U.S. Department of Justice 

Office of Justice Programs 

Community Capacity Development Office 
U.S. Department of Justice

Office of Justice Programs 

810 Seventh Street NW. 

Washington, DC 20531 

John Ashcroft 

Attorney General 

Deborah J. Daniels 

Assistant Attorney General 

Office of Justice Programs 

Home Page 

www.ojp.usdoj.gov 

Community Capacity Development Office 

Office of Weed and Seed 

Home Page 

www.ojp.usdoj.gov/ccdo 

NCJ 203374 

May 2004 

Office of Justice Programs 

Partnerships for Safer Communities 

www.ojp.usdoj.gov 
i 

Guide for Developing Housing for Ex-Offenders 

Preface . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .iii 

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3 

Stakeholders . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7 

Funding Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .9 

Management Capacity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13 

Checklist . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15 

. . . . . .17 

. . . . .21 

Notes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .27 

Contents 

Population To Be Served

Type of Housing

Case Study: Harriet’s House, Raleigh, North Carolina

Case Study: The Fortune Society, New York, New York
iii 

Guide for Developing Housing for Ex-Offenders 

In response to a need expressed by those throughout the offender 

Department of Justice, organized a focus group to examine the issues 

related to developing a guide for providing housing for ex-offenders. 

Represented in the group were people with a wide range of experience and commitment. The group indicated a willingness to look at 

innovative approaches, collaborative partnerships, and strategic plans 

ing housing for ex-offenders requires developing new models. In 

also pursuing new directions. 

As anyone who has attempted to design and develop a major program 

such as this can attest, implementation is much more than simply 

identifying a group of stakeholders and selecting the program comested groups by presenting a step-by-step approach for developing 

1 It is based on suggestions from people 

many paths that lead to successful operations. Some of the important 

variables in this equation are: 

■ 

■ The type of housing to be provided. 

■ Stakeholders to be included in each phase. 

■ 

■ Management capacity for the program. 

Preface 

reentry community and those who represent them, Cheri Nolan, 

Deputy Assistant Attorney General, Office of Justice Programs, U.S. 

for moving this initiative forward. The scale of the challenge of providresponse to the magnitude of the task, the focus group’s discussions 

centered around not only exploring past research and experience but 

ponents to be applied. This guide is intended as a tool to help interhousing for ex-offenders.

experienced in working with this and similar populations. There is 

not simply one best way to accomplish this task, rather there may be 

The specific segment of the population to be served. 

Source and availability of funds. 
1 

Guide for Developing Housing for Ex-Offenders 

This decision will be determined by several factors that should be 

carefully investigated. 

Housing Needs 

Determine the greatest housing need based on the best available inforinformation, available from correction departments, parole offices, 

uled to be released and will be a valuable tool in planning the focus 

Key Stakeholders 

It is important to understand the current situation in your community 

so that you can develop a coordinated strategy for collaborating with 

providers and to develop a coordinated approach that will leverage 

can often be avoided by strategic planning and developing collaborative relationships. 

mation about the prisoners expected to return to the community. This 

and other official sources, will provide specific data on people schedof your program. 

Available Housing Programs 

Identify housing programs already in your area that serve ex-offenders. 

Careful research will provide vital information about programs currently 

in place: whom they serve, who operates them, the number of existing slots, and the types of collateral support services available. 

programs currently operating. To avoid competition with existing 

the local resources, you should initiate contact and full discussion 

early in the process. Competition for funds and other limited resources 

Population To Be Served 
3 

Guide for Developing Housing for Ex-Offenders 

The first step in this component is to define your plans by deciding 

facilities, or a combination of these. 

The information gathered in the planning phase that deals with the 

characteristics of the population and the existing programs is an 

has always presented challenges. 

The rate at which prisoners are being released now will only exacerbate the housing problem. In the foreseeable future there will be a 

major gap between the need for housing for ex-offenders and the 

facilities available to respond to the demand; therefore, it is especially 

In configuring your project and its size, there are several options for 

you to consider: 

■ 

and the U.S. Department of Housing and Urban Development 

(HUD), private and nonprofit developers, bankers, and corporate 

executives. 

■ Rehabilitating abandoned housing. 

■ Expanding existing local housing programs. 

■ Participating in consolidated planning strategies for affordable housing and homelessness (see ). 

Public Housing 

The returning ex-offender may have lived in public housing before 

going to prison and may have family still living there. In this case the 

choice may be to return to public housing, but making these arrangements may be prohibited by local policies. 

whether your focus will be on temporary, intermediate, or long-term 

important step in this process. Housing for hard-to-serve populations 

important to make good objective decisions at every step in the process. 

Working with local service providers, the public housing authority 

www.hud.gov

Type of Housing 
4 

Weed & Seed 

The local public housing authority may have determining ownership of the property, taxes 

vacant units and/or vouchers available; however, due, and any liens outstanding. It can also assist 

they may also have policies in place that prevent in the condemnation or forfeiture process if that 

ex-offenders from living in their units. Negotiation is an appropriate option. Some departments of 

at the local level will probably be the most effec- city and county governments that might be able 

tive method of addressing issues with the housing to provide assistance are: 

authority. Although HUD has certain jurisdictional 

responsibility relative to housing authorities, the ■ Mayor’s office. 

local authorities set their own policies on matters ■ City manager’s office. 

such as resident selection. ■ County executive’s office. 

In researching these issues with both HUD and ■ Economic development department. some local public housing authorities, it is appar­


ent that the real decisionmaking power is at the ■ Code enforcement office.


local level with the local public housing authority.
 ■ Tax collection department. Policies vary greatly throughout the country from 

one locale to another. ■ City/county attorney. 

■ Housing and community development 

Abandoned Property department. 

If one of your goals is to rehabilitate abandoned Individual communities may have other special-


housing, you will also have the opportunity to be ized offices that can offer assistance.


a part of revitalizing the community as part of


the process. The multiple components of this Often, abandoned property already belongs to


kind of project can make it an especially reward- the city and can be obtained from the city with


ing experience. It can not only supply housing little or no investment, as it is in the best interest


and be a factor in neighborhood restoration, but of not only the immediate neighborhood but the


it can also provide an opportunity for skills train- entire community to be rid of boarded-up prop­


ing and future employment for ex-offenders. erties. The city may even be willing to be a part-


Putting the various pieces together for this type ner in the project if it can be shown that its


of project will certainly present additional challenges involvement will provide a positive return to the


because more connections must be established. local government.


However, these connections can add significant


value to the project.	 Skills-Training Component of the 

Abandoned Property Model Program 

Obtaining the abandoned property can sometimes A distinct advantage to a program that retrieves be a long process requiring extensive research: first abandoned property is the opportunity that it to determine ownership and then to acquire the affords to employ the ex-offenders directly in the property. Local government can be helpful in 
Guide for Developing Housing for Ex-Offenders 

program. They can be major players in the program through a well-designed training program. 

A training program that helps participants develop 

construction and maintenance skills accomplishes 

two goals: (1) converting abandoned property 

into much-needed housing for the ex-offenders 

and (2) teaching ex-offenders basic skills that will 

help them find employment. The construction 

industry is one of the most willing segments of 

the economy to hire ex-offenders.

Funding and supervision for the training program 

may be available through the local Workforce 

Development Council. These councils operate in 

every locality throughout the country. They receive 

Federal funds for these programs to help people 

gain marketable skills that lead to employment 

and self-sufficiency. These funds originate in the 

U.S. Department of Labor, go through each State 

government, and then to the local councils. 

They can be helpful in a number of ways with 

training programs. 

Don’t overlook vocational and technical schools 

and labor unions in your area. They can help 

you design a curriculum and identify instructors. 

Labor unions, especially through their apprenticeship programs, may be an excellent partner in 

your efforts to develop a skills-training program. 

Other sources, unique to your community, may 

be of assistance with developing a training program. These groups will be important partners 

to identify. 

Restoring abandoned property adds another 

dimension to your housing program, but as was 

stated earlier, it can produce extra benefits. If you 

are willing to extend your program in this direction, you can expect very positive returns. 

Expansion of Existing Programs 

Regardless of the type of housing program you 

are developing, you will want to explore how it 

will complement existing programs in your area. 

You may decide to merely expand the types of 

programs that are currently operating, or you 

may want to develop a demonstration project to 

serve the ex-offender population at another step 

in its reentry. 

This decision should be based on information 

about the returning population and the projected 

unmet needs. Always keep in mind the goal of 

presenting a continuum of service from the time 

the ex-offender first arrives in the community 

needing immediate housing through permanent 

stable housing for the long term. 

Permanent housing may mean broadening your 

scope to include the needs of families and children 

of the ex-offender. Providing the opportunity to 

reunite families in decent housing can be an 

important way to help the ex-offender settle 

back into the community as a contributing 

member. 

5 
7 

Guide for Developing Housing for Ex-Offenders 

greatly from one location to another and with the type of housing 

program you are developing. 

Some of the stakeholders to be considered for inclusion are: 

■ 

■ Community organizations. 

■ Faith-based groups. 

■ Foundations. 

■ 

■ Continuum of Care contacts. 

■ Community development organizations. 

■ Private/public developers. 

■ 

■ Businesses. 

■ Bankers and corporate executives. 

■ Ex-offenders. 

■ Community residents. 

■ 

■ 

tribution to your program, although you may not need each of them 

and there may be others that you will want to include. 

Stakeholders 

The list of stakeholders will probably be quite long and may vary 

Social service agencies. 

Public housing agency. 

Workforce development agency. 

Health and mental health services (including public clinics). 

Community anticrime coalitions (e.g., Weed and Seed sites). 

Every group in this list could be expected to make an important con­
8 

Weed & Seed 

Involvement of the Neighbors	 succeeding. The optimum goal is to have them 

offer suggestions for what needs to be done and One of the most challenging problems that you how they are willing to help. The neighborhood can expect to encounter is resistance from resi­ churches should also be involved. Having them dents of the neighborhood where you plan to assume a leadership role in the process can make provide housing for the ex-offender population. a critical positive difference. 

Residents may be opposed to changes they perceive as not in their best interests especially 

before they have reliable information and Involvement of the Ex-Offenders 

become involved in the planning process. When identifying whom to involve in planning 

It will be important that you prepare for neighbor- and developing your housing program, it is 

hood resistance by involving the residents early important to include the ex-offender population 

in the process and help them to understand the that is to be served. This group can help to 

facts, thus neutralizing the fears and rumors that inform decisions about their needs and the best 

often circulate around these efforts. By letting way to design the program. Remember that when 

the neighborhood residents know what kind of serving people, you want to do something with 

support services will be provided, what kind of them, not to them or for them. 

safety measures will be in place, and any other Experience has demonstrated that the population protections that will be built into the program, being served knows best what will work and you can help assuage their concerns. 

You will want to make it clear that successful exoffender reentry must involve the neighborhoods 

to which the ex-offenders will be returning. They 

have served their time and now need help in 

adjusting to a new life. Through the program 

that you are proposing, they will have a better 

chance of being successful as they return. This 

kind of outcome is in everyone’s best interest. 

If you are able to get the residents’ cooperation, 

the program will have a much better chance of 

what will not. You can save time and valuable 

resources by listening to their ideas and responding to their genuine concerns. Even though it 

may seem unnecessary to take this approach, in 

the long term it will provide real help in designing 

a successful program. This is a lesson that has 

been learned over time in serving many different 

groups, for example, low-income populations, 

immigrant groups, and people with disabilities. 

The same principles apply in designing programs 

for ex-offenders. 
9 

Guide for Developing Housing for Ex-Offenders 

One of the first issues raised when discussing plans for developing a 

and complex issue can be approached in various ways specific to each 

project. 

Community Development Block Grants 

for these funds is great. Some government programs, for example, 

Community Development Block Grants (CDBGs), are not limited to 

housing assistance; therefore, you will be competing with other types 

of social and public works programs. Navigating through the maze of 

options will probably require professional assistance (see ). 

Section 8 vouchers to housing projects. This allowance can be 100 

Emergency Shelter Grants Program 

This formula program provides grants to States, metropolitan cities, 

urban counties, and territories according to the formula used for 

CDBGs. Eligible activities include renovation, major rehabilitation, or 

conversion of buildings for use as emergency shelters for the homeless, as well as for food or transportation. This grant may also pay for 

activities to prevent an individual or family from becoming homeless.

Funding Issues 

housing program is how to obtain the necessary financing. This vital 

Government funding offers several options; however, the competition 

www.hud.gov

HUD Section 8 Vouchers 

Housing authorities can assign up to 20 percent of their unused 

percent of the units in supportive housing projects. This provision 

makes units available to very low-income populations. 

2, 3 

Grants are awarded annually. 
10 

Weed & Seed 

Continuum of Care Programs Shelter Plus Care (S+C) 

HUD believes the best approach for alleviating The purpose of this competitive program is to 

homelessness is through a community-based provide rental assistance for hard-to-serve homeless 

process that provides a comprehensive people with disabilities in connection with supresponse to the different needs of homeless portive services funded from sources other than 

individuals and families. To this end, HUD has this program. The four components of S+C are 

developed a concept to enable communities tenant-based rental assistance, sponsor-based 

to share a comprehensive and coordinated rental assistance, single room occupancy for 

housing and service delivery system called homeless individuals, and project-based rental 

Continuum of Care. These funds can only be assistance. Grants are awarded for up to 5 years. 

used for homeless individuals or families.


HUD offers the following assistance programs Section 8 Moderate Rehabilitation for


(see www.hud.gov/offices/cpd/homeless/index.cfm). Single Room Occupancy (SRO) Dwellings


This competitive program is designed to bring 

Emergency Shelter Grants Program more standard SRO units into the local housing 

This formula program provides grants to States, supply and to use those units to assist homeless 

metropolitan cities, urban counties, and territories individuals. Eligible applicants are public housing 

according to the formula used for CDBG. Eligible authorities and private nonprofit organizations. 

activities include renovation, major rehabilitation, Assistance may be used only for rental assistance 

and building conversion for use as emergency and for administering the rental assistance. 

shelters or transitional housing for the homeless. Grants are awarded for up to a 10-year term. 

Grants are awarded annually. 

Federal Tax Credits Supportive Housing Program 

Using Section 42–Low Income Housing Credits This competitive program is designed to promote may be an attractive way to work with businesses developing permanent and transitional housing interested in developing a package that will pro- and supportive services. Eligible activities include vide them with tax credits resulting from their acquisition, rehabilitation, new construction, support of your housing program. leasing, operating costs, and supportive services.


Eligible applicants are States, local governments, Donating or selling surplus property at a very low


other government agencies, private nonprofit price is another business incentive that has been


organizations, and community mental health used successfully.


associations. Grants are awarded for up to 3 years.

Guide for Developing Housing for Ex-Offenders 

State Housing Finance Agencies 

The largest source of funding for housing projects 

is the Housing Finance Agency (HFA). HFA funds 

come from the U.S. Treasury Department and are 

administered through State HFAs. The application 

process can be quite complicated and usually 

requires professional assistance; however, HFA 

funds are potentially an important resource for 

your project. 

Private-Sector Funding 

Faith-based groups, businesses, and other organizations in your local area are also potential 

partners. Churches and other organizations with 

an active social agenda may already be providing 

housing and additional services to the ex-offender 

population. By combining efforts with these 

groups, it may be possible to leverage additional 

funding. 

Foundations, both national and local, should 

also be researched as potential sources of funding for your project. Review the foundation’s 

mission statement as well as the type of programs 

it has supported in the past. Prepare your application carefully, documenting your plans and 

demonstrating the accountability that is built 

into your program design. Again this process 

will be competitive. 

The ideal financing arrangement will probably 

combine funding streams so that the program is 

not totally dependent on any one of them. There 

are advantages to having the flexibility that this 

arrangement can provide. There may be fewer 

restrictions on private funds, which may enable 

you to leverage the money and use it where it is 

most needed. A balanced financial plan should 

be developed early in the process. 

11 
13 

Guide for Developing Housing for Ex-Offenders 

Many of the stakeholders in your project will probably represent 

groups. These are organizations with a mission and a commitment 

Equally important will be the capacity to manage the financial and 

operational issues that will be part of the organization structure. As 

you review the issues discussed in this guide, it will be obvious that 

this program contains all the elements of a business venture along 

ture. Coordinated strategic planning beginning in the startup phase 

Management Capacity 

social service providers, community organizations, and faith-based 

to serve people, and they will be critically important to the success 

of the program. 

with the service delivery aspects of a social program. The management challenges will be demanding. Without solid operational practices, accountability, and sound financial management, the program 

can quickly run into difficulty. 

Neither side should be sacrificed for the other. Service providers are a 

necessary and essential component; so is a strong management strucof the program will provide a guide as the program develops. 
15 

Guide for Developing Housing for Ex-Offenders 

This list is a reminder of what to include as you prepare to develop a 

housing program for ex-offenders. 

Leadership Issues 

■ Do the leaders have the commitment to operate and promote the 

program? 

■ Do the leaders have the experience to operate the program 

successfully? 

■ Do the leaders have a proven track record? 

Stakeholders 

■ Have the outreach efforts been successful in identifying stakeholders 

and bringing them together? 

■ Have sufficient time and effort been invested in ensuring that stakeholders have a commitment to the program? 

Financial Issues 

■ Is there a financial plan that includes an operating budget, an 

accounting system, and a long-range financial development guide? 

■ Has long-term funding been obtained that will sustain the program 

over time? 

Replication Issues 

■ 

■ 

and train others interested in replicating the design? 

Checklist 

Can this program design be readily replicated in other communities? 

Would the stakeholders be willing to share operating information 
16 

Weed & Seed 

Reporting Systems and • Reporting process for stakeholders and 

Monitoring funding sources. 

•	 Experience-based report—what works and ■	 Is there a management information system what doesn’t. 

designed to collect relevant data for essential 

program planning and management use? Does • Communication plan. 

the system include the following elements? 

•	 Monitoring tool for the program. Built-In Evaluation 

•	 Evaluation instrument for short- and long- ■ Has an evaluation element been included in 

term performance. the program design? 
17 

Guide for Developing Housing for Ex-Offenders 

4 

Raleigh, North Carolina, is an example of a project that demonstrates 

many of the issues and concepts discussed in this housing guide. 

ments among groups and individuals with shared goals and a strong 

sense of mission. The faith community has provided leadership for 

a multiracial, multiethnic population. 

purpose: 

community economic development strategy that includes—helping famijob creation, and business development; providing affordable housing; 

This 

is a complex question that cannot be answered by a single group. It 

requires many dedicated partners. The answer comes in a multilevel 

■ Reduce recidivism. 

■ Assist mothers in regaining custody and care of their children. 

■ Help women obtain and maintain permanent, safe, and affordable 

housing. 

Case Study 

Harriet’s House, a faith-based facility providing reentry services in 

Harriet’s House is based on strong community collaborative agreethe project through a collaboration of 10 congregations representing 

The mission of Harriet’s House is a straightforward statement of its 

To strengthen low-wealth families and neighborhoods using a 

lies in transition; providing economic opportunities such as home ownership, 

and encouraging the spiritual well-being of the families and communities 

we serve. 

Harriet’s House posed its challenge as a question: How should reentry 

programs be integrated into low-resource neighborhoods (often the very, 

or similar, neighborhood the person lived in before entering prison)? 

strategy that involves not only the people being served but also the 

community, faith groups, government agencies, and volunteers. 

The primary goals of the Harriet’s House strategy are to: 

Harriet’s House, Raleigh, North Carolina 
18 

Weed & Seed 

■	 Help women obtain and maintain (living ■ Providing intensive services. 

wage) employment. ■	 Providing opportunities for people to live on 

■	 Help women return to the community and their own. 

adopt a positive and responsible lifestyle. ■	 Helping women learn personal living skills. 

The tasks associated with these goals represent ■ Pacing ex-offenders’ return to parenting until

a comprehensive set of progressive services they have adjusted to being self-reliant. including: 

■	 Adopting an intergenerational approach. ■	 An intensive wraparound case management 

system.	 ■ Celebrating successes—family reunions, sisterhood retreats. ■	 Budgeting, credit, debt management, and 

savings assistance.	 Harriet’s House has divided its program into four 

phases so that the process is easier to manage. ■	 Peer support, parenting classes, and Alcoholics Recognizing that an early start will be important Anonymous and Narcotics Anonymous meetings. to its success, the program actually begins before 

■	 Employment planning and support. phase I officially starts. The first contact is 3 

months before release when the woman is re- ■	 Permanent affordable housing. ferred by a prison social worker. (The woman 

Challenges, issues, and threats to the success of must have custody of her children and have no 

Harriet’s House include the following: charges of child abuse against her.) The referral 

is followed by an initial intake, which includes a 

■	 Neighborhoods have limited resources. face-to-face interview and a psychological assess-

■	 Initiatives like Harriet’s House are new and still ment. A letter of acceptance is issued, and on 

emerging. the release date, a case manager or a parole/ 

probation officer will transport the woman from 

■	 Drugs and prostitution continue to be preva- the facility to Harriet’s House. 

lent, which can lead to a return to the old, 

negative behavior. 

Phase I: Supervised Living ■	 Parole violations are common. (First 6 Months) 

■	 Employment choices are limited. During this phase, which is called clustered com­

■	 Housing inventory is limited—substandard munity living, the women live together in shared, 

housing is prevalent.	 supervised living quarters. A case manager works 

with them onsite, and they are expected to: ■	 NIMBY-ism (not in my backyard) views exist. 

■ Seek employment. 

Opportunities to address these issues include: ■	 Begin a budgeting program. 

■	 Developing a housing, employment, and services 

strategy. 
Guide for Developing Housing for Ex-Offenders 

■	 Obtain a general equivalency diploma (GED) 

or acquire new skills through vocational rehabilitation or job training. 

■	 Participate in mental health counseling, substance abuse treatment sessions, and parenting 

group classes. 

■	 Fulfill random urine screens and curfew checks. 

Begin weekend visits with children, resulting in 

longer visits.

Phase II: Transitional Living 

(6–12 Months) 

During this phase, the children are more involved 

in the total process: 

■	 Women live in a clustered community, but in 

their own unit with their children under their 

supervision. 

■	 Children are reunited with their mothers and 

are participating in community activities, 

attending and thriving in school, and attending family and individual counseling sessions 

as necessary. 

■	 A housing analysis is conducted to determine 

the best type of permanent housing for independent living. 

■	 Monthly housing inspections are conducted 

during this phase with random urine testing 

and case management continuing. 

Phase III: Community Living 

(6 Months) 

In this phase, the women are much more independent but still receiving support: 

■	 Women have secured permanent, affordable 

housing. 

■	 Women are living independently in permanent 

housing units, fully employed. 

■	 Women are still connected to the support 

system but with decreasing case management. 

■	 Women, now fully employed, learn to navigate 

within peer networks and the community. 

Phase IV: Aftercare (6 Months) 

The women are now in permanent housing. They 

are monitored in all areas of previous phases. The 

women in this phase should be managing all 

areas such as: 

■	 Finances (paying rent on time, maintaining a 

savings account). 

■	 Parenting. 

■	 Staying “clean” and sober. 

■	 Maintaining employment. 

The current capacity of Harriet’s House operation 

limits its services to no more than 14 families 

each year, with the average residency period of 

18 months. 

Program administrators carefully track the successes in the program so that adjustments can 

be made where needed. 

Year to date served: 64 women, 117 children 

Recidivism: 5 arrests, 6 reconvictions (8–10 or 12 

percent ) 

Number placed in permanent housing: 46 (77 

percent) 

Number employed: 50 (83 percent) 

Homeowners: 4 

19 
20 

Weed & Seed 

The need for more slots is obvious, and Harriet’s ■ Developing permanent affordable housing in


House is ready to respond when additional fund- the neighborhood.


ing is available. 
 ■	 Developing nonresidential interventions to 

Harriet’s House receives funding and support assist men and women as they return to their 

from various sources, including: neighborhood of origin. 

■	 Creating economic opportunities and develop- ■	 HUD. 

ing employment strategies in the neighborhood. 

■	 North Carolina Department of Correction. ■	 Strengthening family and personal networks 

■	 Local churches. already present in the neighborhood. 

■	 Corporations. Additional information about Harriet’s House is 

available by contacting: ■	 Foundations. 

■	 Individuals. Jeanne Tedrow, Executive Director 

Harriet’s House 

Longer term reentry issues identified by Harriet’s (919) 834–0666, ext. 230 

House are: www.passagehome.org 

■	 Providing access to resources for rehabilitation 

in the neighborhood. 
21 

Guide for Developing Housing for Ex-Offenders 

The Fortune Society5 is a large nonprofit organization that has been 

has collaborated with other agencies to obtain the best available 

As The Fortune Society worked with larger numbers of people returnhousing, the goal of successfully reentering society was a nearly 

stability factor for people rebuilding their lives. Housing may be one 

also may be the hardest problem to solve. The issues associated with 

demonstrated that it can be done and in the process has provided a 

Planning Phase 

lacked experience in obtaining funds and negotiating terms for capital 

projects. Recognizing the difficulty of the task it was about to undertake, The Fortune Society began a comprehensive planning process 

involving its board of directors, staff members, clients, and volunteers. 

It hired two organizational psychologists to facilitate the sessions and 

assist in defining a vision and a blueprint for the future. The consultants 

advised the group that other issues had to be worked out first. 

Case Study 

delivering services to and advocating on behalf of men and women 

within the criminal justice system since 1997. Its broad range of services has been developed over time in response to its clients’ needs. It 

services, and when service gaps have been identified, it has developed 

its own delivery system. The wraparound services include extensive 

counseling, GED preparation, skills training, job search assistance, job 

coaching, and myriad other services. 

ing from incarceration, it became obvious that housing for this population was a basic need that was not being met. Without adequate 

insurmountable task. A safe and secure place to live becomes a prime 

of the most important issues for ex-offenders reentering society, but it 

providing housing can be overwhelming, but The Fortune Society has 

model for others to follow. 

Although The Fortune Society has a long and successful history of 

serving people involved with the criminal justice system, it had never 

operated a housing program and never even owned property. It also 

The Fortune Society, New York, New York 
22 

Weed & Seed 

Management and Leadership	 building was essentially a shell that had been 

used by vagrants and was a place for drug activi- Management, leadership, and trust issues had to ty. Despite the sad appearance of the property, be resolved if The Fortune Society was to grow when The Fortune Society had the building pro- from a small organization under the direction of fessionally evaluated, it was declared structurally

a hands-on executive director to a large, expand- sound. 

ing, and dynamic organization. This was a difficult 

and stressful time with weekly meetings often 

filled with heated and emotional discussions The Castle 

facilitated by the consultants. The Fortune Society purchased the property 

Partly because of financial restraints, this consultant for $1.28 million, making a downpayment of 

phase of the process ended. The group continued $380,000 and obtaining a mortgage from Fleet 

to meet on its own, ultimately hiring another Bank for the remaining $900,000. Now the task 

consultant to bring closure to the strategic plan- was to develop a design for the project and proning process. The outcome of this process was a cure funding. 

plan for a transformed management structure, a The Fortune Society board made some significant change in its culture, and priorities for the next decisions during this entire process. It decided to 5 years. keep its downtown location operational as well 

as developing the Castle property so that it could 

Property Search serve a citywide population. It also decided to 

develop a service center in the Castle and build After reviewing clients’ needs, the board of direc­ housing facilities on the lot adjacent to it. tors agreed that The Fortune Society should search 

for property suitable for housing a significant number of ex-offenders. The organization began work- Fundraising 

ing with a real estate company in New York City. It quickly became clear that obtaining funds for During the search process it toured more than the service center was going to be much more 20 properties, although it found the one it want- difficult than raising funds for housing. As the ed about halfway through the search. The organi­ organization obtained funds for housing from zation continued to look to be certain it had the 

the State, it could see that grant deadlines were best possible site for the project. The property it going to bring new pressures. In addition, the selected is located at 140th and Riverside Drive, low-income housing tax credits it had received known in the West Harlem community as “the would expire if it did not provide the housing by Castle.” 

a certain time. 

The castle-style structure was built in 1913. Al- In reviewing these issues, the board made a deci­ though New York City later acquired the proper- sion to divide The Fortune Academy Residence ty to convert it for institutional use, it sat vacant and Service Center into two phases, with the resi­ for 43 years. After so many years of neglect, the dence component being the first phase and the 
Guide for Developing Housing for Ex-Offenders 

construction of the service center the second. 

The board saw definite advantages to this plan:

(1) construction estimates indicated that rehabilitation of the Castle would cost no more than 

new construction; (2) the light, air, and space in 

the Castle were much superior to those on the 

adjoining site; (3) it was better not to build a 

new structure next to a vacant shell of a building; 

and (4) it immediately addressed the community’s concern and The Fortune Society’s promise 

to save and rehabilitate the Castle as a stabilizing 

element in the neighborhood. 

Program Design 

As well as advantages, there were also new obstacles with the change to a phased project. The 

Castle did not have as much space available for 

housing as the planned new building; however, 

The Fortune Society was able to develop a new 

design that would meet the needs. In the new 

design, emergency housing accommodations are 

dormitory style instead of shared apartments. 

The “phased-permanent” apartments are a mix 

of single and double occupancy rather than all single units as originally planned, although the new 

design actually provides more housing for 

phased-permanent residents than originally 

planned. 

There are 18 beds available for emergency housing 

in a dormitory setting with each client having private storage space that can be locked. Throughout 

the facility, privacy and security for the clients 

and their possessions are important. Newly arrived 

residents begin in the emergency housing where 

they remain as long as necessary, sometimes a 

few weeks, usually less. At this time, they receive 

counseling and evaluation to help determine their 

needs and their individual abilities and hopes. 

“Phased permanent” describes The Fortune Society 

program model, meaning permanent for this 

phase of the client’s life with the ultimate goal 

being independent living for each one, but not 

moving them out to homelessness. Each apartment has its own bathroom, and the larger 

phased-permanent apartments have their own 

kitchenettes. The residents live from 6 to 18 

months in phased housing while they also 

receive support services including substance 

abuse treatment, HIV/AIDS services, independent 

living skills training, education, career development, counseling, and family services. 

During this time, residents are expected to work 

and/or attend training approximately 35 hours a 

week. They also perform community service 10 

hours a week. Some of the classes are offered at 

the Castle; however, because of the lack of space 

most offerings are not onsite. 

The Fortune Society wanted its program to be 

inclusive. The entrance requirements are simple: 

the person must be a homeless released prisoner 

who poses no current threat of violence and is 

interested in and appropriate for services being 

provided. The Fortune Society has high expectations once the person becomes a resident, but 

not high entrance requirements. The Fortune 

Society describes this as “low threshold, high 

expectation, and high support.” 

Capital Funding 

The Fortune Society had no prior experience in 

funding a capital project; therefore, it sought the 

best professional help it could find. Most of the 

grant proposals submitted were funded. The following list describes the various funding sources 

for the project. 

23 
24 

Weed & Seed 

■	 New York State Homeless Housing and 

Assistance Program (HHAP). The first grant 

applied for was through HHAP. This funding 

totals almost $4.3 million and is in the form of 

an interest-free 30-year loan. HHAP will continue to monitor the project over the 30-year 

period. If The Fortune Society continues to 

provide housing for homeless individuals, the 

entire principal of the loan will be forgiven. 

The HHAP loan got The Fortune Society more 

than halfway to its overall budget of $7.8 million 

including more than $700,000 in predevelopment costs. 

■	 Historic Tax Credits. The Castle is a beautiful structure with an almost 100-year history. 

One of the organization’s goals was to restore 

the building as close as possible to its original 

state; however, the tight budget did not allow 

for the cost of historic restoration, for example, 

replacement of the slate roof, custom windows, 

and repair of damaged terra cotta decoration. 

The Fortune Society applied for historic tax 

credits through the New York State Office of 

Parks, Recreation and Historic Preservation and 

the U.S. National Park Service and received 

$972,000 to restore the exterior of the building to historic preservation standards. In 2003, ■	 New York State Division of Housing and the organization received an award from the Community Renewal (DHCR). DHCR was New York Landmarks Conservancy for the ren­ the second major source of capital funding. ovation of the building. DHCR distributes Federal tax credits to organizations that provide low-income housing. The ■ Capital Campaign. The last part of securing 

Fortune Society applied for these tax credits capital funds has been one of the most difficult. 

and received an award for $1.6 million. Ten The Fortune Society enlisted the assistance of a 

years of tax credits are provided up front to well-known capital funding organization that 

The Fortune Society during a syndication donated its valuable guidance to develop a 

process. The syndicator, the Enterprise Social plan to raise the final $1 million. With gifts from 

Investment Corporation, has become The its trustees, its donor base, and others, there is 

Fortune Society’s limited partner on the project only $150,000 remaining toward its goal. 

and will monitor the project to ensure viability 

for the entire 10-year period covered by the The capital campaign was extremely challenging 

tax credits. The Fortune Society has set aside for The Fortune Society, which had no established 

$647,000 of the $1.4 million in an operating experience in these efforts. It does not have a 

reserve account to help ensure project success traditional fundraising board with one-third of 

by covering any budget deficits and paying for its members mandated in the bylaws to be exemergencies. offenders. The population that The Fortune 

Society serves does not have a large constituency ■	 U.S. Department of Housing and Urban of support; nevertheless, the end goal is in sight. Development (HUD). HUD provided The 

Fortune Society with $1.2 million in additional 

funding over 3 years, of which $300,000 was Operations Funding 

to be used to rehabilitate the facility. The other 

$900,000 was to pay for housing and support- A campaign to raise funds for operations was 

ive services for HIV-positive individuals. This conducted simultaneously with the capital camgrant was later modified so that all $1.2 million paign. The challenge for The Fortune Society was 

was available for operating the facility and pro- to ensure that the needs of the clients and the 

viding supportive services. 
Guide for Developing Housing for Ex-Offenders 

agency’s vision would drive the program rather 

than the funding sources assuming that role. It 

was important that they obtain “cross funding,” 

thereby ensuring that no single agency would 

control the program. Having flexibility built into 

the program design meant that the organization 

had the ability to have broad entry requirements, 

making it possible to open its doors to more 

homeless ex-offenders. 

With three separate grants from HUD, certain 

categorical groups were covered, for example, 

HIV-positive people, substance abusers, and people with disabilities. A grant from the State of 

New York was specifically targeted for providing 

services for homeless people in the winters of 

2003 and 2004. Other grants from Federal, State, 

and local funding sources in addition to foundation 

grants and donations from community supporters 

have provided the base from which The Fortune 

Society operates. 

Community Relations 

Although fundraising, both for the operating 

budget and for the capital improvements, was 

very challenging, the most difficult task for the 

organization was establishing good relationships 

with the community. The NIMBY (not in my 

backyard) factor was very strong. The neighbors 

did not want ex-offenders moving into their 

area, and some of them raised vocal protests. The 

community had been negatively impacted over 

the years by crime. They feared the project would 

be just another false start. 

The Fortune Society hired a community relations 

consultant to advise them on how to work with 

the community. It made presentations at different community meetings to dispel rumors and 

explain its plans. It also invited the neighborhood 

residents to visit its other sites to see the programs 

it provided. Representatives from The Fortune 

Society began attending six community meetings 

each month. That practice has continued to the 

present time. The organization has also made the 

space at the Castle available for neighborhood 

gatherings. 

Gradually the mood has changed. The Fortune 

Society listened to the community and responded 

to concerns that were raised, which demonstrated that it cared about the neighborhood and 

intended to stay. The most difficult and sustained 

challenge to the project came from the neighborhood resistance, but with patience and perseverance The Fortune Society has made friends and 

gained supporters. It recognizes that gaining 

neighborhood acceptance and support is an 

ongoing process that it will have to continue. 

The Future 

The Fortune Society is still developing the Castle 

site, evaluating both process and outcomes. It 

intends to continue adding to the program and 

services offered. Further, it wants to share the lessons learned and help others follow and expand 

on the model created at the Castle. 

Additional information is available from: 

JoAnne Page, Executive Director 

The Fortune Society 

53 West 23rd Street 

New York, NY 10010 

(212) 891–7554 

JPFORTUNE@aol.com 

25 
27 

Guide for Developing Housing for Ex-Offenders 

1. The guide was prepared by Pat Gilbert under contract with the Executive 

2. Definitions of Homeless Individual and Chronic Homelessness: Section 

11302. General definition of homeless individual (pursuant to 

the term “homeless” or “homeless individual or homeless person” [1] 

gregate shelters, and transitional housing for the mentally ill); (B) an instinarily used as, a regular sleeping accommodation for human beings. 

3. Chronic Homelessness (as adopted by HUD, the U.S. Department of Health 

: An unaccompanied 

homeless individual with a disabling condition who has either been continuously homeless for a year or more or has had at least four episodes of 

homelessness in the past 3 years. 

Notes 

Office for Weed and Seed, Office of Justice Programs. 

McKinney-Vento Act—Revised); (a) In general, for purposes of this chapter, 

includes: (1) an individual who lacks a fixed, regular, and adequate nighttime residence; and (2) an individual who has a primary nighttime residence 

that is (A) a supervised publicly or privately operated shelter designed to 

provide temporary living accommodations (including welfare hotels, contution that provides a temporary residence for individuals intended to be 

institutionalized; or (C) a public or private place not designed for, or ordiand Human Services, and the Veterans Administration)

4. Description adapted by Pat Gilbert, who served as a consultant to the 

Executive Office of Weed and Seed (EOWS) in preparing this guide. 

5. Condensed by Pat Gilbert from the full-length description of The 

Fortune Society’s housing program as posted on the EOWS Web site at 

www.ojp.usdoj.gov/eows.