Children and Families. The Pasco County report and data from the other 26 local homeless coalitions is combined and presented to the Governor and legislative leaders of the State of Florida. On January 30, 2008, the Coalition conducted its one-day, enumerated count; and during that week, managed to collect over 800 surveys, which resulted in its estimated number of homeless individuals on any given day. Based on the enumerated count and surveys collected in Pasco County, there are an estimated 4,074 homeless individuals (2,649 adults and 1,425 children) in the County on any given day in 2008. This estimated number did not include the 1,510 individuals and children who are doubled up, nor did it take into account the 250 men and women incarcerated who indicated they do not have a home to go to after their release date. The number of persons sheltered was 1,500 and the number of unsheltered was 2,574. While these numbers appear to be extremely high, it has been consistent since 2005. Since 2005, the County has had an average of 3,551 homeless individuals on any given day. There was a decrease in the homeless number reported in 2007 due to the change in procedures for counting the homeless, rather than a significant decrease in the number of homeless. Last year's count was performed using the survey figures only. This year, we used the enumerated count method, which took into account those persons counted, but not surveyed. Nevertheless, the lack of employment remains the number one reason indicated by persons in the survey as the cause of their homelessness. During 2007, the County completed a housing survey that determined only ten percent of all apartments were vacant and available for rent. The number dropped significantly when trying to distinguish those units considered affordable. Although there are challenges associated with eliminating homelessness in Pasco County, the Coalition and its member service providers have been providing shelter and services to the homeless for over 20 years. Pasco County, however, has not increased its affordable housing units and, therefore, not improved the capacity to move homeless persons from unsheltered status to sheltered status. The Continuum of Care has leveraged a considerable level of funding for services to the homeless population, but has not created the necessary number of units required to house the growing populations of homeless. One of the major difficulties in reducing the number of homeless in the County has been the inability to galvanize the local resources in a planned commitment to eliminate this problem in a ten-year period. Such a plan has been outlined by the U.S. Interagency Council on Homelessness and has been the driving force in developing these ten-year plans for reducing homelessness throughout the country. Over 60 counties and cities have begun this planning initiative and have been successful in reducing its homeless populations by 30-40 percent. Pasco County lacks such a plan, and the Coalition has not completed a Continuum of Care solution for this problem. At the current time, there is no continuity of service between East and West Pasco County. This is due mainly to the lack of east-west transportation and shelters. There are currently only two emergency shelters, which are located on the west side of the County. There are two domestic violence shelters: one on the east side and one on the west side. There is no transitional housing for the homeless leaving emergency shelters which would allow for their adjustment into permanent housing. The only affordable housing available for the homeless is public housing, which can only accommodate ten families per month as vacancies occur. In 2007, only 22 people used the homeless preference qualifier to secure housing.
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There has also been a lack of available funding for Pasco County to deal with its homeless problems. Because of the methods used by the U.S. Department of Housing and Urban Development (HUD) to score applications through its SuperNOFA process, Pasco County has received only funding for one permanent, supportive housing project in the last eight years of the process. The County, which acts as the lead agency for the Coalition and the preparer of the SuperNOFA application, has received the following HUD funding: Year 2001 2002 $ Amount 0.00 Catholic Charities and Permanent Supportive Housing for Disabled Families Program (Bethany House) $1,003,373.00 Benefactor(s)
2003 2004 2005 2006 2007
$ $ $
0.00 0.00 19,950.00 Homeless Management Information System Renewal of Supportive (Bethany House) Housing Program
$ 210,545.00 $ 223,735.00
Renewal of Supportive Housing Program (Bethany House) and Renewal of Homeless Management Information System
According to the HUD debriefings, the Coalition must emphasize housing on its application in order to receive funding in the future. The competitive nature of the HUD application process has continually raised the thresholds for the funding of new projects. In 2006, the threshold was 86 points; in 2007, the threshold was raised to 90.25 points. There were 464 applications that requested funds, of which 449 were awarded funding. All renewal applications are funded regardless of point score. There were 6,266 projects that requested funds. Of those, 5,911 (94 percent of all projects in the competition) received conditional awards. There were 467 new projects and 5,444 renewal projects. The Florida breakdown of awards by grant type is outlined below: Program Supportive Housing New Renewal Shelter Plus Care New Renewal Section 8 SRO—New 2 26 1 979,320.00 9,122,268.00 255,360.00 18 226 $ 5,332,839.00 47,003,593.00 Number of Projects Total Funding
Total 273 $62,693,380.00 In looking at the awards statewide, the following facts need to be considered: Florida's 27 continuums had requested $67,560,133.00 in funding and received $62,693,380.00 (92.8 percent). Statewide, the award level greatly exceeded Florida's pro rata need of $40,253,883.00. -24/7/08
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On a continuum level, 15 of the continuums received awards above their pro rata need level. The remaining 12 were funded below their need level. Twelve continuums received awards equal to or greater than their application request. Fifteen of the continuums received less than their requested funding levels. All of the Shelter Plus Care renewal requests were funded in this award announcement. Awards to support 273 projects in 2007 compared to just 237 projects assisted in the 2006 awards. There were 21 new projects funded this year, compared to 12 new projects in 2006.
In order to improve Pasco County's chances for increased funding, we must produce projects which directly move homeless persons from unsheltered environments to permanent housing. The mission of the Coalition is to initiate, facilitate, and maintain the high level of coordination, community planning, resource development and sharing, and advocacy needed to effectively meet the needs of the homeless population of Pasco County. In order to fulfill this mission, the Coalition will need assistance from all affected by the homeless problem. Homelessness has become an economic problem more than a social problem. It financially affects all aspects of society and requires large levels of funding. The Coalition must engage service providers, businesses, health administrators, law enforcement, employment training institutions, universities and colleges, and, most importantly, people and religious institutions that want to improve the quality of life of homeless persons in Pasco County. Homelessness is a complex issue and contains many sets of circumstances, which require people to make choices between food, shelter, and other basic necessities. Providing jobs which pay a living wage; providing adequate support for those who cannot work; increasing the availability of real, affordable housing; and providing accessibility to affordable health care will begin to bring about an end to homelessness. This report contains the findings of our point-in-time survey and other data gathered during 2007, which covered all aspects of homelessness in the County. The Coalition engaged Pasco-Hernando Community College and Saint Leo University to provide over 50 student volunteers to assist in the surveying of over 75 locations throughout the County. These students of social work were provided two hours of training on how to interview homeless persons, the purpose of the count, safety issues, and the economic effects of homelessness on the County. The results of this one-day, enumerated count; one-week survey; and other data are categorized in the following report.
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HOMELESS CONDITIONS IN PASCO COUNTY, FLORIDA: 2008
In the last seven days of January 2008, the local homeless coalition performed a one-day, point-in-time count of the homeless. This enumerated community count of the homeless is mandated by HUD every two years. Due to the low turn-out and change in the process of the count in 2007, it was decided to plan a different count strategy and execute a new count for 2008. Saint Leo University and the Coalition jointly developed a standard survey tool. mandate also prescribed allowable methods to count the homeless. In addition, the Federal
This year's count was developed using the number of persons observed at known homeless locations and using the survey sampling method. The result of the homeless census in Pasco County exceeded 4,074 in January 2008. The definition used for the count was as follows: An Unsheltered Homeless Person: Sleeping in a place not meant for human habitation, such as parks, sidewalks, abandoned buildings, or on the street. A Sheltered Homeless Person: Resides in an emergency shelter, including temporary emergency shelters only open during severe weather. Survey Analysis The total number of estimated persons believed to be homeless on the day of the count is as follows: Sheltered Unsheltered Total Adults Children Total 1,500 2,574 4,074 2,649 1,425 4,074
Doubled up Pasco County Jail
1,510 (per the District School Board of Pasco County). Students, children, and adults—not included in homeless total. 250 (per the Pasco County Sheriff's Office). To be released within the next 6 months—not included in homeless total.
There are talks underway by the State to have the doubled-up category included in the definition of homeless. The information on the characteristics of the Pasco County homeless population was captured from interviews conducted as part of the January 2008 point-in-time counts. Not everyone counted agreed to be interviewed; therefore, the data reported in this section reflects the number calculated from the universe of 4,074 persons.
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Homeless Population Number of households with dependent children Number of persons in these households (adults and children) Number of households without dependent children Number of persons in these households Total Persons
Sheltered/Emergency
Unsheltered
Total
427 1,068
731 1,828
1,158 2,896
199 432 1,500
393 746 2,574
592 1,178 4,074
Data Elements Used in the Survey Instrument Sex Male Female Age Under 18 18-60 Over 60 Race/Ethnicity American Indian Asia Black Hawaiian Hispanic White Other Marital Status Single Married Veterans 72% 28% Disabling Conditions Yes No Types of Conditions Physical Developmental Mental health Drug and alcohol HIV/AIDS Other Cause of Homelessness Employment/financial Housing issues Medical/disability Forced relocation Family problems Natural/other disasters Recent immigration Length of Stay in County 1 week or less More than 1 week 1-3 months 3-12 months 1 year or longer Foster Care Child Yes No 12%
53% 47%
35% 60% 5%
4% .001% 11% .001% 13% 65% 7%
27% 2% 18% 31% 3% 19%
79% 21%
40% 13% 10% 9% 25% 1% 2%
Episodes of Homelessness 1 time 47% 2-3 times 23% 4 or more times 30% Length of Current Homelessness 1 week 5% 1 week to 1 month 15% 1-3 months 26% 3-12 months 26% 1 year or longer 28%
1% 3% 5% 8% 83%
6% 94%
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Of the subpopulations of the homeless in Pasco County, our greatest groups in need have been identified as: 1. 2. 3. Chronic homeless men Families with children Substance abuse
Those groups with the least amount of resources available to serve are: 1. 2. Chronic homeless men Families with children
The groups most effectively being served are: 1. 2. Domestic Violence HIV/AIDS
The three top unmet needs in Pasco County are: 1. 2. 3. Employment Permanent, affordable housing Transportation
Additional Data Sources United Way of Pasco County 2-1-1: For the last year, the United Way of Pasco County has been tracking and recording information on requests for assistance from the public through its 2-1-1 telephone call station. The homeless information that was collected from January–December 2007 is summarized below. Type of Assistance Requested 1. 2. 3. 4. 5. Housing—over 462 persons requested assistance in obtaining subsidized housing. Rent, financial aid—over 1,310 requests received. Utility, electric—over 2,937 requests for assistance. Food pantry—over 795 calls for assistance. Shelter assistance: a. Families 138 b. Men 192 c. Women 215 d. Women/children 165
The County and Coalition have increased direct support to the above areas by awarding Florida Challenge Grant and HUD Emergency Shelter Grant funds to agencies for the purpose of providing homelessnessprevention activities. These activities include past due rent, past utility payments, and security deposits. The issue of shelter for families and children is still one of the major emergency housing obstacles which need immediate attention.
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Pasco Housing Authority In July 2007, the Pasco Housing Authority began surveying incoming residents. The following are the results of those surveyed from September 2007-February 2008: 1. 2. 3. 4. 22 persons received homeless preference and were accepted into public housing in Pasco County. 40 persons were living with relatives, family, or friends when they received housing. 17 persons were living in emergency shelters. 33 units of housing are subsidized with HUD HIV/AIDS funds.
There is a tremendous need for affordable housing in the County. The process currently used by Pasco Public Housing is to accept applications over the telephone at a predetermined time, which is usually every quarter year. There are not enough units available to begin a waiting list. The last public application announcement in 2006 resulted in over 1,500 people showing up at the Housing Authority's office.
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DEVELOPMENT OF CONTINUUM OF CARE PLAN
A Continuum of Care Plan is intended to be a "blueprint" for a comprehensive program for prevention of homelessness, emergency shelter, transitional housing supportive services, and ultimately the provision of permanent housing to those who are deemed homeless in accordance with Chapter 420.624, Florida Statutes. This homeless planning effort is used by both the Federal and State governments to allocate and award homeless assistance grants to local providers. The plan covers services provided by local organizations responsible for various aspects of the plan as follows: 1. 2. 3. 4. 5. 6. 7. 8. Outreach, intake, and assessment of individuals and families to identify their needs and link them to local services. Emergency sheltering no longer than 30 days. Transitional housing for up to two years. Support services to develop an action plan for curing the problems of families and individuals. Permanent, supportive housing for individuals and families that can sustain housing with the help of services. Permanent affordable housing. Information exchange between service providers to move individuals and families to self-sufficiency. Resources and collaborations to prevent homelessness.
This planning effort is used to take into account the local needs of homeless persons and designed to develop services and solutions to local problems of homelessness. Each Continuum of Care serves a specific geographical area of one or more counties. There are currently 27 recognized continuum of care planning areas in the State of Florida. The Continuum of Care planning process provides a guideline to local service providers on how to coordinate services through multiple providers. The continuum allows local areas to identify their unmet needs for services, housing, and funding. It also provides the local planning group with the ability to set priorities on ending its homeless issues. Pasco's Continuum of Care Currently, there are over 21 organizations, both County and private not-for-profits, providing services to the homeless population. Those organizations provide services such as: 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. Legal services. Case management. Supportive housing services. Employment services. Homeless prevention services. Mental health services. Foster care and adoption services. Domestic violence shelter. Prescription medication. Substance abuse. Outreach. HIV/AIDS.
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In 2007, these organizations received funding through many sources, such as Federal HUD Emergency Shelter grants ($109,000.00); HUD Supportive Housing Program ($223,735.00); Florida Department of Children and Families, Challenge Grant ($26,000.00); Florida Supportive Housing Initiative Partnership Program ($180,000.00); a Florida Homeless Housing Assistance Grant was received in 2002 to rehabilitate 10 units of permanent housing for disabled families ($1,003,373.00); and a HUD grant from the Housing Opportunities People with Aids Program ($268,000.00). Emergency Shelter Grant (ESG) This year's ESG grant was used to expand emergency measures to bring those who are currently homeless back into the community. ESG was also used to prevent families from going into homelessness by providing past due rental assistance, emergency housing, and utility assistance. Prevention services—480 persons. Domestic violence sheltered—823 women and children. Women and children sheltered—230 women and children.
HUD Supportive Housing Program 10 families were provided permanent housing with supportive services. Homeless Management Information System (HMIS) enrolled five new agencies, which will input and track their services that they provide to homeless persons.
Housing Opportunities for People with AIDS 34 households and 71 persons were served through this program.
Florida Challenge Grant—These funds are used to supplement ESG services. 327 persons were provided with legal services. 182 received emergency shelter services. 33 persons received supportive services while in permanent housing.
Florida Supportive Housing Initiative Partnership The County will allocate a maximum of $300,000.00 of these dollars annually to a member agency of the Coalition to build or rehabilitate a facility providing direct residential services to homeless people in the County.
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LOCAL PROGRAMS AND RESOURCES
The Continuum of Care is the plan and process for local homeless services. The local continuum's data and statistics on available resources advise the Federal, State, and local governments on the community's need for resources. The plan also assists as a tool to determine the unmet needs of the community. In 2007, Pasco County reported the inventory of beds to serve the homeless in its application to HUD. 2007 Continuum of Care Housing Bed Inventory Year-Round Family Beds 62 0 30
Family Units Emergency Shelters 20 Transitional 0 Permanent 10
Individual Beds 112 0 0
Total 174 0 30
The inventory of homeless housing beds has not risen since the 2005 submission of the SuperNOFA. In fact, the inventory has decreased. We have lost beds as a result of programs no longer housing this population. In 2005, the number of year-round beds was 362. In 2006, the number of year-round beds was 301. This creates another dilemma: as our homeless population increases and our bed inventory decreases, how will we meet the challenges we face in 2008? The County has been outreaching to organizations to provide programs with emphasis on housing to increase our inventory. In the 2007 HUD SuperNOFA submission, Pasco County requested funding in the amount of $1,493,366.00 for two transitional housing programs, renewal of permanent supportive housing, and HMIS programs. Those two programs would have provided the County with 31 additional beds. Pasco County received no new program funding for Fiscal Year 2007-08. Funding was renewed for the supportive services of the ten family units and also included renewal funding for the HMIS. The results of the survey indicated the number one need in the County remains emergency shelters for chronically homeless individuals and families. Also, the need for transitional housing with supportive services is required to better equip individuals and families who have experienced homelessness to better succeed in permanent housing.
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RECOMMENDATIONS
1.
Pasco County should develop a ten-year strategic plan to eliminate homelessness in conjunction with the Coalition, business leaders, religious institutions, law enforcement, courts, and health institutions, and encourage the Pasco County Coalition to advocate for Federal and State support for its programs. This County-wide task force could review the current status of homelessness in Pasco County and develop recommendations. Develop permanent, supportive housing units which are affordable for low income. Create additional County-wide rental assistance programs in addition to the Section 8 Program currently in effect. Develop two (east and west) multiservice centers for homeless assistance. Adopt a housing first model with supportive services.
―The methodology is premised on the belief that vulnerable and at-risk homeless families are more responsive to interventions and social services support after they are in their own housing, rather than while living in temporary/transitional facilities or housing programs.‖ , Beyond Shelter, Inc La County
2. 3.
4. 5.
6. 7. 8. 9. 10. 11. 12.
Evaluate the need for transitional housing. Create scatter-site, emergency shelter units for families with children. Review and improve emergency assistance for single men and women. Increase the number of affordable housing units. Increase funding for homeless prevention activities. Coordinate efforts to address youth aging out of foster care. Develop a coordinated effort with the Sheriff's Office to address prisoner re-entry into the community.
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Left Blank Intentionally
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